Target Capabilities List 

A companion to the National Preparedness Guidelines 

U.S. Department of Homeland Security 

September 2007 

Target Capabilities List i 

TABLE OF CONTENTS 

PREFACE..................................................................................................................................... iii 

EXECUTIVE SUMMARY ...........................................................................................................v 

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

Overview..............................................................................................................................1 

Key Components of the Target Capabilities List.................................................................6 

Risk Factors Considered in Preparedness Planning...........................................................10 

The TCL as a Tool for Expanded Regional Collaboration................................................11 

Using the Target Capabilities List .....................................................................................12 

Going Forward – Refinements to the TCL ........................................................................16 

COMMON TARGET CAPABILITIES 

Planning .............................................................................................................................21 

Communications ................................................................................................................29 

Risk Management ..............................................................................................................43

Community Preparedness And Participation.....................................................................55 

Intelligence and Information Sharing and Dissemination .................................................69 

PREVENT MISSION AREA 

Information Gathering and Recognition of Indicators and Warnings ...............................81 

Intelligence Analysis and Production ................................................................................91 

Counter-Terror Investigation and Law Enforcement.......................................................103 

CBRNE Detection............................................................................................................115 

PROTECT MISSION AREA 

Critical Infrastructure Protection .....................................................................................129 

Food and Agriculture Safety and Defense.......................................................................141 

Epidemiological Surveillance and Investigation .............................................................161 

Laboratory Testing...........................................................................................................175 
ii Target Capabilities List

RESPONSE MISSION AREA 

On-Site Incident Management .........................................................................................197 

Emergency Operations Center Management ...................................................................209 

Critical Resource Logistics and Distribution...................................................................223 

Volunteer Management and Donations ...........................................................................237 

Responder Safety and Health...........................................................................................249 

Emergency Public Safety and Security Response ...........................................................263 

Animal Disease Emergency Support ...............................................................................277 

Environmental Health ......................................................................................................309 

Explosive Device Response Operations ..........................................................................337 

Fire Incident Response Support.......................................................................................349 

WMD and Hazardous Materials Response and Decontamination...................................361 

Citizen Evacuation and Shelter-In-Place .........................................................................377 

Isolation and Quarantine..................................................................................................395 

Search and Rescue (Land-Based) ....................................................................................407 

Emergency Public Information and Warning ..................................................................421 

Emergency Triage and Pre-Hospital Treatment ..............................................................437 

Medical Surge ..................................................................................................................449 

Medical Supplies Management and Distribution.............................................................465 

Mass Prophylaxis.............................................................................................................479 

Mass Care (Sheltering, Feeding, and Related Services)..................................................493 

Fatality Management .......................................................................................................519 

RECOVER MISSION AREA 

Structural Damage Assessment........................................................................................545 

Restoration of Lifelines....................................................................................................557

Economic and Community Recovery ..............................................................................567 
Target Capabilities List iii 

PREFACE 

The attacks on 9/11, the anthrax attacks, the devastation from Hurricane Katrina, and preparations for a 

possible pandemic illustrate the 21st century challenges the Nation faces. To meet these challenges, we 

must understand performance requirements for a major event at the task level and build and maintain 

the capabilities to perform those tasks. Preparedness for major events involves all levels of 

government, the private sector, non-government organizations, and citizens. 

In December, 2003, the President issued Homeland Security Presidential Directive (HSPD)-8 to 

establish national policy to strengthen the preparedness of the United States to prevent, protect against, 

respond to, and recover from terrorist attacks, major disasters, and other emergencies. HSPD-8 

required the development of the National Preparedness Guidelines (the Guidelines). The Guidelines 

define what it means for the Nation to be prepared by providing a vision for preparedness, establishing 

national priorities, and identifying target capabilities. The Guidelines adopt a Capabilities-Based 

Planning process supported by three planning tools: the National Planning Scenarios, Target 

Capabilities List (TCL), and Universal Task List (UTL). They can be viewed online at 

https://odp.esportals.com or https://www.llis.dhs.gov. 

The Target Capabilities List describes the capabilities related to the four homeland security mission 

areas: Prevent, Protect, Respond, and Recover. It defines and provides the basis for assessing 

preparedness. It also establishes national guidance for preparing the Nation for major all-hazards 

events, such as those defined by the National Planning Scenarios. The current version of the TCL 

contains 37 core capabilities. 

A “Consensus of the Community” approach was used to develop the Target Capabilities List. 

Stakeholders from Federal, State, local, territorial, and tribal governments, the private sector, and nongovernmental organizations came together in four national workshops and capability working groups 

to define the capabilities. 

The Guidelines will serve as a framework to guide operational readiness planning, priority-setting, and 

program implementation at all levels of government. The Guidelines provide a call to action by all 

Americans as they consider their personal and shared responsibility to be part of A Nation Prepared. 

The Target Capabilities List provides guidance on building and maintaining capabilities that support 

the Guidelines. 

Michael Chertoff 

Secretary 

Department of Homeland Security 
iv Target Capabilities List

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Target Capabilities List v 

EXECUTIVE SUMMARY 

The President and Congress directed creation of a fully integrated, adaptable, all-hazards national 

preparedness system. The National Preparedness Guidelines (The Guidelines) and Target Capabilities 

List (TCL) establish the system’s all-hazards framework. The Guidelines provide the vision and 

establishes national priorities. The TCL is a national-level, generic model of operationally ready 

capabilities defining all-hazards preparedness. Users should refer to the TCL to assess capabilities, 

identify needs, and inform plans and strategies taking into account their risk. It is important to understand 

that the TCL serves as a reference document and planning guide to preparedness and in no way serves as 

a prescription for program or resource requirements. 

The vision for the National Preparedness Guidelines is: 

A NATION PREPARED with coordinated capabilities to prevent, protect against, 

respond to, and recover from all hazards in a way that balances risk with resources 

and need. 

The Guidelines establish the following priorities to meet the Nation’s most urgent needs and adopt a 

Capabilities-Based Planning process to define and build the capabilities to achieve the Guidelines: 

• Expand regional collaboration 

• Implement the National Incident Management System and the National Response Plan 

• Implement the National Infrastructure Protection Plan 

• Strengthen information sharing and collaboration capabilities 

• Strengthen communications capabilities 

• Strengthen CBRNE detection, response, and decontamination capabilities 

• Strengthen medical surge and mass prophylaxis capabilities 

• Strengthen planning and citizen preparedness capabilities 

The Target Capabilities List provides a guide to addressing the priorities and achieving the National 

Preparedness Guidelines. Capabilities provide the means to accomplish a mission and achieve desired 

outcomes by performing critical tasks, under specified conditions, to target levels of performance. 

Capabilities are delivered by appropriate combinations of planning, organization, equipment, training, 

and exercises. The TCL supports an all-hazards approach to building capabilities that may be needed 

in the event of terrorist attacks, natural disasters, health emergencies, and other major events. It 

identifies 37 capabilities that were developed with the active participation of stakeholders representing 

all levels of government, non-governmental organizations, and the private sector. 

Consensus of the Community Approach: Stakeholder Involvement 

The Guidelines and TCL were developed with an unprecedented level of stakeholder involvement. 

The Department of Homeland Security adopted a “consensus of the community” approach, eliciting the 

active involvement of local, State, and Federal agencies, over 120 national associations, nongovernmental organizations, and the private sector. Stakeholders participated through national 

stakeholder workshops, working groups, and broad national reviews. 
vi Target Capabilities List

The Approach to Defining Capabilities 

The capabilities are derived from a threat and mission analysis. The first step in defining capabilities is 

to answer the question “How prepared do we need to be?” The analysis, using the 15 National 

Planning Scenarios, illustrates the range, scope, magnitude, and complexity of representative major 

events, including terrorism, natural disasters, and other emergencies for which the Nation should 

prepare. Mission analysis provides an overview of all the major functions related to achievement of 

the four missions. It ensures that preparedness activities are focused on mission achievement. 

The National Planning Scenarios serve as the basis for defining tasks that may be required to 

successfully prevent, protect against, respond to, and recover from a wide range of threats and hazards, 

as well as the capabilities needed to perform the tasks. The Universal Task List (UTL) is the catalogue 

of tasks that may need to be performed by governmental, non-governmental, and private-sector 

organizations, and the general public. No single jurisdiction or agency is expected to perform every 

task identified and no two jurisdictions require the same level of capabilities. In addition, Federal 

priorities and supporting program referenced herein are subject to change in response to an evolving 

threat environment and competition for scare resources. In practice, subsets of tasks will be selected 

based on specific roles, missions, and functions, and the appropriate level of capabilities will depend 

upon risk and need. 

The TCL provides a guide for development of a national network of capabilities that will be available 

when and where they are needed to prevent, protect against, respond to, and recover from major events. 

These capabilities define all-hazards preparedness and provide the basis for assessing preparedness and 

improving decisions related to preparedness investments and strategies. 

Target Capabilities 

The TCL comprises 37 capabilities which are listed in the chart on the next page. They address 

response capabilities, immediate recovery, selected prevention and protection mission capabilities, as 

well as common capabilities such as planning and communications that support all missions. For these 

capabilities, local jurisdictions and States are the lead in conjunction with Federal and private sector 

support. 

A Capability Summary has been developed for each capability to describe and provide guidance on the 

major capability components. Each Capability Summary contains the following elements: a definition 

and outcome, preparedness and performance tasks and measure, resource elements, target preparedness 

levels, and identified responsibility for building and maintaining the capability. 
Target Capabilities List vii 

Phase I Capabilities (Included in this version of the TCL) 

Common Capabilities 

Planning 

Communications 

Community Preparedness and 

Participation 

Risk Management 

Intelligence and Information Sharing and 

Dissemination 

Prevent Mission Capabilities

Information Gathering and Recognition of 

Indicators and Warning 

Intelligence Analysis and Production 

Counter-Terror Investigation and Law 

Enforcement 

CBRNE Detection 

Protect Mission Capabilities

Critical Infrastructure Protection 

Food and Agriculture Safety and Defense 

Epidemiological Surveillance and 

Investigation 

Laboratory Testing 

Respond Mission Capabilities

On-Site Incident Management 

Emergency Operations Center 

Management 

Critical Resource Logistics and 

Distribution 

Volunteer Management and Donations 

Responder Safety and Health 

Emergency Public Safety and Security 

Animal Disease Emergency Support 

Environmental Health 

Explosive Device Response Operations 

Fire Incident Response Support 

WMD and Hazardous Materials 

Response and Decontamination 

Citizen Evacuation and Shelter-in-Place 

Isolation and Quarantine 

Search and Rescue (Land-Based) 

Emergency Public Information and 

Warning 

Emergency Triage and Pre-Hospital 

Treatment 

Medical Surge 

Medical Supplies Management and 

Distribution 

Mass Prophylaxis 

Mass Care (Sheltering, Feeding and 

Related Services) 

Fatality Management 

Recover Mission Capabilities

Structural Damage Assessment 

Restoration of Lifelines 

 Economic and Community Recovery 

Using the Target Capabilities List 

The Target Capabilities List is a reference document that describes the capabilities for achieving 

national preparedness. It also serves as a planning, assessment, and training tool. Various 

implementation tools are being developed from the TCL to help decision-makers and managers at all 

levels to define their preparedness requirements and assess levels of preparedness. Some uses are 

briefly described below: 

• Risk Assessment: The determination of risk includes identification and characterization of threats, 

their consequences, and our vulnerabilities. While each is important for capabilities-based planning 

and national preparedness, determinations of vulnerability are important since they include not only 

exposure and sensitivity, but resilience. Resilience is key since it refers to our coping capacity to 

absorb events, adapt, respond to, and recover from its effects. 
viii Target Capabilities List

• Planning: The TCL includes a Planning Capability designed to establish and maintain the ability 

to develop, update, and test plans. In addition, each capability contains both preparedness and 

performance tasks and measures that support the capability outcome and serve as a guide for 

preparedness planning. The preparedness tasks and measures describe major elements or issues 

that should be addressed in plans, procedures, and systems, as well as authorities, relationships, 

and agreements that need to be in place to prepare to use the capability. The performance tasks 

and measures also inform the planning process. 

• Strategy Development and Investment Justifications: The common framework provided by 

the Guidelines, priorities, and capabilities serve as a guide to enhance homeland security strategies 

and investment justifications at all levels. 

• Assessment of Preparedness: The TCL provides a basis for assessing preparedness to help 

jurisdictions and agencies to plan strategically, design appropriate programs that meet proven 

needs, and evaluate the effectiveness of investments over time. 

• Focus Training on Task Performance: Training programs should be modified as appropriate to 

ensure that they provide participants with the knowledge, skills, and abilities to perform the critical 

tasks defined by the TCL to a proficiency level sufficient to achieve the capability outcomes. 

• Test Capabilities through Exercises: Exercises provide a means to test and validate 

preparedness. The Homeland Security Exercise and Evaluation Program (HSEEP) is designed to 

encourage a common exercise design, conduct, and evaluation methodology across all levels of 

government and the private sector. HSEEP exercises are designed and evaluated to demonstrate 

capability levels through the assessment of performance of critical tasks and achievement of 

outcomes, as defined by the TCL. 

The TCL Going Forward 

The TCL is a living document. It was designed to be enhanced and refined over time as we 

gain lessons from its application or real world experience. Recommendations for changes to 

the TCL are welcome and will be reviewed and integrated into future versions of the TCL, as 

appropriate. A change request form is posted on www.LLIS.gov. 
Target Capabilities List 1 

INTRODUCTION 

Overview 

The President and Congress directed creation of a fully integrated, adaptable, all-hazards national 

preparedness system. The National Preparedness Guidelines (The Guidelines) and Target Capabilities 

List (TCL) establish the system’s all-hazards framework. The Guidelines provide the vision and 

establishes national priorities. The TCL is a national-level, generic model of operationally ready 

capabilities defining all-hazards preparedness. Users should refer to the TCL to assess capabilities, 

identify needs, and inform plans and strategies taking into account their risk. 

The vision for the National Preparedness Guidelines is: 

A NATION PREPARED with coordinated capabilities to prevent, protect against, respond to, 

and recover from all hazards in a way that balances risk with resources. 

The Guidelines establish the following priorities to meet the Nation’s most urgent needs and adopt a 

capabilities-based planning approach to define and build the capabilities critical to achieve the 

Guidelines: 

• Expand regional collaboration 

• Implement the National Incident Management System and the National Response Plan 

• Implement the National Infrastructure Protection Plan 

• Strengthen information sharing and collaboration capabilities 

• Strengthen communications capabilities 

• Strengthen CBRNE detection, response, and decontamination capabilities 

• Strengthen medical surge and mass prophylaxis capabilities 

• Strengthen planning and citizen preparedness capabilities 

The Target Capabilities List provides a guide to addressing the priorities and achieving the National 

Preparedness Guidelines. Capabilities provide the means to accomplish a mission and achieve desired 

outcomes by performing critical tasks, under specified conditions, to target levels of performance. The 

conditions under which the tasks must be performed are defined by a set of National Planning Scenarios. 

Capabilities are delivered by appropriate combinations of planning, organization, equipment, training, and 

exercises. 

The TCL supports an all-hazards approach to building interchangeable, flexible capabilities needed to 

address a broad range of incidents to include: terrorist attacks, natural disasters, health emergencies, and 

other major incidents. It currently identifies 37 capabilities that were developed with the active 

participation of stakeholders representing all levels of government, non-governmental organizations, and 

the private sector. 

Each capability includes a definition; outcome; preparedness and performance activities, tasks, and 

measures. The TCL also identifies the role of governmental and non-governmental organizations, the 

private sector, and citizens in building and maintaining capabilities. By doing so, it provides a basis for 

assessing preparedness and for setting priorities for the effective use of limited resources. The TCL 

serves as a valuable tool for guiding preparedness activities to include: planning, establishment of training 

requirements, and evaluation of performance through exercises and operations. Although the TCL should 

inform resource priorities at all levels, it does not imply a commitment of Federal funding. 
2 Target Capabilities List

Assumptions for Major Events 

 May occur at any time with little or no warning 

 Require significant information-sharing at the unclassified and classified levels across multiple 

jurisdictions and between the public and private sectors 

 Involve single or multiple geographic areas 

 May have significant international impact and/or require significant international information 

sharing, resource coordination, and/or assistance 

 Can span the spectrum of incident management to include prevention, protection, response, and 

recovery 

 Involve multiple, highly varied hazards or threats 

 May result in numerous casualties; fatalities; displaced people; property loss; disruption of 

normal life support systems, essential public services, and basic infrastructure; and significant 

damage to the environment 

 Impact critical infrastructure across sectors 

 Overwhelm capabilities of State, local, and Tribal governments, and private-sector infrastructure 

owners and operators 

 Attract an influx of spontaneous volunteers and supplies 

 May require short-notice asset coordination and response 

 May require prolonged, sustained incident management activities 

Note: The assumptions for major events mirror those for Catastrophic events found in the National Response 

Plan 

The Underlying Assumption: Major Events Require Partnerships

The planning assumptions for major events which were used to develop the TCL are found in the 

National Response Plan (NRP), which recognizes that such events will typically be managed at the lowest 

possible geographic, organizational, and jurisdictional level using the principles in the National Incident 

Management System (NIMS). The Catastrophic Incident Supplement to the NRP establishes a strategy 

for accelerating the delivery and application of Federal and Federally accessible resources and capabilities 

in support of a jurisdictional response to a no-notice or short-notice catastrophic mass victim/mass 

evacuation incident. Nonetheless, the scope of major events demands that the combined expertise and 

capabilities of government, private sector, and nongovernmental organizations be brought to bear as the 

Nation addresses the homeland security missions. 

Consensus of the Community Approach: Stakeholder Involvement 

The Target Capabilities List was developed with an unprecedented level of stakeholder involvement. The 

Department of Homeland Security adopted a “consensus of the community” approach, eliciting the active 

involvement of local, State, and Federal agencies, over 120 national associations, non-governmental 

organizations, and the private sector. Stakeholders participated through national stakeholder workshops, 

working groups, and broad national reviews. 
Target Capabilities List 3 

The Approach to Defining Capabilities

The National Preparedness Guidelines identify three fundamental questions that must be addressed to 

achieve a Nation prepared. 

How prepared do we need to be? 

How prepared are we? 

How do we prioritize efforts to close the difference? 

To answer these questions, we must first determine what threats we face and what we need to do to 

achieve the homeland security missions to prevent, protect against, respond to, and recover from those 

threats. We then need to determine what tasks need to be performed, how well they need to be performed, 

and the capabilities needed to perform the tasks to the appropriate level of performance. The graphic 

below illustrates the process used to develop the Target Capabilities List which helps us answer these 

three questions. 

Capabilities Capabilities 

Development Development

National

Planning 

Scenarios

Homeland

Security 

Taxonomy

Universal 

Task List

Target

Capabilities

List

Capabilities Development Process and Tools

Threat 

Analysis Analysis

Mission Mission 

Area 

Analysis Analysis

Task 

Analysis

PROCESS

TOOLS

Starting Point: Threat Analysis

The capabilities are derived from a threat and mission analysis. The first step in defining capabilities is 

to answer the question “How prepared do we need to be?” The analysis, using the 15 National 

Planning Scenarios, illustrates the range, scope, magnitude, and complexity of representative major 

incidents, including terrorism, natural disasters, and other emergencies for which the Nation should 

prepare. Mission analysis provides an overview of all the major functions related to achievement of 

the four missions. It ensures that preparedness activities are focused on mission achievement. 
4 Target Capabilities List

15 National Planning Scenarios 

1. Improvised Nuclear Device 

2. Aerosol Anthrax 

3. Pandemic Influenza 

4. Plague 

5. Blister Agent 

6. Toxic Industrial Chemical 

7. Nerve Agent 

8. Chlorine Tank Explosion 

9. Major Earthquake 

10. Major Hurricane 

11. Radiological Dispersal Device 

12. Improvised Explosive Device 

13. Food Contamination 

14. Foreign Animal Disease 

15. Major Cyber Attack

Terrorism scenarios dominate because the U.S. has had less 

experience with terrorist events than with natural disasters. 

A preponderance of terrorist scenarios compensates for less 

operational experience with these types of events. 

Focus on Achievement of Mission

A mission area analysis was also conducted to identify the 

major functions related to achievement of the four missions. 

It helps to ensure that all preparedness activities are focused 

on mission success. 

A mission area analysis was conducted through a review of 

official documents and doctrine to identify the objectives 

and functional areas for each of the Homeland Security 

Missions. This included a review of the Homeland Security 

Strategy, legislation, the Presidential Directives, and related 

doctrine. The result is the all-hazards taxonomy, which 

shows the alignment of all homeland security activities 

toward mission achievement. The taxonomy is shown on 

the next page. 

Task Analysis

The National Planning Scenarios serve as the basis for defining the tasks that may be required to prevent, 

protect against, respond to, and recover from a wide range of threats and hazards, as well as the 

capabilities necessary to perform the tasks. The Universal Task List (UTL) is the catalogue of tasks that 

may need to be performed by governmental, non-governmental, and private-sector organizations, and the 

general public. During a major event the number of people performing a task may need to increase and 

may be performed by a combination of local agencies as well as teams from other jurisdictions, levels of 

government, or the private sector. The UTL does not identify who will perform the task or how it should 

be performed. That is left to the State, local, tribal, and territorial implementing agencies. No single 

jurisdiction or agency is expected to perform every task. Rather, subsets of tasks will be selected 

based on specific roles, missions, and functions. The current version of the UTL is a catalogue of nearly 

4,800 tasks across the four mission areas. 
Target Capabilities List 5 

Target Capabilities

The TCL provides a guide for developing a national network of capabilities that will be available when 

and where they are needed to prevent, protect against, respond to, and recover from major events. These 

capabilities define all-hazards preparedness and provide the basis for assessing preparedness and 

improving decisions related to preparedness investments and strategies. They establish planning tools for 

preparing the Nation for major all-hazards events such as those represented by the National Planning 

Scenarios. 

The capabilities assume that local jurisdictions have an operational level of capabilities to address most 

routine emergencies and disasters. For example, the TCL does not address capabilities for routine 

firefighting or law enforcement services, or seasonal flooding. Instead, the TCL addresses capabilitiesbased preparedness to prevent, protect against, respond to, and recover from terrorism, very large-scale 

disasters, pandemic health emergencies, or other major incidents. Establishing plans, procedures, 

systems, interagency relationships, training and exercise programs, and mutual aid agreements required 

for major events will enhance performance for all hazard response. 
6 Target Capabilities List

Key Components of the Target Capabilities List 

The TCL currently comprises 37 capabilities which are listed in the chart on the next page. They address 

preparedness for response capabilities, immediate recovery, selected prevention and protection mission 

capabilities, as well as common capabilities such as planning and communications that support all 

missions. For these capabilities, local jurisdictions and States are the lead in conjunction with appropriate 

Federal and private sector support. 

A Capability Summary has been developed for each 

capability to describe and provide guidance on the 

major capability components. 

Definition, Outcome, NRP Relationship

Each capability summary begins with a definition of 

the capability, and follows with an outcome 

statement that describes the expected results or effect 

to be achieved. The next section identifies the 

relationship of the capability to the emergency 

support function(s) described in the National 

Response Plan. 

Preparedness Activities, Critical Tasks, 

Measures, and Metrics

Each capability includes a description of the major 

activities performed with the capability and the 

critical tasks and measures associated with the 

activity. They include both preparedness and performance activities, tasks, and measures. 

Preparedness activities and tasks are those things that should be done prior to the demand for the 

capability. Development of plans, procedures, protocols, and systems; establishment of mutual aid 

agreements and authorities; provision of training; and the conduct of exercises are all examples of 

preparedness tasks. Critical tasks are tasks that are essential to achieving the desired outcome and to the 

success of a homeland security mission. The critical tasks are derived from the tasks found in the 

Universal Task List. 

Capability Summaries Include 

 Definition 

 Outcome 

 Relationship to NRP Emergency Support 

Function (ESF)/Annex 

 Preparedness Activities, Tasks, Measures, 

and Metrics 

 Performance Activities, Tasks, Measures, 

and Metrics 

 Activity Process Flow 

 Capability Elements 

 Linked Capabilities 

 Planning Assumptions 

 Planning Factors 

 National Preparedness Levels 

 References 
Target Capabilities List 7 

Phase I Capabilities (Included in this version of the TCL) 

Common Capabilities 

Planning 

Communications 

Community Preparedness and Participation 

Risk Management 

Intelligence and Information Sharing and 

Dissemination 

Prevent Mission Capabilities

Information Gathering and Recognition of 

Indicators and Warning 

Intelligence Analysis and Production 

Counter-Terror Investigation and Law 

Enforcement 

CBRNE Detection 

Protect Mission Capabilities

Critical Infrastructure Protection 

Food and Agriculture Safety and Defense 

Epidemiological Surveillance and 

Investigation 

Laboratory Testing 

Respond Mission Capabilities

On-Site Incident Management 

Emergency Operations Center 

Management 

Critical Resource Logistics and Distribution 

Volunteer Management and Donations 

Respond Mission Capabilities 

(Continued) 

Responder Safety and Health 

Emergency Public Safety and Security 

Animal Disease Emergency Support 

Environmental Health 

Explosive Device Response Operations 

Fire Incident Response Support 

WMD and Hazardous Materials Response 

and Decontamination 

Citizen Evacuation and Shelter-in-Place 

Isolation and Quarantine 

Search and Rescue (Land-Based) 

Emergency Public Information and Warning 

Emergency Triage and Pre-Hospital 

Treatment 

Medical Surge 

Medical Supplies Management and 

Distribution 

Mass Prophylaxis 

Mass Care (Sheltering, Feeding and 

Related Services) 

Fatality Management 

Recover Mission Capabilities

Structural Damage Assessment 

Restoration of Lifelines 

 Economic and Community Recovery 
8 Target Capabilities List

Performance Activities, Critical Tasks, Measures, and Metrics

Performance activities and tasks are the actions taken to prevent, protect against, respond to, or recover 

from an actual event or are demonstrated during an exercise. An Activity Process Flow Map shows the 

major activities that are performed with the capability and how the capability links to other capabilities. 

Performance measures are quantitative or qualitative levels against which achievement of a task or 

capability outcome can be assessed. They describe how much, how well, or how quickly an action should 

be performed and are typically expressed in ways that can be observed during an exercise or real event. 

The measures and metrics are not standards. They serve as guides and evaluation tools for 

planning, training, and exercise activities. However, nationally accepted standards of performance, 

benchmarks, and guidelines are reflected, if applicable. 

Sample Preparedness and Performance Measures and Metrics 

Example from Citizen Evacuation and Shelter-In-Place Capability

Preparedness Measure Metric 

Plans addressing authority and decision-making processes for shelterin-place and/or evacuation are in place 

Yes/No 

Populations that may need assistance with evacuation/shelter-in-place 

have been identified 

Yes/No 

Plans to provide adequate services (e.g., gas, food, water, tow trucks, 

emergency medical services, etc.) along evacuation routes are in place 

Yes/No 

Performance Measure Metric 

Time in which affected population is notified of shelter-in-place order Within 15 minutes from order to shelterin-place

Time in which the evacuation of the affected general population for an 

event with advanced warning is completed 

Within 72 hours from the order to 

evacuate 

Evacuation staging/reception areas in the affected area are 

coordinated with necessary sites and assisting agencies 

Yes/No 

Capability Elements 

A capability is provided with proper planning, organization, training, equipment, and exercises. The 

capability elements define the resources needed to perform the critical tasks to the specified levels of 

performance, with the recognition that there is rarely a single combination of capability elements that 

must be used to achieve a capability. 

Where applicable, NIMS Resource Typing Definitions were used to define resource organizations or 

packages. Resource typing is the categorization and description of response resources that are commonly 

exchanged in disasters through mutual aid agreements. Use of these standard definitions enables 

emergency management personnel to identify, locate, request, order, and track outside resources quickly 

and effectively and facilitate the response of these resources to the requesting jurisdiction. Additional 

resources are being typed and personnel positions are being credentialed by the NIMS Integration Center. 

Consistent with NIMS, the capability elements include personnel; planning; organization and leadership; 
Target Capabilities List 9 

equipment and systems; training; and exercises, evaluations, and corrective actions, as shown in the chart 

below. 

The Capability Elements serve as a guide for identifying and prioritizing investments when 

working to establish a capability. Further, existing programs and activities represented as 

Capability Elements have been included for reference purposes only, and are subject to change in 

response to an evolving threat environment and competition for scarce resources. 

Capability Elements 

Planning 

Collection and analysis of intelligence and information, and development of 

policies, plans, procedures, mutual aid agreements, strategies, and other 

publications that comply with relevant laws, regulations, and guidance 

necessary to perform assigned missions and tasks. 

Organization and Leadership 

Individual teams, an overall organizational structure, and leadership at 

each level in the structure that comply with relevant laws, regulations, and 

guidance necessary to perform assigned missions and tasks. 

Personnel 

Paid and volunteer staff who meet relevant qualification and certification 

standards necessary to perform assigned missions and tasks. 

Equipment and Systems Major items of equipment, supplies, facilities, and systems that comply with 

relevant standards necessary to perform assigned missions and tasks. 

Training Content and methods of delivery that comply with relevant training 

standards necessary to perform assigned missions and tasks. 

Exercises, Evaluations, and 

Corrective Actions 

Exercises, self-assessments, peer-assessments, outside review, 

compliance monitoring, and actual major events that provide opportunities 

to demonstrate, evaluate, and improve the combined capability and 

interoperability of the other elements to perform assigned missions and 

tasks to standards necessary to achieve successful outcomes. 

Planning Assumptions and Planning Factors

The Capability Working Groups developed planning assumptions to fill in data or details not provided by 

the National Planning Scenarios. Some apply to any scenario; others are scenario-specific. They also 

developed specific planning factors, which indicate estimates of the quantity of the capability elements 

that address the demand for the capability defined by the scenario(s). 

Target Capability Preparedness Levels

Because major events can exceed the normal operating capacity of any single jurisdiction, a collaborative, 

national approach should be used to plan and prepare for major events. Target preparedness levels 

represent suggested levels of capability that may be needed to prevent, protect against, respond to, and 

recover from major events that demand a multi-level, multi-jurisdictional, multi-disciplinary response. 

Stakeholder working groups suggested Target Capability preparedness levels based on an analysis of the 

circumstances and consequences described in the National Planning Scenarios and the planning factors. 

They were instructed not to let their knowledge of current resources limit their thinking about 

requirements needed for major events and therefore these levels should be considered in the context of 

broader resource constraints and regional priorities. The Target Capability levels take into account 
10 Target Capabilities List

National Preparedness Levels for 

Capabilities 

 The Target Capability preparedness levels 

estimate what may be needed should major 

events exceed the capacity of any single 

jurisdiction. 

 Responsibility for meeting Target Capability 

preparedness levels can be shared across 

government and non-government entities. 

 Many of the resource estimates are not 

standing requirements – they would be 

assembled when and where they are 

needed. 

 Assessments of current capabilities against 

target levels can provide an indication of 

relative preparedness. 

adjustments to normal operating procedures that may need to be made during major events based on the 

circumstances. Such adjustments may include altering performance standards, drawing resources from 

many sources, making creative use of existing resources or relying on non-traditional resources (e.g., 

volunteers). 

Assignment of Roles in Achieving Target 

Capability Preparedness Levels 

The TCL identifies the role of governments, 

nongovernmental organizations, the private sector, 

and citizens in achieving the target levels. The 

assignment is based on the assumption that no 

single jurisdiction is likely to have all capabilities 

at sufficient levels to fully address its needs if 

faced with a major event. Some jurisdictions will 

possess the capability while others will access it 

through mutual aid, if needed. During a major 

event, all jurisdictions regardless of size may call 

on support from other available public and private 

sources appropriate to the scale of the event. 

Stakeholder working groups analyzed the 

elements of each capability by criticality, risk, and 

demand to make recommendations regarding the 

assignment of roles and responsibilities and the 

distribution of the capability across the country. 

The Target Capability Preparedness Levels represent ideal states of preparedness by capability for 

the purposes of a common planning and measurement framework. However, actual preparedness 

investment planning will combine this framework with both risk analysis as well as appropriate 

resource prioritization on a regional basis. Further, the assignments of roles and responsibilities 

are neither mandates nor statements of Federal policy. These portions of the TCL serve as a guide 

for planning and measuring appropriate levels of preparedness and regional coordination. 

Risk Factors Considered in Preparedness Planning 

Risk is a combination of credible threat, vulnerability, and consequence. Risk factors that affect capability 

need and placement include: population and population density, the presence of critical infrastructure and 

key resources, location in high terrorist threat or high risk natural disaster areas, and capabilities to 

prevent, protect against, or mitigate a threat. The relative importance of these risk factors in determining 

where or how much of a capability is needed varies by capability, as described below. 

Population and Population Density

Population and/or population density are determining factors for the assignment of many of the 

capabilities. For example, the target levels and distribution of capabilities such as WMD Response and 

Decontamination, Medical Surge, Mass Prophylaxis, and Citizen Evacuation and Shelter-In-Place 

capabilities are directly related to population. Population density is a key factor in determining the 

location of some capability resources, such as those for the Fire Incident Response Support and Explosive 

Device Response Operations capabilities. 
Target Capabilities List 11 

The type and amount of resources needed are generally different in high population, high-density areas 

than in less densely populated areas. For example, Type I Urban Search and Rescue (US&R) Task Forces, 

which can extricate victims from heavy construction, are assigned to urban areas with high-rise buildings. 

Collapse Search and Rescue Teams and Heavy Rescue Strike Teams and Squads may be more 

appropriate in less urban areas. However, the Type I USAR Task Forces, if located in large metropolitan 

areas, could be made available for deployment to jurisdictions in other geographic areas. 

Critical Infrastructure

Many jurisdictions or geographic areas across the country have critical infrastructure or key resources 

(CI/KR) that need to be considered in the determination of risk and distribution of capabilities. Because 

the capabilities in the current TCL are more focused on response activities and the presence of critical 

infrastructure and key resources are so widely distributed, this was less of a discriminating factor than 

population. 

Credible Threat

Capability-Based Planning allows the flexibility to adjust capabilities or target levels to account for 

elevations or reductions in credible threat. In addition, a jurisdiction may have capability requirements 

disproportionate to its population and critical infrastructure based on its terrorist threat level or its 

location. 

The TCL as a Tool for Expanded Regional Collaboration 

Expanded Regional Collaboration is identified as the first priority in the National Preparedness 

Guidelines in recognition that large scale events may require a shared response across jurisdictions, levels 

of government, and the public/private sectors depending on the scale of the event. States are encouraged 

to define geographic areas or regions, in consultation with local and tribal governments that share risk and 

responsibility for a major event. The expanded region facilitates the strengthening of relationships among 

participants, regional preparedness planning and operations support, and joint implementation of a 

capabilities-based approach. Regions may be intra- or inter-State geographic areas, as appropriate, based 

on shared risk and the need for joint planning and operations. Standardization of geographic regions will 

enable the States, working with local and tribal government and other partners, to coordinate preparedness 

activities more effectively, spread costs, pool resources, share risk, and thereby increase the overall return 

on investment. 

The Guidelines also encourage the establishment of multi-jurisdictional and multi-disciplinary working 

groups consisting of representatives from the entities located within the region. Through joint planning, 

the region will determine how best to achieve the capabilities, decide where the capabilities should be 

built and maintained, and establish priorities for the use of limited resources. The working groups will use 

the TCL as the basis to identify needed capabilities; assess current capability levels and gaps; identify, 

analyze, and choose options; update strategies and plans; and assess preparedness. 

The capability needs for a region may be informed by utilizing the Target Capabilities Preparedness 

Levels as a guide for the jurisdictions within the region. For example, based on its jurisdictions, a region 

may require access to one Type I Urban Search and Rescue Task Force, three Type II Collapse Search 

and Rescue Teams, and so forth. Through a collaborative, regional planning approach, the jurisdictions 

within the region will determine the most effective distribution and sharing of capability resources to 

ensure that they are available when and where they are needed and that all of the jurisdictions within the 

region have or have access to them as needed. 
12 Target Capabilities List

Capability elements to perform critical tasks are associated with performance measures and metrics. 

Some capabilities are universal, such as Planning or Communications. For other capabilities, the resource 

target levels are directly related to size of the population. Teams with different levels of capability (e.g., 

Level I, II, and III Bomb Squads) are assigned to appropriate levels of government or local jurisdictions 

based on demand for the capability. Specialized teams or resources are generally assigned to larger 

jurisdictions where there is a greater demand for the resource and where a team with sufficient trained 

personnel has the opportunity to maintain proficiency through calls-for-service. Teams with more limited 

capabilities that require less personnel and equipment are assigned to smaller jurisdictions where they 

provide an immediate response and can request assistance from specialized teams, if needed. 

The performance measures and metrics for each capability define how quickly and how effectively 

critical tasks should be performed. Criticality (i.e., how quickly a specific capability is needed to prevent 

an incident, save lives, prevent suffering, or reduce major damage) is an important consideration in 

determining where a capability is needed. For example, decontamination of victims of a chemical attack 

must typically take place within a certain period of time in order to save lives. Therefore, the Target 

Capability preparedness level for this capability does not vary by location, but would still vary by the 

likelihood of the event. For example, the likelihood of an event requiring decontamination is often 

significantly lower in a rural setting. Since the time to act is very short, the likelihood that a jurisdiction 

could have an attack or an accidental release of toxic chemicals should impact its decision to either 

develop a decontamination capability or secure timely access to it. For some other capabilities, 

performance requirements may vary across jurisdictions. For example, the ideal time for a bomb squad to 

arrive on-scene may be much shorter in a densely populated urban area than in a less populated area, 

where evacuation of an area may be the initial response. 

Using the Target Capabilities List 

The Target Capabilities List should be viewed as a reference document or guide to preparedness. It 

should not serve as a prescription for program requirements or resource commitments. Most users will 

not use the TCL document directly and/or may only use one or a subset of capabilities that are relevant to 

them. They will use those portions of the TCL that are relevant to them or to their specific application 

through the TCL implementation tools. For example, the Homeland Security Exercise and Evaluation 

Program (HSEEP) uses the TCL as the basis for designing, conducting, and evaluating exercises. HSEEP 

pulls from the performance tasks and measures section of the capabilities. Through the exercise design 

process, the planners determine which of the capabilities to test during the exercise. A single exercise 

would not attempt to address all the capabilities. 

The National Preparedness Guidelines and the Target Capabilities List provide the framework for 

preparedness and support the implementation of the Preparedness Cycle. As illustrated below, the cycle 

takes the user through a series of preparedness activities from conducting risk and capabilities 

assessments, strategy development, planning, identification and filling of resources gaps, training, 

exercises, and implementation of corrective actions. 

Various implementation tools are being developed from the TCL to help decision-makers and managers at 

all levels to define their preparedness needs, build needed capabilities, and assess levels of preparedness. 

In addition, DHS is developing a Guide to Using the Target Capabilities List: A Framework for 

Preparedness that will provide additional guidance on how to use the TCL throughout the steps in the 

preparedness cycle. 
Target Capabilities List 13 

Preparedness Cycle

Conduct Capabilities Assessment

Develop Strategy

Identify/Purchase 

Equipment

Develop Multi-year 

Training and Exercise 

Plan and Schedule

Conduct Risk Assessment

Plan and Resource Programs

Conduct Training

Conduct Exercises to 

Validate Training and 

Plans

Assign Corrective Actions 

resulting from Exercise 

Evaluation and Improvement 

Plans

Track/Implement 

Corrective Actions

Update Capabilities Assessment/ 

Strategy/Multi-year Plans

Risk Assessment

The determination of risk includes identification and characterization of threats and hazards, their 

consequences, and our vulnerabilities. While each is important for capabilities-based planning and 

national preparedness, determinations of vulnerability are important since they include not only exposure 

and sensitivity, but resilience. Resilience is key since it refers to our coping capacity to absorb events, 

adapt, and respond to and recover from its effects. 

The completion of a risk assessment, the first step in the preparedness cycle, helps us understand the types 

of threats and hazards we face. The National Planning Scenarios help us define the range and scope of 

incidents for which we must prepare. They were used in the development of the capabilities to define the 

critical tasks, the measures and metrics, and the resources to perform the tasks to the desired level of 

performance. The TCL is designed to provide the nation with the network of flexible and adaptive 

capabilities across the country to prevent, protect against, respond to, and recover from incidents similar 

to those described in the National Planning Scenarios or other scenarios. Planners and officials at all 

levels will assess and determine their greatest risks within this framework to inform planning efforts and 

to establish priorities for addressing resource gaps, training, and exercises. 

Preparedness Planning

The President called for a Nationwide Plan Review that assessed the status of catastrophic planning for 

States and 75 of the Nation’s largest urban areas. It showed that the current status of plans and planning 
14 Target Capabilities List

is not adequate for the 21st century homeland security challenges. The report identified the need for a 

significant increase in collaboration, plan specificity, and resource management. 

The Nationwide Plan Review Report concluded that: 

• Planning products, processes, tools, and technologies should be developed to facilitate a common 

nationwide approach to catastrophic planning. 

• Critical tasks, target capabilities, and associated performance measures, such as those identified in the 

National Preparedness Guidelines should serve as the common reference system 

• Regional planning capabilities, processes, and resources should be strengthened in accordance with 

the National Preparedness Guidelines’ national priorities to expand regional collaboration and 

strengthen Planning and Citizen Preparedness Capabilities. 

The TCL includes a Planning Capability designed to establish and maintain a capacity at all levels to 

develop, update, and test preparedness plans. In addition, each capability contains both preparedness and 

performance tasks and measures that support the capability outcome and serve as a guide for preparedness 

planning. Further, Capabilities-Based Planning accounts for uncertainties, by developing capabilities 

suitable for a wide range of threats and hazards, when limited resources necessitate prioritization and 

choice among preparedness efforts. 

As entities at all levels of government, nongovernmental organizations, and the private sector review and 

enhance their plans, procedures, and protocols, the TCL provides a valuable reference to ensure that they 

have identified the tasks and resources and built the capabilities necessary to assure preparedness. The 

TCL can be used as a guide to identify roles and responsibilities and the need for mutual aid agreements 

to facilitate the sharing of capabilities across the region to provide all jurisdictions with access to needed 

capabilities. 

Strategy Development and Investment Justifications

States and urban areas have developed Homeland Security Strategies that provide a blueprint for 

comprehensive, enterprise-wide planning for homeland security efforts. They also provide a strategic 

plan for the use of Federal, State, local, and private resources to prevent, protect against, respond to, and 

recover from terrorist threats or attacks, major disasters, and other emergencies. In the summer of 2005, 

States and urban areas updated their strategies to align their preparedness efforts to the National 

Preparedness Guidelines, the National Priorities established in the Guidelines, and the Target Capabilities. 

Beginning with FY2006 applications for the State and local Homeland Security Grant Program (HSGP), 

investment justifications must demonstrate a linkage to Target Capabilities as well as outline the 

anticipated impact, including how State and local capabilities will be enhanced. 

Guidance 

Grant guidance and application kits from DHS and other Federal agencies inform strategy development 

and investment justifications. 

Assessment of Preparedness

The TCL provides a basis for assessing preparedness. The vision for the National Preparedness 

Guidelines is for a “Nation Prepared”. The National Planning Scenarios and the TCL provide a common 

perspective to conduct assessments to determine levels of readiness to perform the critical tasks and to 

identify and address any gaps or deficiencies. 

Assessment information should inform decisions at all levels. Policymakers need regular reports on the 

status of the capabilities for which they have responsibility to help them make better resource and 
Target Capabilities List 15 

investment decisions and to establish priorities. Emergency managers and planners require assessment 

information to help them address deficiencies, to identify alternative sources of capabilities (e.g., from 

mutual aid or contracts with the private sector), and to identify which capabilities should be tested 

through exercises. 

Assessment information is also needed by agencies or organizations that are expected to supplement or 

provide capabilities during an incident. Assessments also provide the provider agencies/organization with 

information required to set priorities, make investment decisions, and position capabilities or resources, if 

needed. 

Tools

A Capabilities Assessment Pilot is being implemented by DHS to test and validate the effectiveness of the 

preparedness and performance measures and metrics in the TCL as a means of measuring preparedness. 

The pilot assessment consists of three stages: self assessment, on-site validation, and post assessment 

report and improvement. It looks at preparedness from a regional perspective, with a focus on regional 

planning, coordination, and sharing of capabilities. 

The National Preparedness System, described under planning, is being designed as a comprehensive 

planning and assessment tool that can be used assess capabilities across all levels of government. It will 

enable users to conduct a self assessment based on the TCL that takes into account validation information 

from exercises, on-site assessment validations, peer reviews, and monitoring. 

Focus Training on Ability to Perform Critical Tasks

Training programs should be reviewed and modified as appropriate to ensure that they prepare 

participants to perform the critical tasks defined by the TCL to the proficiency level required to achieve 

the capability outcomes. 

States should develop Multi-year Training and Exercise Plans to build and assess capabilities. Each State 

should use a combination of information from capabilities assessments that identify gaps, the State 

Strategy that provides a plan to increase preparedness, and form improvement plans from completed 

exercises to develop the Multi-year Training and Exercise Plan. The plans should map out the training 

courses and exercises that will be conducted over the next 2-3 years. Subsequent training should focus on 

building the knowledge, skills, and abilities to perform the critical tasks and should be completed prior to 

being tested through exercises. 

Test Capabilities through Exercises

Exercises provide a means to test and validate preparedness. The Homeland Security Exercise and 

Evaluation Program (HSEEP) is designed to encourage a common exercise design, performance, and 

evaluation methodology across all levels of government and the private sector. HSEEP exercises are 

designed and evaluated to demonstrate capability levels through the assessment of performance of critical 

tasks and achievement of outcomes, as defined by the TCL. 

The exercise design process includes the following steps: 

• Identify priority capabilities for improvement through exercises 

• Select corresponding tasks for assessment 

• Define exercise objectives based on capabilities, tasks, and jurisdiction needs 

• Create a jurisdiction-specific scenario formulated specifically to meet exercise objectives 
16 Target Capabilities List

HSEEP includes common evaluation tools based on the critical tasks and measures from the TCL. The 

purpose of the evaluation approach is to encourage consistency and quality of data collection and 

information, support qualitative and quantitative exercise analysis and assessment, and increase usability. 

HSEEP also defines a standardized after action report (AAR) and improvement plan format. The AAR 

provides the assessment of performance of the tasks related to priority capabilities. The improvement 

plan is developed by the exercising entities and outlines specific actions and a timeline to enhance the 

capabilities. 

Tools and Guidance

The HSEEP policy and doctrine is organized into several volumes: 

• HSEEP Volume I: HSEEP Overview and Exercise Program Management provides guidance for 

building and maintaining an effective exercise program and summarizes the planning and evaluation 

process described in further detail in Volumes II through V. 

• HSEEP Volume II: Exercise Planning and Conduct helps planners outline a standardized 

foundation, design, development, and conduct process adaptable to any type of exercise. 

• HSEEP Volume III: Exercise Evaluation and Improvement Planning offers proven methodology 

for evaluating and documenting exercises and implementing an improvement plan. 

• HSEEP Volume IV: Sample Exercise Documents and Formats provides sample exercise materials 

referenced in HSEEP Volumes I, II, III, and V. 

• HSEEP Volume V: Prevention Exercises contains guidance consistent with the HSEEP model to 

assist jurisdictions in designing and evaluating exercises that test pre-incident capabilities such as 

intelligence analysis and information sharing. 

Going Forward – Refinements to the TCL 

The TCL represents a major step forward in defining preparedness and capabilities. It was developed 

through the hard work of many hundreds of stakeholders from all disciplines, levels of government, 

nongovernmental organizations, and the private sector. They were asked to set aside their jurisdictional 

or agency perspective and define capabilities for the Nation and the role that every jurisdiction, State, 

Federal agency, organization, and citizen will play in a shared response. Where standards and guidelines 

exist, they were used, but standards and guidelines do not exist for many of the capabilities. Therefore, 

much of the information in the TCL is based on the best judgment and expertise of those who were 

involved in the working groups and those who reviewed and commented on it. 

The TCL is a living document. It was designed to be enhanced and refined over time as we gain lessons 

from its application or real world experience. The best way to do that is to start using it and to identify 

and document where it needs to be changed. For example, are there critical tasks that need to be added or 

refined? Are the measures and metrics the best measures of performance? Do they need to be modified 

for different sized jurisdictions or for different scenarios? Are the capability resources adequate to 

perform the critical tasks to the appropriate level of performance? Will the targets and assignment of 

responsibility for building and maintaining the capabilities provide the network of capabilities that will be 

available when and where they are needed? 

If you see something in the TCL that does not work for your jurisdiction or agency, help to change it. Get 

involved. Submit information on what does not work with a recommendation on how the TCL should be 

changed or enhanced. Recommendations for changes to the TCL are welcome and will be reviewed and 

integrated into future versions of the TCL, as appropriate. A change request form is posted on 
Target Capabilities List 17 

www.LLIS.gov. A Nation Prepared is a goal that can only be achieved over time and with the 

involvement of those who work every day to secure the homeland from all threats, natural and man-made. 
18 Target Capabilities List

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Target Capabilities List 19 

Common Target 

Capabilities 
20 Target Capabilities List

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Target Capabilities List 21 

COMMON MISSION: PLANNING 

PLANNING 

Capability Definition 

Planning is the mechanism through which Federal, State, local and tribal governments, non-governmental 

organizations (NGOs), and the private sector develop, validate, and maintain plans, policies, and 

procedures describing how they will prioritize, coordinate, manage, and support personnel, information, 

equipment, and resources to prevent, protect and mitigate against, respond to, and recover from 

Catastrophic events. Preparedness plans are drafted by a litany of organizations, agencies, and/or 

departments at all levels of government and within the private sector. Preparedness plans are not limited 

to those plans drafted by emergency management planners. The planning capability sets forth many of the 

activities and tasks undertaken by an Emergency Management planner when drafting (or updating) 

emergency management (preparedness) plans. 

Unlike the other target capabilities, the attributes of planning are difficult to quantify, as individual 

planners may have considerably varied education and experience and still produce plans that lead to the 

successful implementation of a target capability. The focus of the Planning Capability is on successful 

achievement of a plan’s concept of operations using target capabilities and not the ability to plan as an 

end unto itself. Plans should be updated following major incidents and exercises to include lessons 

learned. The plans should form the basis of training and should be exercised periodically to ensure that 

responders are familiar with the plan and able to execute their assigned role. Thus, it is essential that plans 

reflect the preparedness cycle of plan, train, exercise, and incorporation of after action reviews and 

lessons learned. 

Outcome 

Plans incorporate an accurate threat analysis and risk assessment and ensure that capabilities required to 

prevent, protect against, respond to, and recover from all-hazards events are available when and where 

they are needed. Plans are vertically and horizontally integrated with appropriate departments, agencies, 

and jurisdictions. Where appropriate, emergency plans incorporate a mechanism for requesting State and 

Federal assistance and include a clearly delineated process for seeking and requesting assistance from 

appropriate agency(ies). 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

Planning supports all Emergency Support Functions (ESFs) and Annexes (support and incident) at the 

Federal, State, local, territorial, and tribal levels. 

Preparedness Tasks and Measures/Metrics 

Activity: Conduct Strategic Planning

Definition: The art and science of developing and employing instruments of national and 

State/territorial power (information, technology, economic, intelligence, and military) in a 

synchronized and integrated fashion to achieve the objectives of the National Strategy for 

Homeland Security, the National Preparedness Guidelines, the NRP, and supporting 

State/territorial and local strategic direction and guidance. Strategic planning uses gap analysis 

to develop programmatic priorities that address the mission requirements, goals, objectives, 

milestones, and resources to ensure interoperable and integrated synchronization throughout all 
22 Target Capabilities List

COMMON MISSION: PLANNING 

levels of government and nongovernmental organizations for all hazards, incident-related 

prevent, protect, respond, and recover activities. 

Critical Tasks

ComA 1.1.3 Develop regional and State/local Strategic Plans 

ComA 2.9.2 Identify, develop, and convene local preparedness planning organization(s) 

ComA 2.2 Define and implement the responsibilities for standardized emergency management system 

planning 

ComA 2.2.2 Coordinate and integrate all response and recovery agencies/organizations in the planning 

process 

ComA 2.2.3 Coordinate and integrate nongovernmental organizations and the private sector entities into the 

emergency management planning and decision-making processes 

ComA 1.3.4 Conduct gap analysis to identify training, and exercise needs and to facilitate investment and 

personnel decisions 

ComA 1 Develop scalable strategic plans, based on normal response plans, to prevent, protect against, 

respond to, and recover from natural and man-made disasters, as well as acts of terrorism 

ComA 1.2 Establish the National Incident Management System 

ComA 1.3 Establish and maintain a national preparedness assessment and reporting system 

ComA 1.3.2 

Develop a preparedness planning and review cycle that encompasses planning, training, 

exercising, evaluation, and the incorporation of after action reviews (AAR) and lessons learned 

(LL) 

ComA 1.3.2.1 Track implementation of after action reviews and lessons learned for improvement and 

corrective actions that enhance exercises and inform subsequent corrective training efforts 

Preparedness Measures Metrics

Regional and State/local strategic plans include, but are not limited to, the national mission 

areas of prevent, protect against, respond to, and recover from man-made and natural disasters 

and acts of terrorism 

Yes/No 

The strategic plan defines the vision, mission, goals, and objectives of the jurisdiction Yes/No 

Strategic plan addresses protection against, response to, and recovery from natural and manmade disasters as well as acts of terrorism Yes/No 

Planners are trained and equipped Yes/No 

Frequency with which plans are reviewed and updated in accordance with Federal, State, and 

local regulations and policies 

Every 12 months 

Improvement actions from after action reports (AARs) and lessons learned are implemented 

according to the scale of disaster(s) and/or through defined Federal mandate for schedule for 

completion 

Yes/No 

Activity: Develop/Revise Operational Plans 

Definition: Use priorities identified in the Strategic Planning process, as well as any 

recommendations/lessons learned, to guide the development of appropriate operational plans, 

such as emergency operations plans (EOPs), comprehensive emergency management plans 
Target Capabilities List 23 

COMMON MISSION: PLANNING 

(CEMPs), recovery plans, hazard identification risk analysis (HIRA) plans, mitigation plans, and 

continuity of operations (COOP) plans. Operational plans identify the organizations and 

resources required to execute the four functional mission areas of prevent, prepare, respond, 

and recover.

Critical Tasks

ComA 2.1 Conduct a hazard analysis to identify threats, vulnerabilities, and consequences to be addressed 

by emergency management and/or preparedness plans 

ComA 2.1.3 Develop and maintain Comprehensive Emergency Management Plans (CEMPs) or similar 

emergency management/preparedness plans 

ComA 2.4 

Develop emergency operations/response plans that describe how personnel, equipment, and 

other governmental, nongovernmental, and private resources will support and sustain incident 

management requirements 

ComA 2.5 Develop and maintain Emergency Operations Plan (EOP) annexes for hazard specific response 

to include natural and man-made disasters as well as acts of terrorism, and other hazards 

ComA 2.3 Develop and execute mutual aid assistance agreements and compacts 

ComA 2.7 

Develop National, State/Local, and Non-Governmental Continuity Plans. All-level Continuity 

Plans will describe how personnel, equipment, and other governmental, non-governmental, and 

private resources will support the sustainment and/or reestablishment of essential functions. 

Plans shall identify the critical and time sensitive applications, processes, and functions, to be 

recovered and continued, following an emergency or disaster, as well as the personnel and 

procedures necessary to do so, such as business impact analysis, business continuity 

management, vital records preservation and alternate operating facilities 

ComA 2.3.3 Develop regional coordination plans or activities that involve all Federal, State, local, territorial, 

tribal, NGO, and private stakeholders 

Preparedness Measures Metric 

Continuity of Operation (COOP) plans describe how personnel, equipment, and other resources 

support sustained response/survivability and recovery for all sectors 

Yes/No 

Continuity of Government (COG) plans describe the continued functioning of constitutional 

government under all circumstances 

Yes/No 

Emergency response plans are consistent with the National Response Plan (NRP) and National 

Incident Management System (NIMS) 

Yes/No 

Mutual aid assistance agreements are in place with contiguous jurisdictions Yes/No 

Preparedness plans are consistent with NRP and NIMS Yes/No 

Aid assistance agreements or contracts with private organizations are in place Yes/No 

Pre-identified mechanisms to request assistance from counties, the State, or the Federal 

Government are in place 

Yes/No 

Emergency response plans address substantial loss of public safety response capabilities during 

catastrophic events (to include special needs populations and people with disabilities) 

Yes/No 

Frequency with which plans are reviewed and updated to ensure compliance with governmental 

regulations and policies (Review requirements are intended to apply only when no pre-existing 

review cycle has been established in Federal, State, or local requirements)

Every 12 

months 
24 Target Capabilities List

COMMON MISSION: PLANNING 

Activity: Validate Plans

Definition: Evaluate operational plans through exercising, training, and real world events, and 

use after-action reports (AARs) to support validation and revision of operational and strategic 

plans 

Critical Tasks

ComA 3.6 Ensure that trained, exercised, and equipped personnel are available to execute all planning 

requirements as determined by applicable standards of proficiency 

ComA 3.1 Develop exercises/drills of sufficient intensity to challenge management and operations and to 

test the knowledge, skills, and abilities of individuals and organizations 

ComA 3.2 Develop integrated national, regional, and State/local level exercises/drills 

ComA 3.3 Develop regional and State/local level exercises of sufficient intensity to challenge management 

and operations and test knowledge, skill and abilities of individuals and organizations 

ComA 3.4 Develop lessons learned reports and procedures based on real world events and exercises 

ComA 3.5 Develop, review, evaluate and update emergency management and/or preparedness plans based 

on lessons learned and/or AARs to address problems/gaps and needed corrective actions 

Preparedness Measures Metric

Plans are exercised and/or evaluated according to Homeland Security Exercise and 

Evaluation Program (HSEEP) requirements 

Yes/No 

Record of deficiencies is generated from plan review process within consensual or 

mandated predetermined days for review 

Yes/No 

Time in which improvement plans to address deficiencies are generated Within 30 days from 

development of record of 

deficiencies 

Frequency with which improvement plan actions are monitored for implementation Every 3 months 

Linked Capabilities 

Linked Capability Relationship 

All Prevent Capabilities Planning provides all Prevent capabilities with a consistent foundation upon which the 

other capability-specific plans, procedures, training, and exercise programs will be 

developed 

All Protect Capabilities Planning provides all Protect capabilities with a consistent foundation upon which the 

other capability-specific plans, procedures, training, and exercise programs will be 

developed 

All Respond Capabilities Planning provides all Respond capabilities with a consistent foundation upon which the 

other capability-specific plans, procedures, training, and exercise programs will be 

developed 

All Recover Capabilities Planning provides all Recover capabilities with a consistent foundation upon which the 

other capability-specific plans, procedures, training, and exercise programs will be 

developed 
Target Capabilities List 25 

COMMON MISSION: PLANNING 

Validate Plans

Develop/Revise 

Operational Plans

Conduct Strategic 

Planning

Completed strategy with priorities 

(training, equipment, operational 

planning)

Completed plan for that cycle

Input lessons 

learned and 

improvement plan

Provide inputs into the 

planning process 

(lessons learned/gap 

analysis/improvement 

plan)

Provide planning framework All Prevent 

Capabilities

Linked 

Capabilities

Planning Capability

Relationship

Capability Activity Process Flow

All Protect 

Capabilities

All Respond 

Capabilities

All Recover 

Capabilities

Provide planning framework

Provide planning framework

Provide planning framework
26 Target Capabilities List

COMMON MISSION: PLANNING 

Resource Element Description

Resource 

Elements

Components and Description

Planners Planners dedicated to developing and maintaining homeland security, emergency 

management, and/or all-hazards plans. Setting qualifications for planner should be 

established by the jurisdiction. 

 Computer and planning 

software tools 

Includes computers with sufficient software tools to accomplish the specified tasks, such 

as geographic information system tools, decision modeling programs, relational 

databases, hazard modeling programs (i.e., computer-aided management of emergency 

operations [CAMEO], multihazard loss estimation methodology [HAZUS]) and 

consequence modeling tools. 

Required training 

program 

Training may include but is not limited to courses offered through Federal, State, local 

and private organizations, such as Federal Emergency Management Agency (FEMA), 

Emergency Management Institute (EMI), Office for Domestic Preparedness (ODP) 

Training Consortium, State training academies, and colleges and universities. 

Completion of one or more of the above may meet minimum requirements. 

Planning Assumptions 

 This capability applies to a wide range of incidents and emergencies including terrorist attacks, other 

manmade disasters, and natural disasters. It is intended to address deliberate planning coordination. 

 A catastrophic incident will present a dynamic response and recovery environment requiring that 

response plans and strategies be flexible enough to effectively address emerging or transforming 

needs and requirements. 

 A “dedicated planner” is one full-time equivalent (FTE) person whose work is focused exclusively 

(“dedicated”) on the development and maintenance of homeland security, emergency management, 

and/or all-hazards plans. 

 The human or physical resources identified in the response strategy may not be available for 24-48 

hours of a catastrophic event due to jurisdiction-specific considerations of resource management in 

times of crisis(es) (e.g., resource needs at their home institutions, family requirements, overextension, limits established in MOAs, etc.). 

 A catastrophic incident may have significant international dimensions. These include potential 

impacts on the health and welfare of border community populations, cross-border trade, transit, law 

enforcement coordination, and other areas. 

 Planning occurs with respect to the incident (strategic, operational, and tactical/incident) and 

according to the appropriate jurisdictional level (Federal, State, local, tribal). 

 All operational personnel are trained on all appropriate plans and their role within those plans. 

 Plans are validated through review, testing and exercises. 

 Plans are written in accordance with NIMS. 

 Planners have knowledge, experience, and/or training in subject areas. 

 The planning process includes hazard analysis and risk assessment. 

 The UTL is a menu of tasks that can be used in developing plans-to-task development. 
Target Capabilities List 27 

COMMON MISSION: PLANNING 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Planner Personnel 1 Per every 250k 

population in each 

State 

State All Activities 

Planner Personnel 2 Per territory State All Activities 

Planner Personnel 2 Per UASI city and 

Washington, DC 

Local All Activities 

Required training 

program 

Training 1 Per planner Federal/State/ 

Local 

All Activities 

Computer and 

planning software 

tools 

Equipment 1 Per planner Federal/State/ 

Local 

All Activities 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. Biological Incident Annex. In the National Response Plan. U.S. Department of Homeland Security. December 

2004. 

4. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/xlibrary/assets/NIMS-90-web.pdf. 

5. State and Local Guide 101: Guide for All-Hazard Operations Planning. Federal Emergency Management 

Agency. April 2001. http://www.fema.gov/plan/gaheop.shtm 

6. NFPA 1600—Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa. 

7. Resource Definitions: 120 Resources. National Mutual Aid and Resource Management Initiative, U.S. 

Department of Homeland Security, Federal Emergency Management Agency. September 2004. 

http://www.nimsonline.com/docs/Resource_Typing_Definitions_II.pdf. 

8. Emergency Management Accreditation Program (EMAP) Standards. September 2003. 

http://www.emaponline.org/index.cfm 

9. Hazardous Material Emergency Planning Guide. National Response Team. NRT–1. Updated 2001. 

http://www.nrt.org/Production/NRT/NRTWeb.nsf/AllAttachmentsByTitle/SA-27NRT1Update/$File/NRT-1 

update.pdf?OpenElement. 

10. Federal Executive Branch Continuity of Operations (FPC–65). June 2004. 

http://www.fema.gov/txt/government/coop/fpc65_0604.txt. 

11. Enduring Constitutional Government and Continuity of Government Operations (PDD–67). October 1998. 

http://www.emergency-management.net/laws_pdd67.htm 
28 Target Capabilities List

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Target Capabilities List 29 

COMMON MISSION: COMMUNICATIONS 

COMMUNICATIONS 

Capability Definition 

Communications is the fundamental capability within disciplines and jurisdictions that practitioners need 

to perform the most routine and basic elements of their job functions. Agencies must be operable, 

meaning they must have sufficient wireless communications to meet their everyday internal and 

emergency communication requirements before they place value on being interoperable, i.e., able to 

work with other agencies. 

Communications interoperability is the ability of public safety agencies (police, fire, EMS) and service 

agencies (public works, transportation, hospitals, etc.) to talk within and across agencies and jurisdictions 

via radio and associated communications systems, exchanging voice, data and/or video with one another 

on demand, in real time, when needed, and when authorized. It is essential that public safety has the intraagency operability it needs, and that it builds its systems toward interoperability. 

Outcome 

A continuous flow of critical information is maintained as needed among multi-jurisdictional and multidisciplinary emergency responders, command posts, agencies, and the governmental officials for the 

duration of the emergency response operation in compliance with National Incident Management System 

(NIMS). In order to accomplish that, the jurisdiction has a continuity of operations plan for public safety 

communications including the consideration of critical components, networks, support systems, 

personnel, and an appropriate level of redundant communications systems in the event of an emergency. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

Primary: ESF#2: Communications 

Communications supports all ESFs at the Federal, State, local, and tribal levels. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

ComC 1 

Develop communication plans, policies, procedures, and systems that support required 

communications with all Federal, regional, State, local, and tribal governments and agencies as 

well as voluntary agencies 

ComC 1.2.1 Develop procedures for the exchange of voice and data with Federal, regional, State, local, and 

tribal agencies, as well as voluntary agencies 

ComC 1.6 Develop supplemental and back-up communications and information technology plans, 

procedures, and systems 

ComC 1.6.2 Identify emergency communications and data requirements for each stakeholder 

ComC 1.1.1 Develop a continuous improvement plan that enriches interoperable communications to provide 

advanced customer service, reliability, and operational effectiveness 
30 Target Capabilities List

COMMON MISSION: COMMUNICATIONS 

ComC 1.6.5 

Complete an assessment of standard communication capabilities for the Public Safety Answering 

Points (PSAPs) and Public Safety Communication Centers to ensure an appropriate Continuity of 

Operations Plan (COOP) is in place for public safety and service agencies’ communications 

ComC 1.7.3 Develop plans to provide telecommunication and information technology support to Federal, 

regional, State, tribal and local officials and the private sector 

ComC 1.4 Design reliable, redundant, and robust communications systems for daily operations capable of 

quickly reconstituting normal operations in the event of disruption or destruction 

ComC 1.7.2 Coordinate procurement and placement of technology communication systems based on a gap 

analysis of requirements versus existing capabilities 

ComC 1.5 Develop information systems protection procedures 

ComC 1.5.1 Develop and maintain automated credential verification systems to ensure proper credentialing 

for controlled access areas 

ComC 1.3 Establish and maintain information systems across response entities 

ComC 1.3.1 Develop interoperable telecommunication and Information Technology systems across 

governmental departments and agencies 

Preparedness Measures Metrics

Operable communications systems that are supported by redundancy and diversity, that 

provide service across jurisdictions, and that meet everyday internal agency requirements, are 

in place 

Yes/No 

Communication systems support on-demand, real-time interoperable voice and data 

communication 

Yes/No 

Plans and procedures are in place to ensure appropriate levels of planning and building public 

safety communication systems prior to an incident 

Yes/No 

Plans and procedures are in place to ensure appropriate levels of upgrading/enhancing public 

safety communication systems and equipment prior to an incident 

Yes/No 

Plans and procedures are in place to ensure appropriate levels of replacing public safety 

communication systems and equipment prior to an incident 

Yes/No 

Plans and procedures are in place to ensure appropriate levels of maintaining public safety 

communication systems and equipment prior to an incident 

Yes/No 

Plans and procedures are in place to ensure appropriate levels of managing public safety 

communication projects prior to an incident 

Yes/No 

Assessment of standard communication capabilities for Public Safety Answering Points 

(PSAP)/Public Safety Communication Centers and Emergency Operations Centers (EOC) to 

ensure appropriate Continuity of Operations Plan (COOP) for public safety and service 

agencies’ communications has been completed 

Yes/No 

Communications Continuity of Operations Plan (COOP) that outlines back-up systems 

available at State and local levels, including protocols for use of systems, is in place 

Yes/No 

Communications standard operating procedures (SOPs) that conform to NIMS are in place 

and are used in routine multiple jurisdictional responses 

Yes/No 

A multi-agency and multi-jurisdictional governance structure to improve communications 

interoperability planning and coordination has been established 

Yes/No 

Formal interoperable communications agreements have been established through the 

governance structure 

Yes/No 
Target Capabilities List 31 

COMMON MISSION: COMMUNICATIONS 

Interoperability communications plans have been developed through governance structure and 

include all relevant agencies for data and voice communications. 

Yes/No 

Interoperability policies and procedures to allow information sharing between levels of 

government and Federal installations involved in incident, as necessary and as possible, are in 

place 

Yes/No 

Redundant and diverse interoperable communication systems are available Yes/No 

Plans to coordinate the procurement of communications assets to ensure interoperability are in 

place 

Yes/No 

Plans to acquire and influence sustained interoperability and systems maintenance funding 

have been developed 

Yes/No 

Plans include a procedure to return communications back to normal operations after each 

significant incident 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs

Critical Tasks

ComC 2.1.1 Develop and implement awareness training programs for response communications 

ComC 2.1.2 

Develop exercises/drills of sufficient intensity to challenge management and operations and to 

test the knowledge, skills, and abilities of individuals and organizations for response 

communications 

ComC 2.2.1 Develop and conduct training to improve all-hazard incident management capability for response 

communications 

ComC 2.2.2 Conduct an after action review to determine strengths and shortfalls and develop a corrective 

plan accordingly for response communications 

Preparedness Measures Metric

Communications-specific tabletop exercises are conducted with multi-jurisdictional and 

multi-agency operations, technical, and dispatch participants 

Yes/No 

Communications-specific operational exercises with multi-jurisdictional and multi-agency 

participants are conducted 

Yes/No 

Operational exercises include an observer specifically to monitor the communications piece to 

ensure there is adequate information to provide in the After Action Report (AAR) to correct 

any communication problems that occurred for the future 

Yes/No 

Frequency with which plans, procedures, and use of all operable communications systems are 

tested and/or exercised in large and complex exercises 

Every 12 months 

All personnel including non traditional stakeholders have been trained to operate 

communications systems according to their incident role Yes/No 

Frequency with plans, procedures, and use of all interoperable communications equipment are 

reviewed tested and/or exercised 

Every 12 months 

Interoperability systems are used in pertinent everyday activities and emergency incidents to 

ensure familiarity with system and cooperation 

Yes/No 
32 Target Capabilities List

COMMON MISSION: COMMUNICATIONS 

Performance Tasks and Measures/Metrics 

Activity: Alert and Dispatch 

Definition: In response to an alert, make notification and provide communications management 

until the Incident Command (IC), Emergency Operations Center (EOC), and Emergency 

Management Agency (EMA) are stood-up 

Critical Tasks

ComC 4.2 Implement incident communications interoperability plans and protocols 

ComC 4.2.1 Communicate incident response information 

ComC 4.2.1.1 Use established common response communications language (i.e., plain English) to ensure 

information dissemination is timely, clear, acknowledged, and understood by all receivers 

ComC 3.4 Request external resources using EMAC and other mutual aid/assistance processes (inter- and 

intra-State) 

ComC 3.5 Initiate documentation process of required forms and follow-up notations 

ComC 4.2.3 Report and document the incident by completing and submitting required forms, reports, 

documentation, and follow-up notations on immediate response communications 

ComC 4.1.1 Ensure that all critical communications networks are functioning 

ComC 4.3 Implement procedures to protect information facility and communication network systems 

Performance Measures Metric

Time in which immediate dispatch information is provided to primary first responders 

during regular operations 

Within 60 seconds from 

call classification by 

dispatch 

Time in which Emergency Operations Centers (EOCs), first responders, and special 

resources acknowledge receipt and understanding of radio communications 

Within 30 seconds from 

the end of transmission 

Percent of communications sent and received that are completely understood without 

ambiguity by the sender or the intended receiver 

90% 

Frequency with which communications back-up is provided (per COOP and/or 

incident plan process) during emergencies when the conventional mode of 

communications fail or become overloaded to assure continued service amidst incident 

Continuous 

Time in which alternate communications and/or dispatch center are staffed in the event 

of a catastrophic loss of the primary site 

Within 1 hour from the 

loss of primary site 

COOP is activated based upon nature and disruption of new failure Yes/No 

Recovery time per classification of failure is realistic and alternative recovery 

processes are in place for incident support 

Yes/No 

Percent (above normal peak traffic) of technical surge and back-up capabilities within 

communications and/or dispatch centers to process incoming calls effectively with the 

loss of any one communication or dispatch centers (assumes surge staffing will be 

available in 30 minutes) 

200% 

COOP allows for maximum response per incident type and duration Yes/No 
Target Capabilities List 33 

COMMON MISSION: COMMUNICATIONS 

Activity: Provide Incident Command/First Responder/First Receiver/Interoperable 

Communications 

Definition: In response to notification of an incident, go to the scene to provide and receive 

interoperable voice data and video communications 

Critical Tasks

ComC 4.2 Implement incident communications interoperability plans and protocols 

ComC 4.2.1 Communicate incident response information 

ComC 4.2.2 Coordinate incident site communications to be consistent with the National Incident 

Management System (NIMS) framework 

ComC 4.2.1.1 Use established common response communications language (i.e., plain English) to ensure 

information dissemination is timely, clear, acknowledged, and understood by all receivers 

ComC 4.2.3 Report and document the incident by completing and submitting required forms, reports, 

documentation, and follow-up notations on immediate response communications 

ComC 4.1.1 Ensure that all critical communications networks are functioning 

ComC 4.1 Establish and maintain response communications systems on-site 

ComC 4.3 Implement procedures to protect information facility and communication network systems 

Performance Measures Metric

Frequency with which local first responders are provided with tactical communications 

with approved local delivery process specified to incident 

Continuous 

Frequency with which tactical communications are provided between local disciplines 

(i.e., law enforcement, fire, and EMS) and among local fire units operating in the disaster 

site with approved delivery process specific to incident 

Continuous 

Percent of communications sent and received that are completely understood without 

ambiguity by the sender or the intended receiver 

90% 

Frequency with which communications back-up is provided during emergencies when the 

conventional mode of communications fail or become overloaded 

Continuous 

COOP and/or Incident Action Plan process assures continued service amidst incident Yes/No 

Time in which tactical communications are provided for regional first responders 

responding to the disaster site is within parameters of interoperability plans, as approved 

by governance structure/body 

Yes/No 

Percent of mobile communications coverage provided in rural areas affected by disaster 95% 

Percent of street-level hand-held communications coverage provided in urban/suburban 

areas affected by disaster 

95% 

Percent of in-building hand-held communications coverage provided in central areas 

affected by disaster 

95% 

Tactical communications are provided for large regional “task forces” providing recovery 

assistance to disasters and other emergencies within parameters of interoperability plan, as 

approved by the governance structure/body 

Yes/No 
34 Target Capabilities List

COMMON MISSION: COMMUNICATIONS 

Activity: Provide Emergency Operations Center Communications Support 

Definition: Upon notification, initiate interoperable system operations, in addition to maintaining, 

managing, and assuring protection of the interoperable communications systems until the EOC is 

ordered deactivated 

Critical Tasks

ComC 4.2 Implement incident communications interoperability plans and protocols 

ComC 4.2.1 Communicate incident response information 

ComC 5.4.7 Inform staff and management of interoperable communications requirements 

ComC 5.4.5 Provide direction, information and/or support as appropriate to incident command (IC) or unified 

command (UC) and/or joint field office(s) 

ComC 5.3.1.2 Coordinate and provide telecommunications and information technology support to Federal, 

regional, State, tribal, and local officials and the private sector(s) 

ComC 5.2 Establish and ensure connectivity with EOC/MACC 

ComC 5.4 Coordinate communications policy and procedure across response entities 

ComC 4.1 Establish and maintain response communications systems on-site 

ComC 5.3 Establish and maintain interoperable information systems network within the EOC 

ComC 5.3.1.1 Coordinate placement of latest technology that is available to agencies participating in response 

ComC 5.3.3 Assure redundant communications circuits/channels are available for use 

ComC 4.1.1 Ensure that all critical communications networks are functioning 

ComC 4.2.1.1 Use established common response communications language (i.e., plain English) to ensure 

information dissemination is timely, clear, acknowledged, and understood by all receivers 

ComC 5.5 Maintain a common operating picture (COP) for real time sharing of information with all the 

participating entities to ensure all responder agencies are working from the same information 

ComC 4.2.3 Report and document the incident by completing and submitting required forms, reports, 

documentation, and follow-up notations on immediate response communications 

ComC 4.3 Implement procedures to protect information facility and communication network systems 

ComC 5.3.1.3 

Coordinate and open State communications support/channels to local and tribal government and 

the private-sector to assist in awareness, prevention, response, and recovery communications 

activities 

Performance Measures Metric 

Percent of communications sent and received that are completely understood without 

ambiguity by the sender or the intended receiver 

90% 

Frequency with which communications back-up is provided during emergencies when the 

conventional mode of communications fail or become overloaded 

Continuous 

COOP and/or Incident Action Plan process to assure continued service amidst incident is 

in place 

Yes/No 

Key officials are notified in the event of an incident using relevant tools and technologies 

(e.g., call down lists, SMS messages, etc.) 

Yes/No 
Target Capabilities List 35 

COMMON MISSION: COMMUNICATIONS 

Activity: Provide Federal Facilities, Task Force, and Recovery Assistance Interoperable 

Communications

Definition: In response to an alert, make notification and provide communications management 

until the Incident Command and EOC are stood-up

Critical Tasks

ComC 4.2 Implement incident communications interoperability plans and protocols 

ComC 4.2.1.1 Use established common response communications language (i.e., plain English) to ensure 

information dissemination is timely, clear, acknowledged, and understood by all receivers 

ComC 4.2.3 Report and document the incident by completing and submitting required forms, reports, 

documentation, and follow-up notations on immediate response communications 

Performance Measures Metric

Tactical communications are provided for large regional “task forces” providing recovery 

assistance to disasters and other emergencies within the parameters of interoperability 

plans, as approved by governance structure/body 

Yes/No 

Frequency with which communications back-up is provided during emergencies when the 

conventional modes of communication fail or become overloaded 

Continuous 

COOP and/or Incident Action Plan process assures continued service amidst incident Yes/No 

Percent of communications sent and received that are completely understood without 

ambiguity by the sender or the intended receiver 

90% 

Communications policies and procedures are followed Yes/No 

Activity: Return to Normal Operations 

Definition: Initiate deactivation procedures for the interoperable communications system and 

return the system to a ready state 

Critical Tasks

ComC 4.2.1.1 Use established common response communications language (i.e., plain English) to ensure 

information dissemination is timely, clear, acknowledged, and understood by all receivers 

ComC 4.2.3 Report and document the incident by completing and submitting required forms, reports, 

documentation, and follow-up notations on immediate response communications 

ComC 7.1.1 Develop communications section of the demobilization plan 

ComC 7.1 Initiate interoperable deactivation procedures 

ComC 7.1.2 Monitor communications demobilization 

Performance Measures Metric

Percent of communications sent and received that are completely understood without 

ambiguity by the sender or the intended receiver 

90% 
36 Target Capabilities List

COMMON MISSION: COMMUNICATIONS 

Linked Capabilities 

Linked Capability Relationship 

All Prevent Capabilities Communications provides all Prevent capabilities with operable and interoperable 

communications 

All Protect Capabilities Communications provides all Protect capabilities with operable and interoperable 

communications 

All Respond Capabilities Communications provides all Respond capabilities with operable and interoperable 

communication 

All Recover Capabilities Communications provides all Recover capabilities with operable and interoperable 

communications. 
Target Capabilities List 37 

COMMON MISSION: COMMUNICATIONS 
38 Target Capabilities List

COMMON MISSION: COMMUNICATIONS 

Resource Element Description 

Resource Elements Components and Description

Interoperability Communications 

Plan 

A plan for a designated area that includes governance, standard operating 

procedures, technology, training and exercises, and usage. An Interoperability 

Communications Plan is created for each designated participant area prior to an 

incident 

Governance Group Organization of agencies and jurisdictions who have entered governance 

agreements (i.e., memorandum of understanding/memorandum of agreement 

[MOU/MOA]) to coordinate decision making across agencies and jurisdictions. 

Technology—System of 

Systems 

Operable communication systems for the disciplines and jurisdiction as defined 

by the local requirements that allows for mutual aid components to connect in 

when authorized and as necessary. System-of-systems consists of local, State, 

and Federal components that can be connected through common interface 

standards. Element includes the following processes: Needs assessment; 

Evaluate current capability; Develop requirements; Perform gap analysis; 

System alternatives (with costs and types); Phase-in implementation; Define 

spectrum needs; Define security/encryption needs; Develop future upgrade 

plan and budget process. 

Interoperable Communications 

Technical Assistance Program 

(ICTAP) Teams 

Technical assistance team that implements the ICTAP, a program designed to 

enhance interoperable communications among local, State, and Federal 

emergency responders and public safety officials, and is associated with the 

Department of Homeland Security Office of Grants and Training’s (G&T) 

Urban Area Security Initiative (UASI) grant program. Each team provides 

technical assistance in four phases: Phase 1: Define Technical Assistance 

Requirements; Phase 2: Define Enhancements Needed; Phase 3: 

Implementation; Phase 4: Continued services as needed until local support is in 

place 

Public Safety Answering Point 

(PSAP) and Public Safety 

Communications Center 

Continuity of Operations Plan 

Plan that provides ability to have redundant and back-up systems in place 

during an emergency 

Planning Assumptions 

 This capability reaches across all 15 National Planning Scenarios and within each capability. All 

major incidents require communication and interoperability to facilitate management of an incident. 

Therefore, the target level of interoperability is independent of a specific scenario. Interoperability is 

a support function for all other responder capabilities, so this mission-critical capability must be in 

place to ensure the personnel who are providing the other capabilities have access to the information 

they need to respond appropriately. 

 Interoperability is the communication between disciplines and jurisdictions that permits real time 

exchanges of information on demand, with whoever needs it, when properly authorized, in 

conformance with the Incident Command System. 

 Communications is the transmission of thoughts, messages, or information. The ability to 

communicate is critical to effective emergency response and is one of the most difficult tasks that 

must be performed during an incident or event. Effective communication during an emergency 
Target Capabilities List 39 

COMMON MISSION: COMMUNICATIONS 

requires a system that is both interoperable and redundant. The ability to transmit thoughts, 

messages, and information can be accomplished through a multitude of ways. In emergency 

response, the mechanisms that assist personnel in communications can vary, but are largely made up 

of wireless voice (radio), voice and data telephone (wireless and landline), wireless data, and internet 

voice/data. 

 Communications interoperability is the ability of multiple entities to intermingle meaningful 

transmission of thoughts, messages, or information while using similar or dissimilar communications 

systems. A redundant communications system is a duplication of communications systems that can 

be accessed by personnel for the purpose of responding to, and/or mitigating and recovering from an 

incident or event. 

 One of the major issues facing public safety and service agencies is the inability to communicate with 

one another when the need arises. Effective and efficient emergency response requires coordination, 

communication, and sharing of vital information among numerous public safety agencies. As the 

National Strategy for the Physical Protection of Critical Infrastructures and Key Assets observes, 

“most systems supporting emergency response personnel have been specifically developed and 

implemented with respect to the unique needs of each agency.” 

 Public Safety Answering Point (PSAP), Public Safety Communication Centers, and Emergency 

Operation Centers (EOCs) must be in place and competently operational with the resources, and 

operational integrity to perform during an incident. 

 Agencies must be “operable,” meaning they must have sufficient public safety and service agency 

communications capabilities to meet their everyday internal requirements before they place value on 

being “interoperable,” meaning being able to work with other disciplines and agencies. They need to 

improve those systems first but this improvement planning needs to include a vision for improved 

interoperability with other disciplines and agencies. At a time when more attention is being paid to 

interoperability among different disciplines and jurisdictions within the community, there still exists 

fundamental communication deficiencies within disciplines and jurisdictions as practitioners strive to 

perform the most routine and basic elements of their job functions. 

 These deficiencies result in daily communication challenges for those working on the front lines in 

public safety and service agencies. The Interoperability Continuum (see reference link below) 

outlines critical elements for the planning and implementation of successful public safety and service 

agencies’ communications and interoperability solutions. These elements include governance, 

standard operating procedures, technology, training and exercises, and usage of interoperable 

communications. To drive progress along the five elements of the continuum and improve 

interoperability, public safety and service agency practitioners should observe the following 

principles: 

 Gain leadership commitment from all public safety and services agencies. 

 Foster collaboration across all public safety and services agencies for planning and 

implementation. 

 Work with policy makers to gain leadership commitment and resource support for 

interoperability. 

 Plan and budget for ongoing updates to systems, procedures, and documentation. 

 Use interoperability solutions on a regular basis. 

 Interoperability is a support function for all other responder capabilities, so this mission critical 

capability must be in place to ensure the other capabilities have access to the information they need to 

respond. 

 Existing Continuity of Operations Plans (COOPs) for public safety and service agency 

communications systems are in place. 
40 Target Capabilities List

COMMON MISSION: COMMUNICATIONS 

 Individual agencies and jurisdictional systems must be operable and functioning before mutual aid 

can come in and connect to interoperate. 

 Spectrum management should be coordinated to allow adequate allocation across all disciplines and 

jurisdictions. 

 Critical infrastructure protective actions have been implemented to ensure communications systems 

remain operable. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource Organization Estimated 

Capacity 

Scenario 

Requirement Values

Quantity of 

Resources Needed 

Interoperability 

Communications Plan 

One plan supports 

each designated 

participating area 

All appropriate planning 

has been done prior to an 

incident 

One per designated 

participant area 

Governance Group One governance 

group supports each 

participating area 

All appropriate 

interactions, decisions and 

agreements have been 

made prior to incident to 

ensure effective response 

at the incident 

One governance group 

per participating area as 

designated by local 

responder requirements 

Technology- System of Systems System that is 

appropriately 

connected to achieve 

interoperability 

when authorized and 

as necessary 

 One operable 

communication system 

for each individual 

agency 

Interoperable Communications 

Technical Assistance Program 

(ICTAP) Teams 

 Needed prior to incident 

to ensure appropriate 

planning and engineering 

support is in place during 

an incident 

20 ICTAP teams for 

technical engineering and 

planning as requested by 

the participating area 

Approaches for Large-Scale Events 

Because interoperability refers to the coordination and communication of command level or other 

authorized staff at the operational level, all large-scale events and the 15 National Planning Scenarios 

require plans that provide for established interoperability infrastructure before the incident occurs. 

Planning should include the ability to reconstitute normal communications systems that have been 

saturated, disrupted, or destroyed during an event. 
Target Capabilities List 41 

COMMON MISSION: COMMUNICATIONS 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Interoperability 

Communications 

Plan 

Plan 1 Per State/Territory State All Activities 

Interoperability 

Communications 

Plan 

Plan 1 Per intrastate 

Region 

Local 

(Intrastate 

region) 

All Activities 

Interoperability 

Communications 

Plan 

Plan 1 Per UASI city Local (City) All Activities 

Governance Group Organization 

and Leadership 

1 Per State State All Activities 

Governance group Organization 

and Leadership 

1 Per intrastate 

Region 

Local 

(Intrastate 

region) 

All Activities 

Technology—

System of Systems 

Resource 

Organization 

1 Nationally Federal/State/ 

Local 

All Activities 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/xlibrary/assets/NIMS-90-web.pdf. 

4. Emergency Management Accreditation Program (EMAP) Standards. September 2004. 

http://www.emaponline.org/index.cfm. 

5. Federal Leadership Needed to Facilitate Interoperable Communications Between First Responders. U.S. 

Government Accountability Office. September 2004. http://www.mipt.org/pdf/gao041057t.pdf. 

6. The State and Local Role in Domestic Defense. Policy Briefing. Cohen, John D., and Hurson, John A. 

Progressive Policy Institute. January 2002. http://www.ppionline.org/documents/local_home_d.pdf. 

7. Resource Definitions: 120 Resources. National Mutual Aid and Resource Management Initiative, U.S. 

Department of Homeland Security, Federal Emergency Management Agency. September 2004. 

http://www.nimsonline.com/docs/Resource_Typing_Definitions_II.pdf. 

8. National Association for Amateur Radio. http://www.arrl.org/ 

9. NFPA 1221—Standard for the Installation, Maintenance and Use of Emergency Services Communications 

Systems. National Fire Protection Association. 2002 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1221. 

10. NFPA 1561—Standard on Emergency Services Incident Management Systems. National Fire Protection 

Association. 2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561. 
42 Target Capabilities List

COMMON MISSION: COMMUNICATIONS 

11. Plan for Accelerating the Development of National Voluntary Consensus Standards for Public Safety 

Interoperable Communications. Report to Congress in Response to House Report 108-796 to the Fiscal Year 

2005 Department of Homeland Security Intelligence Reform Bill. March 2005. 

12. Tactical Interoperable Communications Planning Guide. U.S. Department of Homeland Security, Office for 

Domestic Preparedness, Interoperable Communications Technical Assistance Program. April 2004. 

13. Statement of Requirements for Public Safety Wireless Communications and Interoperability Version 1.0. U.S. 

Department of Homeland Security, Office for Interoperability and Compatibility, SAFECOM Program. March 

10, 2004 http://www.safecomprogram.gov/NR/rdonlyres/3FFFBFBA-DC53-440E-B2EFABD391F13075/0/SAFECOM_Statement_of_Requirements_v1.pdf.. 

14. Interoperability Continuum. U.S. Department of Homeland Security, Office for Interoperability and 

Compatibility, SAFECOM Program. April 2005. http://www.safecomprogram.gov/NR/rdonlyres/54F0C2DEFA70-48DD-A56E-3A72A8F35066/0/ContinuumBrochure.pdf.

15. Operational Guide for the Interoperability Continuum: Lessons Learned from RapidCom. U.S. Department of 

Homeland Security, Office for Interoperability and Compatibility, SAFECOM Program. Summer 2005. 

16. Recommended Federal Grants Guidance: Public Safety Communications & Interoperability Grants. U.S. 

Department of Homeland Security, Office for Interoperability and Compatibility, SAFECOM Program. 

November 2004. http://www.safecomprogram.gov/SAFECOM/library/grant/1017_recommendedfederal.htm. 

17. Statewide Communications Interoperability Planning (SCIP) Methodology. U.S. Department of Homeland 

Security, Office for Interoperability and Compatibility, SAFECOM Program. 

http://www.safecomprogram.gov/SAFECOM/library/interoperabilitycasestudies/1223_statewidecommunication

s.htm 

18. Why Can’t We Talk? Working Together To Bridge the Communications Gap to Save Lives. National Task Force 

for Interoperability guide. National Institute of Justice. February 2003. http://www.ojp.usdoj.gov/nij/pubssum/204348.htm 

19. Technical Assistance Catalog. See assistance related to the Interoperable Communications Technical Assistance 

Program (ICTAP): CBRNE Terrorism Prevention #103 (PREV-103), CBRNE Terrorism Response # 214 

(RESP-214), and CBRNE Terrorism Recovery #304 (RECV-304). U.S. Department of Homeland Security, 

Homeland Security Preparedness Technical Assistance Program. 

http://www.ojp.usdoj.gov/odp/docs/ODP_TA_Catalog.pdf 
Target Capabilities List 43 

COMMON MISSION: RISK MANAGEMENT 

RISK MANAGEMENT

Capability Definition 

Risk Management is defined by the Government Accountability Office (GAO) as “A continuous process 

of managing—through a series of mitigating actions that permeate an entity’s activities—the likelihood of 

an adverse event and its negative impact.” Risk Management is founded in the capacity for all levels of 

government to identify and measure risk prior to an event, based on credible threats/hazards, 

vulnerabilities, and consequences, and to manage the exposure to that risk through the prioritization and 

implementation of risk-reduction strategies. The actions to perform Risk Management may well vary 

among government entities; however, the foundation of Risk Management is constant. 

Currently there are a variety of tools, processes, and offerings in practice and under development to serve 

the capability of Risk Management. As with the distribution of the National Infrastructure Protection 

Plan, the Department of Homeland Security has outlined core requirements for the management of risk, 

and will continue to serve this capability through additional technical assistance. As communities mature 

their Risk Management capability they are encouraged to look to DHS for continued guidance and 

updates to Threat information from the aforementioned Homeland Infrastructure Threat and Risk 

Analysis Center (HITRAC) office as well as guidance on the further development of a risk analysis 

methodology for critical asset protection. 

Outcome 

Federal, State, local, tribal and private sector entities identify and assess risks, prioritize and select 

appropriate protection, prevention, and mitigation solutions based on reduction of risk, monitor the 

outcomes of allocation decisions, and undertake corrective actions. Additionally, Risk Management is 

integrated as a planning construct for effective prioritization and oversight of all homeland security 

investments. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

ESF #1: Transportation 

ESF #3: Public Works and Engineering 

ESF #4: Firefighting 

ESF #5: Emergency Management 

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

ESF #8: Public Health and Medical Services 

ESF #9: Search and Rescue (Land-Based) 

ESF #10: Oil and Hazardous Materials Response 

ESF #12: Energy 

ESF #13: Public Safety and Security 

ESF # 14: Long-Term Community Recovery and Mitigation 
44 Target Capabilities List

COMMON MISSION: RISK MANAGEMENT 

Preparedness Tasks and Measures/Metrics 

Activity: Develop Risk Framework 

Definition: Develop a framework for how risk assessments and risk analysis will serve the 

business process of managing “risks” and a process for stakeholder buy-in. Establish a 

comprehensive stakeholder governing process to oversee an all-encompassing ongoing 

perspective of the risks posed onto the respective community. This body should include public 

administrators, the owners and operators of critical infrastructure and key assets within the 

given community, as well as key stakeholders and decision makers. Furthermore, the 

“framework” must consider the functional as well as spatial relationships of assets as they are 

often interrelated.

Critical Tasks

ComE 1.1 Ensure senior leadership communicates in writing the risk framework and intent to use risk 

analysis to all stakeholders 

ComE 1.2 Develop actionable risk management strategy with short, medium, and long-term objectives 

ComE 1.3 Develop risk analysis and risk management plans and procedures 

ComE 1.3.1 Develop standards and guidelines to guide risk assessment activities 

ComE 1.4 Develop and implement risk analysis training programs for state, local, and private entities 

ComE 1.4.1 Conduct training in modeling and the use of analytical tools 

ComE 1.4.2 Conduct risk management training for security, response, and recovery managers 

ComE 1.5 Develop and implement programs to assess changes in risk and effectiveness of risk 

management 

ComE 1.5.1 Develop system for collecting and sharing lessons learned regarding risk management 

Preparedness Measures Metric 

An actionable risk management strategy that includes short, medium, and long term 

objectives is in place 

Yes/No 

Risk analysis and risk management plans are in place Yes/No 

A strategy to mitigate current risk profile has been implemented Yes/No 

Schedule and capability for updating risk analysis and risk management plans is in place Yes/No 

State, local, and private entities have been trained to conduct risk analysis Yes/No 

Monitoring program to detect changes in risk is in place Yes/No 

Program to assess program/security measures implementation is in place Yes/No 

Activity: Assess Risks

Definition: Assess potential targets within given system of governance as well as in relation to 

other systems. Identify functional as well as spatial relationships of assets and systems 

infrastructure and assets. This activity may be applied to assets (power generation), systems 
Target Capabilities List 45 

COMMON MISSION: RISK MANAGEMENT 

(power supply grids), Sectors (power industry) and geographic areas (metropolitan areas). Risk 

management includes risks from both man made events and acts of nature. 

Critical Tasks

ComE 2.1 Conduct criticality analysis (also known as screening) to identify potential targets 

ComE 2.2 Conduct vulnerability assessments to assess vulnerability of potential targets to identified 

threats 

ComE 2.3 Conduct consequence analysis of critical assets 

ComE 2.4 Conduct threat assessment of potential targets 

ComE 2.4.1 

Conduct or obtain intelligence community threat/hazard analysis through State or local 

Interagency Working Groups (Joint Terrorism Task Force) to identify threats to potential 

targets 

ComE 2.4.2 Obtain intelligence reporting and the receipt of the threat data through the Department of 

Homeland Security’s Homeland Infrastructure Threat and Risk Analysis Center (HITRAC) 

ComE 2.5 Calculate risk to potential targets based on threat, vulnerability, and consequence 

ComE 2.6 Establish relative order of priorities for risk mitigation among risk portfolio 

ComE 2.7 Conduct response and recovery capabilities analysis to determine capability to respond to and 

recover from the occurrence of identified risks 

Performance Measures Metrics 

Criticality results were used to identify potential targets Yes/No 

Threat, vulnerability, and consequence results were used to assess risk for potential targets Yes/No 

A comprehensive risk assessment has been completed for potential targets identified Yes/No 

Risk assessment plans and procedures were implemented Yes/No 

Activity: Prioritize Risks 

Definition: Rate and/or rank criticality of potential targets to mitigate or transfer associated risk 

(if possible) as related to given target within a system of targets

Critical Tasks

ComE 3.1 Identify potential protection, prevention, and mitigation strategies for high-risk targets 

ComE 3.2 Prioritize identified strategies by risk reduction expected outcomes appreciating the various 

threat, vulnerabilities, and consequences that affect that community, system or asset 

Performance Measures Metrics 

Risk and risk reduction results were used to prioritize risk-reduction strategies Yes/No 

Integration of a schedule and strategy to implement risk reduction strategies, including 

milestones, funding strategies, and opportunity costs where possible has been completed 

Yes/No 

Integration of a schedule and strategy for reducing the greatest risk posed to the respective 

stakeholder has been completed 

Yes/No 
46 Target Capabilities List

COMMON MISSION: RISK MANAGEMENT 

Activity: Develop Business Case 

Definition: Develop cost-benefit/cost-effectiveness analysis for consideration of applicable 

prescribed measures required to mitigate associated risks to an asset or system of assets; 

consider opportunity costs associated to one measure versus another

Critical Tasks

ComE 4.1 Develop or select methodology for cost-benefit/cost-effectiveness analysis of risk reduction 

solutions 

ComE 4.2 Select risk reduction solutions for implementation based on risk reduction strategies 

ComE 4.3 Allocate resources to support risk reduction solutions 

Performance Measures Metrics 

Funding priorities reflect risk assessment and prioritization of risk-reduction strategies Yes/No 

Solutions were selected and resources allocated Yes/No 

Resources were allocated and measures established to shift to a new risk reduction target Yes/No 

Activity: Manage Risk

Definition: Manage and monitor risk through continued assessment and analysis. Continuous 

consideration should be given to refresh the given threat, emerging vulnerabilities, and changing 

consequences to the system or assets under consideration. 

Critical Tasks

ComE 5.1 Monitor the progress of solution implementation 

ComE 5.1.1 Undertake corrective actions 

Performance Measures Metrics 

Selected solutions have been verified as successfully implemented Yes/No 

Selected solutions were effective in reducing risk Yes/No 

Activity: Conduct Risk Communication

Definition: Develop understanding and appreciation of risk assessment, risk analysis, and risk 

management principles, and develop avenues for receiving information on threat, vulnerability, 

and consequence

Critical Tasks

ComE 6.1 Share the assessment of sector-specific infrastructure risk with interdependent entities within 

appropriate sectors 

Performance Measures Metrics 

Risk management strategy is communicated regularly with stakeholders (monthly or 

quarterly reporting) 

Yes/No 
Target Capabilities List 47 

COMMON MISSION: RISK MANAGEMENT 

Linked Capabilities 

Linked Capability Relationship to Capability 

CBRNE Detection CBRNE Detection provides potential threat information used in the risk 

assessment process of Risk Management 

Critical Infrastructure Protection Critical Infrastructure Protection uses the risk assessment process to prioritize 

protection decisions 

Emergency Operations Center 

Management 

Risk Management provides risk assessments to Emergency Operations Center 

Management 

Intelligence and Information 

Sharing and Dissemination 

Risk Management provides information for Intelligence and Information 

Sharing and Dissemination 

Intelligence Analysis and 

Production 

Risk Management provides analysis processes to Intelligence Analysis and 

Production 

Planning Risk Management is a key step in the all-hazards planning process. 
48 Target Capabilities List

COMMON MISSION: RISK MANAGEMENT 
Target Capabilities List 49 

COMMON MISSION: RISK MANAGEMENT 

Resource Element Description 

Resource Elements Components and Description

Local law enforcement Personnel with skills, ability, and training to promulgate local risk assessment 

and risk management strategies, with a focus on risk management, and to 

participate in risk communication activities 

Urban Area Working Groups Personnel with skills, ability, and training to promulgate local risk assessment 

and risk management strategies, with a focus on risk management, and to 

participate in risk communication activities 

Regional Transit Security 

Working Groups 

Personnel with skills, ability, and training to promulgate local risk assessment 

and risk management strategies, with a focus on risk management, and to 

participate in risk communication activities 

Area Maritime Security 

Committees 

Personnel with skills, ability, and training to promulgate local risk assessment 

and risk management strategies, with a focus on risk management, and to 

participate in risk communication activities 

Owners and Operators of 

Critical Infrastructure/Key 

Resources (CI/KR) 

Personnel with skills, ability, and training to promulgate emergency operations 

plans (EOPs) as part of local and regional risk management strategies, and to 

participate in risk communication activities 

State Administrative Agencies 

(SAAs) 

Personnel with skills, ability, and training to promulgate State-wide risk 

assessment and risk management strategies; to participate in risk 

communications activities; and to use risk reduction tools to evaluate alternate 

risk management strategies 

Federal law enforcement and 

homeland security community 

Personnel with skills, ability, and training to promulgate national risk 

assessment and risk management strategies; to participate in risk 

communications activities; and to create, disseminate, and use risk reduction 

tools to evaluate alternate risk management strategies 

Joint Terrorism Task Forces 

(JTTFs) 

Task forces formed at the local level and composed of persons from various 

government and private entities (e.g., law enforcement, public health, local 

businesses, key infrastructure representatives, emergency management, and 

other first responders). 

National intelligence community Personnel with skills, ability, and training to support national risk assessment 

and Risk Management strategies and to participate in risk communications 

activities. Training and formal education are keys to having a sound Risk 

Management background. Various levels of government will require varying 

levels of experience or capabilities 

Risk analysis/risk management 

tools 

Tools to facilitate risk analysis/risk management 

Cost estimating tools Tools to estimate costs of risk management decisions 

Geographical Information 

System (GIS) data collection 

tools 

Tools to facilitate the collection of geographically-specific data 

Planning Assumptions and Definitions 

 Risk assessments can be conducted in a relative manner. Calculated threat and risk ratings will not 

represent absolute probabilities, unless accurate probability data is readily available, but rather will be 

measured relative to other threats. 
50 Target Capabilities List

COMMON MISSION: RISK MANAGEMENT 

 Scenario-based risk assessment will be used to evaluate threat, vulnerability, and consequence. For 

purposes of consistency the National Planning Scenarios should be used. 

 Input will be sought from the national intelligence community, including JTTFs, to establish viable 

threats and the relative likelihood of those threats. To seek alignment with the National Infrastructure 

Protection Plan would be to use the threat analysis generated by DHS/ Homeland Infrastructure 

Threat and Risk Analysis Center (HITRAC) in coordination with the intelligence community. This 

would provide a more authoritative and more consistent threat input. 

 Scenario-specific threat assessments will include evaluation of target value, weapon availability, 

attack simplicity, as well as past history and specific intelligence information. Target values will 

require expert opinion and should be coordinated with the intelligence community and/or Federal 

stakeholders. Furthermore, the "intent" and "capability" of the adversary must be applied to assess 

terrorist threat. This approach is consistent with the DHS/NIPP threat analysis approach. 

 Vulnerability analysis will measure the likelihood that specific scenarios could be executed 

successfully based on an evaluation of physical features, security capabilities, and response 

capabilities that serve to prevent an attack from being successful. 

 Consequence analysis will measure the expected outcome of specific scenarios based on analysis of 

the susceptibility to attack of the asset given the functional characteristics of the targets, likely 

cascading impacts to interdependent assets, and the availability of response and recovery capabilities. 

 Prevention, response, and recovery assessments will also be based on the same set of scenarios. 

 Total systemic risk will be calculated as an integration of risk across all targets and scenarios within a 

jurisdiction. 

 Appropriate protection, prevention, and mitigation solutions will be evaluated using risk-reduction 

tools. Threat, vulnerability, and consequence will be re-evaluated based upon implementation of 

solutions. Initial risk calculations serve as a benchmark against which risk reduction is measured. 

 Criticality assessments will be based on critical target factors that represent the mission of targets to 

the Federal, State, local, and tribal entities. Considerations should be provided to the factors of 

human health impact, economic impact, national strategic mission impact, and psychological impact 

as aligned to Homeland Security Presidential Directive-7. 

 Life cycle costs for identified solutions will be evaluated, including implementation costs such as 

training and recurring costs such as personnel and maintenance, and discounted to produce a net 

present cost. Where available and known, costs to upgrade will be included. 

 Resources will be allocated through cost-benefit analysis, comparing total risk reduction and costs. 

 From an actionable perspective, all communities of interest are responsible for risk communication. 

Risk communication may include but should not be limited to intelligence data, potential terrorism 

target selection or infrastructure selection, and anomalies which may result in prevention and or 

deterrence. Furthermore, there are tactical, strategic, and operational responsibilities for each 

respective community of interest. 

 Federal, State, and local governments and the private sector all have a role in managing risk. Each 

should develop an understanding and appreciation of the principles of risk assessment, analysis and 

management. Each should develop a framework that integrates risk management in their business, 

and include a process for stakeholder buy-in and governance. 

 There are current departmental activities aligned to develop a national baseline for risk management 

architecture. The Department of Homeland Security has defined the framework as the appreciation 

for consequence, threat, and vulnerability. Given this foundation and the work of the Department, a 

target architecture should be forthcoming. The National Infrastructure Protection Plan (to be 

released) provides a framework for the foundations of risk management. Specifically, Chapter 3 and 

Appendix 3 of the National Infrastructure Protection Plan. 
Target Capabilities List 51 

COMMON MISSION: RISK MANAGEMENT 

 The work within this target capability is focused on “terrorism risk,” as it is that adversarial 

relationship that this target capability is designed for under the disciplines of homeland security. It is 

intended to establish the fundamental equations that define terrorism risk and to standardize 

terminology for conduct of a terrorism risk assessment. However, the ability to plan for catastrophic 

events such as natural disasters should be considered equally within the greater scheme of risk 

management.

 Although estimates can be made as to the potential goals of terrorist groups, the targets that they 

might select, and the types of weapons that they might use, the actions of terrorists do not absolutely 

conform to any set of rules or statistics. Because relatively few attacks have occurred in the United 

States, historical data using trend analysis cannot predict future events and may be of only limited use 

in predicting even the type, time, or location of attacks that might be launched. 

 Because of the human element, there is a linkage between terrorism risks at different potential targets. 

Unlike most forms of risk, where the likelihood of the event occurring at any given location is 

independent, with terrorism the likelihood of the event occurring is very much dependent on actions 

that occur at other potential targets. If security measures are increased at one target (target 

hardening), the relative likelihood of attack can increase at other potential targets (soft targets). This 

happens because additional security measures could direct resources away from one target and 

towards others with lower levels of deterrence. 

 Similarly, the relative value of a potential target can also have a major effect on the likelihood of 

attack. Terrorist target sites will meet certain goals for an attack, including casualties, economic 

disruption, or symbolic importance. A larger relative value for one potential target over another 

makes it more likely that the site might be attacked. Changes in the relative value of other sites could 

have the effect of changing the risk of terrorism at a particular site, even if no change occurred at the 

site itself. 

 Standard algorithms and terminology for evaluating risk must be modified to deal with the effects of 

the human-element and of the linkages between targets. 

 Target attractiveness measures the features of a particular asset that may make it more or less likely to 

be targeted by terrorists for a particular form of attack. Evaluation of target attractiveness should 

include an evaluation of two sets of features: target value and deterrence. Target value evaluates 

those features of an asset that make it more likely that an asset will be attacked; features that make the 

asset attractive as a target. These may include: potential for casualties, potential for economic 

disruption, and symbolic importance. Deterrence evaluates those features that make a target less 

likely to be attacked. These features primarily include visible security and known response 

capabilities. 

 In instances where frequency of attack can be reasonably evaluated using statistical analysis or some 

other direct form of estimate, that metric can be directly used for target attractiveness. 

 The Consequence of a terrorist attack is a product of the criticality of the target and the impact that an 

attack would have on that criticality. 

 Consequence = (Criticality) X (Impact) 

 Criticality is broadly defined as the particular aspects or features of an asset that would make 

someone want to protect the asset against an attack. Generally, criticality is defined using a set of 

‘Critical Asset Factors’. These factors define the specific features of an asset that could make it 

important to protect that asset from attack. Examples of typical critical asset factors include: 

 Loss of Life 

 Economic losses 

 Disruption of Government Services 

 Degradation of Critical Infrastructures and Key assets 
52 Target Capabilities List

COMMON MISSION: RISK MANAGEMENT 

 Symbolic and Psychological Impact 

 Cascading impacts on interdependent assets 

 Once the risk has been determined, the likelihood of an attack being successful can be assessed. In 

determining the susceptibility of an attack or “vulnerability to attack” it is assumed that the asset has 

been targeted, that the terrorists have the required weapon(s) and equipment, and that the attack will 

take place. The susceptibility then measures the probability that the attack would achieve its desired 

result given the constraints that are in place at the target, including physical constraints, operational 

constraints, and security measures. 

 There are a number of methods that can be used to calculate or estimate susceptibility. These range 

from simple ratings of security capabilities to complex, simulation-based evaluations of detailed 

attack scenarios. The most appropriate method will depend on the type of asset and the goals of the 

risk assessment. In general, however, an appropriate assessment of susceptibility would include an 

evaluation of physical features, security capabilities, and response capabilities that serve to prevent an 

attack from being successful. These activities can also be categorized as those that serve to deny, 

detect, delay, or defend against the attack, and are addressed by other capabilities in the TCL. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Risk assessment does not focus on single incidents but rather assesses risk across a number of viable 

threats and critical assets. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per 

x) 

Lead Capability Activity 

supported by 

Element 

Local law 

enforcement 

Personnel As Needed Local Develop Risk 

Framework 

Assess Critical 

Infrastructure Risks 

Manage Risk 

Conduct Risk 

Communication 

Urban Area 

Working Groups 

Personnel As Needed Local Develop Risk 

Framework 

Assess Critical 

Infrastructure Risks 

Manage Risk 

Conduct Risk 

Communication 

Regional Transit 

Security Working 

Groups 

Personnel As Needed Local (Intrastate 

region) 

Develop Risk 

Framework 

Assess Critical 

Infrastructure Risks 

Manage Risk 
Target Capabilities List 53 

COMMON MISSION: RISK MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per 

x) 

Lead Capability Activity 

supported by 

Element 

Conduct Risk 

Communication 

Area Maritime 

Security 

Committees 

Personnel As Needed Local (Intrastate 

region) 

Develop Risk 

Framework 

Assess Critical 

Infrastructure Risks 

Manage Risk 

Conduct Risk 

Communication 

Owners and 

operators of critical 

infrastructure/ key 

resources (CI/KR) 

Personnel As Needed State/Local/ 

Private Sector 

Develop Risk 

Framework 

Conduct Risk 

Communication 

Assess Critical 

Infrastructure Risks 

and Manage Risk 

Analyze 

Interdependencies of 

Assets (Functional, 

Spatial) 

State 

Administrative 

Agencies 

Personnel As Needed State Assess Critical 

Infrastructure Risks 

Prioritize Risks 

Develop Business 

Case 

Manage Risk 

Conduct Risk 

Communication 

Federal law 

enforcement and 

homeland security 

community 

Personnel As Needed Federal (DHS) Develop Business 

Case 

Manage Risk 

Conduct Risk 

Communication 

Joint Terrorism 

Task Forces 

(JTTFs) 

Personnel As Needed Federal (DOJ, 

DHS) 

Develop Business 

Case 

Manage Risk 

Conduct Risk 

Communication 

National 

intelligence 

community 

Personnel As Needed Federal Develop Business 

Case 

Manage Risk 

Conduct Risk 

Communication 
54 Target Capabilities List

COMMON MISSION: RISK MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per 

x) 

Lead Capability Activity 

supported by 

Element 

Risk analysis/risk 

management tools 

Equipment As Needed Federal/State/ 

Local 

Assess Risk 

Cost estimating 

tools 

Equipment As Needed Federal/State/ 

Local 

Develop Business 

Case 

Manage Risk 

Geographical 

Information 

System (GIS) data 

collection tools 

Equipment As Needed Federal/State/ 

Local 

Assess Risk 

References 

1. National Infrastructure Protection Plan. Department of Homeland Security. 

2. Homeland Security Presidential Directive/HSPD-8, “National Preparedness”. December 2003. 

http://www.whitehouse.gov/releases/2003/12/20031217-6.html 

3. National Response Plan (NRP). Department of Homeland Security, December 2004. 

4. National Incident Management System (NIMS). Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf 

5. Walker, David M. “Strategic Budgeting: Risk Management Principles Can Help DHS Allocate Resources to 

Highest Priorities,” United States Government Accountability Office, Testimony Before the Subcommittee on 

Management, Integration, and Oversight, Committee on Homeland Security, House of Representatives, GAO05-824T, June 29, 2005: http://www/gao.gov/new.items/d05824t.p 
Target Capabilities List 55 

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

COMMUNITY PREPAREDNESS AND 

PARTICIPATION

Capability Definition 

The Community Preparedness and Participation capability provides that everyone in America is fully 

aware, trained, and practiced on how to prevent, protect/mitigate, prepare for, and respond to all threats 

and hazards. This requires a role for citizens in personal preparedness, exercises, ongoing volunteer 

programs, and surge capacity response. Specific capabilities for UNIVERSAL preparedness, including 

knowledge of all-hazards (technological, natural, and terrorist incidents) and related protective measures, 

skills, and supplies, will be determined through a collaborative process with emergency responders. 

Outcome 

There is a structure and a process for ongoing collaboration between government and nongovernmental 

resources at all levels; volunteers and nongovernmental resources are incorporated in plans and exercises; 

the public is educated and trained in the four mission areas of preparedness; citizens participate in 

volunteer programs and provide surge capacity support; nongovernmental resources are managed 

effectively in disasters; and there is a process to evaluate progress. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability should play a role in ESFs and Annexes at the Federal, State, tribal, and local levels. 

Preparedness Tasks and Measures/Metrics 

Activity: Establish Collaborative Structure and Process for Government and NonGovernmental Entities at All Levels

Definition: Develop an organizational entity with member representation from emergency 

responder disciplines, elected officials, voluntary organizations, civic organizations, faith-based 

organizations, special needs advocacy groups, private sector, neighborhood associations, 

educational institutions, and critical infrastructure. 

Critical Tasks

ComF 1.1.1 Establish leadership support at the national, State, tribal, and local levels for Citizen Corps 

Councils 

ComF 1.2 Establish and maintain Citizen Corps Councils at all levels of government: Federal, State, tribal, 

local 

ComF 1.2.2

Establish a strategic plan for the Citizen Corps Council’s jurisdiction to engage all residents in 

preparedness, training, drills/exercises, and volunteer support taking into account the 

jurisdiction’s potential threats, critical infrastructure, population density, and population 

composition 

ComF 1.3 Develop all-hazards preparedness requirements and a process to sustain citizen capabilities 

ComF 1.2.3 Implement a process to count and assess membership of Citizen Corps Councils 
56 Target Capabilities List

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Preparedness Measures Metrics

Number of local Citizen Corps Councils nationwide 2500 

Percent of total U.S. population served by a Citizen Corps Council 99% 

Membership of Citizen Corps Council includes representatives from government, 

emergency management officials, civic organizations, faith-based organizations, special 

needs advocacy groups, private sector, critical infrastructure, education, and 

neighborhood associations 

Yes/No 

Strategic plan to engage all residents in preparedness, training, drills/exercises, and 

volunteer support is in place 

Yes/No 

Local Citizen Corps Councils coordinate with State level Citizen Corps Councils Yes/No 

Activity: Integrate Public Outreach and Non-Governmental Resources into Emergency 

Operations Plans and Exercises

Definition: Include sufficient planning for alerts and public warnings, emergency public education 

and information, evacuation, mass care, health and medical services, non-governmental volunteer 

and donations resource management, and establish clear roles and protocols for volunteers for 

all ESFs and Annexes. Evaluate plans through exercises that include non-governmental entities, 

volunteer operations, and the general public.

Critical Tasks

ComF 2.1 Integrate citizen participation in the planning process at all levels 

ComF 2.1.1 Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises, 

and volunteer opportunities), consideration for individuals with disabilities and their care givers 

ComF 2.1.2 Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises, 

and volunteer opportunities), consideration for individuals who do not speak English 

ComF 2.1.3 

Incorporate in all plans, procedures, and protocols (including outreach, training and exercises, 

and volunteer opportunities), consideration for individuals with low income and limited 

resources 

ComF 2.1.4 Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and 

volunteer opportunities), consideration for age-related issues and concerns 

ComF 2.1.5 Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and 

volunteer opportunities), consideration for companion and service animals 

ComF 2.3.1 

Integrate non-governmental entities, volunteers, and the general public in exercise planning, 

implementation, and review of all levels (national/international, regional, State, tribal, urban, 

local) and types of exercises (all hazards, terrorism, bioterrorism, natural disasters) 

ComF 2.2.2 Establish and maintain a database of the jurisdiction’s non-governmental assets to include 

entities that manage trained and skilled volunteers, unaffiliated volunteers, and donated goods 

ComF 2.2.3 

Establish necessary stand-by contracts and MOAs and MOUs with appropriate private sector and 

non-governmental organizations to augment government resources with NIMS-credentialed 

volunteers and NIMS-typed materials. 

ComF 2.4 Establish and maintain a process to evaluate citizen preparedness and participation and to 

recognize exemplary citizens in preparedness programs 

ComF 2.4.1 Implement processes to evaluate and periodically reassess citizen related component of 
Target Capabilities List 57 

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Emergency Operations Plans, to include alerts and warnings, public education and emergency 

public information, evacuations, mass care, and non-governmental resource management 

ComF 2.4.2 Implement a process to evaluate non-governmental participation in exercises at all levels 

ComF 2.5 

Support community infrastructure to achieve appropriate levels of preparedness, to include 

developing community-wide automated alerts and warning systems and training citizens working 

in critical infrastructure locations 

Preparedness Measures Metrics

Percent of State and UASI jurisdictions’ EOPs that address citizen preparedness and 

participation, establish volunteer support for ESFs, and plan for use of non-governmental 

resources 

100% 

Percent of exercises that engage non-governmental entities, volunteers and the general 

public 

100% 

Frequency with which non-governmental entities and citizens (i.e., non-emergency 

responders) participate in planning, implementing, and reviewing community emergency 

exercises 

Every 24 months 

Plans include MOUs specific to non-governmental entities (e.g., personnel and resources) Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Provide Education and Training for the Public in All Mission Areas

Definition: Ensure the public is educated and trained in prevention, protection, response, and 

recovery for all hazards, with specific consideration for high-threat hazards for the area in which 

they live, work, or attend school and for special needs

Critical Tasks

ComF 3.1 Plan, conduct, and evaluate public education programs for citizen prevention, 

protection/mitigation, response and recovery capabilities 

ComF 3.1.2 

Provide continuing education and training for the public on: prevention, protection and 

mitigation measures, community emergency response plans, alerts and warnings (including threat 

levels), evacuation/in-place protection plans and exercises, participating in governmentsponsored emergency exercises, volunteer opportunities and training for year round volunteer 

role or surge capacity role in response and recovery 

ComF 2.1.1 Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises, 

and volunteer opportunities), consideration for individuals with disabilities and their care givers 

ComF 2.1.2 Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises, 

and volunteer opportunities), consideration for individuals who do not speak English 

ComF 2.1.3 

Incorporate in all plans, procedures, and protocols (including outreach, training and exercises, 

and volunteer opportunities), consideration for individuals with low income and limited 

resources 

ComF 2.1.4 Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and 

volunteer opportunities), consideration for age-related issues and concerns 

ComF 2.1.5 Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and 

volunteer opportunities), consideration for companion and service animals 

ComF 3.2.1 Train the public to be aware and to report suspicious items and behavior 
58 Target Capabilities List

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

ComF 3.2.2 Provide crime prevention, counter-terrorism and public education program materials in multiple 

languages 

ComF 3.2.3 Assist owners of critical infrastructure in increasing security measures and strengthening 

connection to local law enforcement through Citizen Corps Councils 

ComF 3.2.4 Strengthen Community Oriented Policing philosophy by providing volunteer opportunities to 

support local law enforcement 

ComF 3.3.1 Establish jurisdictional citizen educational programs on personal protective measures, disaster 

kits and communications plans 

ComF 3.3.2 Develop and provide community preparedness public education program and materials for at risk 

populations 

ComF 3.3.3 Develop and provide community preparedness public education program and materials for nonEnglish speaking communities and special needs populations 

ComF 3.3.4 Support education and training on automated alerts and warnings and related responses 

ComF 3.1.3 Implement a process to assess citizen preparedness and implement longitudinal tracking 

Performance Measures Metrics

Percent of annual increase in number of citizens educated and trained in UNIVERSAL allhazards capabilities until 80% of population is educated and trained 5% 

Percent of annual increase in number of citizens who are aware of heightened jurisdictional 

threat levels and aware of jurisdiction alerts and warnings, until 80% of citizens maintain 

awareness 

5% 

Percent of annual increase in number of citizens within the jurisdiction who are alert to 

unusual behavior in others that might indicate potential terrorist activity and understand 

appropriate reporting procedures, until 80% of citizens maintain knowledge

5% 

Percent of annual increase in number of privately held critical infrastructure computer owners 

who implement appropriate virus protections and act on virus alerts, until 80% of owners 

achieve implementation 

5% 

Percent of annual increase in number of households that conduct pre-incident preparation – to 

include maintaining a communication plan, disasters supplies, and a practicing 

evacuation/shelter-in-place, and maintaining skills until 80% of households maintain preincident preparation 

5% 

Percent of annual increase in number of citizens prepared to evacuate or relocate to designated 

shelter (to include citizens with special needs), until 80% of population is prepared 

5% 

Percent of annual increase in jurisdiction’s population that is knowledgeable of workplace, 

school, and community emergency plans, until 80% of population maintains knowledge 

5% 

Percent of annual increase in number of citizens prepared to shelter-in-place and have 

emergency supplies on hand as advised by local authorities, until 80% of population prepared 

to shelter in place 

5% 

Percent of annual increase in number of citizens trained in basic first aid, until 80% of 

population maintains skills 

5% 

Percent of annual increase in number of citizens educated and trained in RISK-BASED 

capabilities for high-threat incidents in their area, to include natural hazards, technological 

hazards, and terrorism, until 72% of population (80% of those living in high-threat area) are 

educated and trained per appropriate hazard 

5% 

Percent of annual increase in number of citizens who know the appropriate detailed response 5% 
Target Capabilities List 59 

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

for specific high-threat incidents in their area, to include multiple incidents where appropriate, 

until 72% of population (80% of those living in high-threat area) have specialized awareness 

Percent of annual increase in number of population trained in CBRNE and decontamination 

procedures, until 46% of population (80% of those living in urban areas) maintain skills 

5% 

Percent of annual increase in number of population with risk-based life-saving skills, until 72% 

of population (80% of those living in high-threat area) maintain specialized skills. 

5% 

Percent of annual increase in number of households, businesses, and schools that have 

implemented mitigation measures to protect property from specific high-threat, until 72% 

households, businesses, and schools (80% of those in high-risk areas) have implemented 

mitigation measures 

5% 

Activity: Provide Volunteer Opportunities: year round and in surge operations 

Definition: Develop and implement education, training, and exercises for ongoing volunteer 

programs and volunteer surge response and recovery activities 

Critical Tasks

ComF 4.1 Develop and sustain volunteer opportunities for citizens to support local emergency responders 

and community safety efforts year round, to include necessary training and equipment 

ComF 4.2 Develop NIMS credentialing for volunteer surge capacity job functions to support all ESFs and 

annexes 

ComF 4.3 Develop and implement training and exercise programs to enable citizens to support emergency 

response and recovery operations 

ComF 4.4 Implement a process to track numbers of volunteers who participate in ongoing volunteer 

programs 

ComF 4.5 Implement a process to track numbers of volunteers who participate in surge capacity roles 

ComF 4.6 Implement liability coverage for volunteer activity for appropriate jurisdiction 

Performance Measures Metrics

Percent of annual increase in number of trained citizens providing volunteer support to 

local emergency responder disciplines (law enforcement, fire, emergency medical and 

public health services), until 10% population volunteers an average of 20 hours per year 

= 560 million hours/year 

2% 

Percent of surge capacity of pre-trained and credentialed citizens prepared to augment 

and supplement official government emergency response with manpower and private 

sector in-kind resources for ESFs and annexes for any given emergency response 

function 

 20% 

Activity: Incident Response

Definition: Non-governmental entities, volunteers, and the general public respond according to 

plan and training 

Critical Tasks

ComF 5.1 Implement public, volunteers, and non-governmental entity roles in emergency operations plans 
60 Target Capabilities List

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Performance Measures Metrics

Percent of population responding to official instructions and providing self care and bystander care 

100% 

Percent of citizens with disabilities or special needs (requiring 24-hour care and/or 

equipment) who had access to life-sustaining resources during emergency situations 

100% 

Public communications were provided without electrical dependence and were 

accessible to all citizens in the jurisdiction, including people with disabilities and nonEnglish speaking populations 

Yes/No 

Evacuation assistance was provided for those who cannot evacuate on their own Yes/No 

Percent of pre-identified shelters that accommodated companion and service animals 

and people with disabilities 

100% 

Volunteers provided surge capacity for ESFs and annexes, including Transportation, 

Communications, Mass Care, Resources Management, Public Health and Medical 

Services, Search and Rescue, Public Safety and Security, Long-Term Community 

Recovery and Mitigation, External Affairs, Volunteers and Donations Management 

Yes/No 

Non-governmental resources were quickly deployed using stand-by contracts, MOUs 

and MOAs 

Yes/No 

Jurisdictions outside of the incident impact area provided volunteer and donations 

support through pre-established mechanisms. 

Yes/No 

Jurisdictions outside of the incident impact area provided mass care to evacuees, as 

needed 

Yes/No 

Linked Capabilities 

Linked Capability Relationship to Capability 

All Prevent Capabilities Community Preparedness and Participation prepares citizens to participate in 

prevention 

All Protect Capabilities Community Preparedness and Participation prepares citizens to participate in 

protection 

All Respond Capabilities Community Preparedness and Participation prepares citizens to participate in 

response 

All Recover Capabilities Community Preparedness and Participation prepares citizens to participate in 

recovery 

Volunteer Management and 

Donations 

Community Preparedness and Participation prepares citizens to volunteer and 

to donate 

Mass Care (Sheltering, Feeding, 

and Related Services) 

Community Preparedness and Participation prepares citizens to volunteer for 

mass care services 

Citizen Evacuation and Shelter-InPlace 

Community Preparedness and Participation educates citizens in how to 

evacuate or how to shelter-in-place or volunteer to support such efforts 

Emergency Public Information 

and Warning 

Community Preparedness and Participation informs citizens how to acquire 

information from Emergency Public Information and Warning 
Target Capabilities List 61 

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 
62 Target Capabilities List

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Resource Element Description 

Resource Elements Components and Description

National Leadership for 

Community Preparedness and 

Participation 

National leaders from White House, Secretaries of key Federal agencies, State 

governors, military leadership, and congressional representation—organized to 

provide a national voice to promote the integration of citizens into the DHS 

mission. 

National Citizen Corps Council Approximately 70 national emergency responder discipline associations, 

NGOs, disability advocacy groups, faith-based organizations, private sector 

associations, and government agencies that promote strategies, plans, and 

exercise guidance to foster governmental/non-governmental collaboration at 

the State and local levels for citizen preparedness and participation. 

Citizen Corps Councils Each Citizen Corps Council is composed of representatives of the emergency 

responder disciplines, civic organizations, NGOs, private sector, faith-based, 

schools, elected leadership, and other community stakeholders. Local 

Councils (tribal, county, or city level) oversee local citizen opportunities for 

education, training/exercises, and volunteer support. Local Councils require 

adequate supplies and equipment and a minimum of one dedicated staff. 

Public Education Specialists Specialists to educate the public in the four mission areas of preparedness and 

to promote volunteer opportunities. State level specialists educate and support 

the public in developing knowledge, skills, and abilities (both universal and 

risk-based) to support the four mission areas and to promote volunteer 

opportunities. Local level specialists focus on education and also ensure 

alerts/warning and crisis communications are adequate. All include resources 

to develop and reproduce adequate numbers of outreach materials. 

National Training Clearing 

House 

Clearing house of citizen training courses, to provide training materials for all 

States. Includes classroom and online courses/resources. 

State Training Team Train-the-trainer instructors for pre-incident training and post incident just-intime training. 

Citizen Preparedness Team Teams of individuals based in neighborhoods, workplaces, schools, faith based 

organizations, military, who prepare themselves with basic necessities—food, 

water, medicine, power, communications equipment, shelter, and emergency 

plans; adequate number of members also receive training in first aid and 

emergency response skills. Identified leader reports status up the 

organizational/community chain. Includes team equipment, as applicable, and 

supplies, such as emergency disaster kit for home, work and vehicle—

sufficient food, water, medicine, etc. 

Volunteer Support: Year Round Volunteer services coordinated through Citizen Corps Councils to support 

emergency responders, providing emergency responders with more time for 

primary professional duties (i.e. provide administrative support, patrolling, 

public education or as needed by discipline). Example programs include: 

Volunteers in Police Service, Medical Reserve Corps, Fire Corps, Community 

Emergency Response Teams, and Citizens Watch programs. 

Volunteer Support: Surge “NIMS -credentialed” volunteers to support ESFs, emergency response and 

recovery, as needed. Volunteers are identified in advance of incidents and 

agree to perform pre-defined roles in accord with the certifications they 

receive. Ad hoc training for surge support is also anticipated. Volunteer roles 

include transportation, communications, mass care, resources management, 
Target Capabilities List 63 

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Resource Elements Components and Description

public health and medical services, search and rescue, public safety and 

security, long-term community recovery and mitigation, external affairs, and 

affiliated volunteers and unsolicited donations management. 

Planning Assumptions 

(Unless otherwise noted, all population data is from 2000 census) 

 People with disabilities, the very young and the very old, people with language barriers, and low 

income populations are adversely affected in all incidents. All resource organizations and activities 

include consideration and opportunities for participation for people with disabilities, non-English 

speaking populations, and those with low income 

 The medical community is functioning close to peak capacity at time of incident and will need surge 

capacity from trained volunteers. 

 Emergency services will be overwhelmed and will need surge capacity from non-governmental 

resources. 

 With the exception of hurricanes and early signs of biological infection, there will be no warning 

before incidents occur. 

 Steps taken before an incident occurs (such as planning, training, exercises, and equipment) have a 

significant impact on reducing loss of life and property. 

 Professional responders and volunteers may get ill or fail to participate as expected due to fear of 

getting sick, or perceived greater need to care for their own families. 

 Alerts/warnings and emergency public information will need to be provided in multiple languages, 

multiple formats, and through multiple venues. 

 The 2000 census estimated 280 million people and 109 million households in the U.S. (actual 

population now estimated at over 298 million.) 

 85% of the U.S. population is over 9 years of age and under 85 years of age. 

 90% of the total U.S. population lives in an area with high-risk for at least one major hazard/threat. 

Assuming that 80% of this should be trained, the target population is 72% of the total population 

(80% of the 90% at-risk base). 

 58% of the total U.S. population lives in metropolitan areas with 1 million or more residents. 

 Civic organizations, places of worship, youth organizations, business associations, NGOs and other 

groups are willing to embrace hometown security and provide information and opportunities to get 

involved to their members. 

 25% of U.S. population aged 3 and older attended school in spring of 2002 (nursery school through 

grad school). 

 64% of the U.S. population aged 16 and over is in the labor force. 

 84% of the U.S. population self-identifies with a religious belief and 43% of this group report 

attending worship services “weekly or more,” representing over 100 million people attending worship 

services weekly or more (35% of the total U.S. population). 

 20% of the U.S. population self reports some type of long lasting condition or disability. 

 4.5% of the U.S. population is 75 years of age or older, over 12 million people. 

 12% of U.S. population reported 1999 family incomes below poverty threshold. 

 42% of households have at least one personal computer in the home. 
64 Target Capabilities List

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

 There are 800,000 sworn law enforcement officers in the U.S. or 1 officer for every 350 people. 

 There are 1.1 million firefighters in the U.S. (73% are volunteer) or 1 firefighter for every 255 people. 

 There are 860,000 personnel at all levels of pre-hospital service: basic EMT, intermediate EMT, and 

paramedics or 1 for every 325 people. 

 There are approximately 2.76 million “emergency responders (law, fire, EMT/paramedic” in the U.S., 

less than one percent of the total U.S. population. Thus 20% surge capacity represents 560,000 

trained volunteers. 

 Liability concerns do not preclude volunteers from participating. 

 Emergency Management Assistance Compact (EMAC) agreements encompass NIMS-credentialed 

volunteers and NIMS-typed resources from non-governmental organizations and entities. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource Organization Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

National Leadership for 

Community Preparedness and 

Participation 

Level of leadership 

necessary to achieve 

awareness of and content 

for universal/risk-based 

capabilities disseminated 

to entire nation 

As required to achieve 

national target 

capabilities 

National Citizen Corps 

Council 

One council can address 

all hazards and scenarios 

 One National Council 

Citizen Corps Councils Tribal, county, and local 

Councils serve 99% of 

the U.S. population; 

 56 State Councils; 

estimated ~2500 

Councils nationwide 

Public Education Specialists At a minimum, each 

State needs 3 education 

specialists to educate 

80% of the population 

20 specialists at the 

national level 

300 specialists at the 

State level across the 

nation. Number of 

specialists by State is 

weighted by State 

population. 

These numbers would 

surge to address crisis 

communications during 

an incident 

National Training 

Clearinghouse 

One clearinghouse serves 

all States 

One National 

Clearinghouse 

State Training Team Each state needs 5 to 20 

instructors 

Approximately 850 

trained instructors; 

number of instructors per 

State is based on State 
Target Capabilities List 65 

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Resource Organization Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

population 

Online courses will also 

be available (see National 

Clearinghouse) 

Citizen Preparedness Team Each person in the highthreat areas participates 

on 2 teams (i.e. 

neighborhood and 

work/school/faith-based) 

80% of 98 million 

households organized 

into citizen preparedness 

teams 

80% of labor force and 

student populations 

organized into teams 

Support ― Year Round Year round volunteers 

are not scenario-driven, 

but can take care of 

responder duties (i.e. 

the non-emergency 

portion―administrative 

activities, office duties, 

research, etc.) 

10% of U.S. population 

(28 million people) 

volunteer an average of 

20 hours per 12 months; 

~5600 million hours per 

12 months 

Support ― Surge Volunteers 

(to be “NIMS-credentialed”) 

 Up to 20% surge of 

current capacity 

Actual surge 

requirement to be 

identified by other 

capabilities 

20% of uniformed 

emergency responders 

(2.8 million) represent 

560,000 trained 

volunteers 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

National 

Leadership for 

Community 

Preparedness and 

Participation 

Federal 

Resource 

Organization 

1 Nationally Federal Establish 

Collaborative 

Structure and 

Process for 

Government and 

Nongovernmental 

Entities at All 

Levels 

Integrate Public 

Outreach and 

Nongovernmental 

Resources into 

Emergency 
66 Target Capabilities List

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Operations Plans 

and Exercises 

Provide Education 

and Training for 

the Public in All 

Mission Areas 

Provide Volunteer 

Opportunities: year 

round and in surge 

operations 

Incident Response 

National Citizen 

Corps Council 

Federal 

Resource 

Organization 

1 Nationally Federal All Activities 

Citizen Corps 

Councils 

Non-NIMS 

Resource 

Organization 

1 Per State State Integrate Public 

Outreach and 

Nongovernmental 

Resources into 

Emergency 

Operations Plans 

and Exercises 

Provide Education 

and Training for 

the Public in All 

Mission Areas 

Provide Volunteer 

Opportunities: year 

round and in surge 

operations 

Incident Response 

Citizen Corps 

Councils 

Non-NIMS 

Resource 

Organization 

1 Per local 

jurisdiction 

Local Integrate Public 

Outreach and 

Nongovernmental 

Resources into 

Emergency 

Operations Plans 

and Exercises 

Provide Education 

and Training for 

the Public in All 

Mission Areas 

Provide Volunteer 

Opportunities: year 

round and in surge 
Target Capabilities List 67 

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

operations 

Incident Response 

Public Education 

Specialists 

Personnel 20 Nationally Federal/State/ 

Local 

Integrate Public 

Outreach and 

Nongovernmental 

Resources into 

Emergency 

Operations Plans 

and Exercises 

Provide Education 

and Training for 

the Public in All 

Mission Areas 

Incident Response 

Public Education 

Specialists 

Personnel 3 – 20 per State; numbers 

based on State 

population, up to 20 

State Integrate Public 

Outreach and 

Nongovernmental 

Resources into 

Emergency 

Operations Plans 

and Exercises 

Provide Education 

and Training for 

the Public in All 

Mission Areas 

Incident Response 

Public Education 

Specialists 

Personnel 1 – 10 per local 

jurisdiction; 

numbers based on 

population, up to 10 

Local Integrate Public 

Outreach and 

Nongovernmental 

Resources into 

Emergency 

Operations Plans 

and Exercises 

Provide Education 

and Training for 

the Public in All 

Mission Areas 

Incident Response 

National Training 

Clearinghouse 

Resource 

Organization 

1 Nationally Federal All Activities 
68 Target Capabilities List

COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

State Training 

Team 

Personnel 5 – 20 Per State; numbers 

based on State 

population 

State Provide Education 

and Training for 

the Public in All 

Mission Areas 

Provide Volunteer 

Opportunities: year 

round and in surge 

operations 

Citizen 

Preparedness Team 

Non-NIMS 

Resource 

Organization 

1 Per neighborhood, 

school, workplace, 

etc. 

 Local Provide Education 

and Training for 

the Public in All 

Mission Areas 

Volunteer Support: 

Year Round 

Non-NIMS 

Resource 

70 million Nationally (1 person 

volunteering an 

average of 12 hours 

per year ~840 

million volunteer 

hours per year) 

Local Provide Volunteer 

Opportunities: year 

round 

Volunteer Surge 

Support: Surge 

Non-NIMS 

Resource 

560,000 Nationally Local Provide Volunteer 

Opportunities: 

surge 

Incident Response 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Emergency Management Accreditation Program (EMAP) Standards. September 2003. 

http://www.emaponline.org/index.cfm. 

5. Emergency Management Assistance Compact (EMAC). 

6. Homeland Security Exercise and Evaluation Program (HSEEP). 

7. Citizen Corps mission, resources and materials: citizen preparedness, training and volunteer program resources: 

Ready, Red Cross, FEMA public education materials; Citizen Corps Guide for Local Officials, CERT, 

Volunteers in Police Service, Medical Reserve Corps, Fire Corps, Neighborhood Watch program materials; and 

citizen preparedness research. http://www.citizencorps.gov 
Target Capabilities List 69 

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

INTELLIGENCE AND INFORMATION SHARING 

AND DISSEMINATION 

Capability Description 

The Intelligence and Information Sharing and Dissemination capability provides necessary tools to enable 

efficient prevention, protection, response, and recovery activities. Intelligence/ Information Sharing and 

Dissemination is the multi-jurisdictional, multidisciplinary exchange and dissemination of information 

and intelligence among the Federal, State, local, and tribal layers of government, the private sector, and 

citizens. The goal of sharing and dissemination is to facilitate the distribution of relevant, actionable, 

timely, and preferably declassified or unclassified information and/or intelligence that is updated 

frequently to the consumers who need it. More simply, the goal is to get the right information to the right 

people at the right time. 

An effective intelligence/information sharing and dissemination system will provide durable, reliable, and 

effective information exchanges (both horizontally and vertically) between those responsible for 

gathering information and the analysts and consumers of threat-related information. It will also allow for 

feedback and other necessary communications in addition to the regular flow of information and 

intelligence. 

Outcome 

Effective and timely sharing of information and intelligence occurs across Federal, State, local, tribal, 

territorial, regional, and private sector entities to achieve coordinated awareness of, prevention of, 

protection against, and response to a threatened or actual domestic terrorist attack, major disaster, or other 

emergency. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs)/Annexes: 

ESF #1: Transportation 

ESF #2: Communications 

ESF #3: Public Works and Engineering 

ESF #4: Firefighting 

ESF #5: Emergency Management 

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

ESF #7: Resource Support 

ESF #8: Public Health and Medical Services 

ESF #9: Urban Search and Rescue 

ESF #10: Oil and Hazardous Materials Response 

ESF #11: Agriculture and Natural Resources 

ESF #12: Energy 

ESF #13: Public Safety and Security 

ESF #14: Long-Term Recovery and Mitigation 

Biological Incident Annex
` 

70 Target Capabilities List

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

Cyber Incident Annex 

Terrorism Incident Law Enforcement and Investigation Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

ComG 1.1.1 Identify all Federal, State, regional, tribal, and local stakeholders for inclusion in the information 

sharing framework 

ComG 1.1.2 Identify non-law enforcement governmental entities and officials for inclusion in the information 

sharing framework 

ComG 1.1.3 

Identify appropriate law enforcement and other enforcement governmental personnel for receipt 

of security clearances at an appropriate level to ensure effective dissemination of critical 

information 

ComG 1.2.1 Develop information sharing network standards: survivable, interoperable, compatible, secure, 

accessible 

ComG 1.2.2 Develop alternate, supplemental, and back-up routing procedures 

ComG 1.3 Develop and maintain operationally sound policies to comply with regulatory, statutory, privacy, 

and other issues that may govern the gathering of information 

ComG 1.4 Develop regulatory, statutory, and/or privacy policies 

ComG 1.4.1 Develop a clearly defined process for preventing, reporting, and addressing the inappropriate 

disclosure of information and/or intelligence 

ComG 1.4.2 Develop a clearly defined mechanism/process (reduced to a single pipeline wherever possible or 

prudent) for sharing information/intelligence between Federal and State sources 

ComG 1.4.3 Establish alternative, supplemental, and back-up mechanisms for routing information and/or 

intelligence to the necessary agencies 

Preparedness Measures Metrics 

Frequency with which informational distribution lists with points of contact are updated Every month 

Relevant Federal, State, regional, local, and tribal authorities have been identified as 

necessary participants in the information sharing process 

Yes/No 

Relevant Federal, State, regional, local, and tribal authorities have access to the necessary 

information sharing systems 

Yes/No 

Memoranda of understanding (MOU) or similar agreements between appropriate entities 

are in place 

Yes/No 

Federal agencies have a process in place to declassify or provide tear lines for relevant 

information and/or intelligence 

Yes/No 

The number of law enforcement and other governmental personnel identified to receive 

security clearances meets jurisdictional requirements/needs 

Yes/No 

Appropriate Federal, State, regional, local, and tribal law enforcement and other Yes/No 
Target Capabilities List 71 

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

governmental personnel receive security clearances at an appropriate level of 

classification 

Regulatory, statutory, and/or privacy policies are in place Yes/No 

Federal, State, regional, local, and tribal law enforcement entities have a clearly defined, 

implemented, and audited process for preventing, reporting, and addressing the 

inappropriate disclosure of information and/or intelligence 

Yes/No 

Clearly defined and documented mechanisms/processes (reduced to a single pipeline 

wherever possible and prudent) for sharing information/intelligence among Federal, State, 

regional, local, and tribal sources are in place 

Yes/No 

Mechanisms/processes for sharing information/intelligence among Federal, State, 

regional, local, and tribal sources are technologically proficient for the entities involved 

Yes/No 

Alternative, supplemental, and back-up mechanisms for routing information and/or 

intelligence to the necessary agencies are available and routinely evaluated 

Yes/No 

Mechanisms within the information sharing network to provide feedback and/or follow-up 

information as needed are in place 

Yes/No 

Local agencies have an established procedure/protocol for providing intelligence products 

or relevant information to street-level law enforcement personnel 

Yes/No 

Fusion Centers/processes ensure the participation of appropriate private-sector entities Yes/No 

The Department of Homeland Security (DHS) Information Sharing and Analysis Center 

(ISAC) program ensures the participation of appropriate private-sector entities 

Yes/No 

Joint Terrorism Task Forces have a process for sharing relevant information with the 

private sector in a timely manner 

Yes/No 

Access to early detection/alert programs and networks and all-source information is 

available (e.g., Public Health Information Network, BioSense, Homeland Security 

Information Network, Information Sharing and Analysis Centers, etc.) as appropriate 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

ComG 2.2.1 Design and conduct exercises to test Intelligence and Information Sharing and Dissemination 

tasks within a single unit and jointly with other jurisdictions and levels of government 

ComG 2.1.1 Train appropriate personnel on intelligence/information sharing and disseminate processes and 

procedures 

Preparedness Measures Metrics 

There are adequate numbers of trained personnel at all levels (especially at dispatch or 

communications centers) to process and disseminate information 

Yes/No 

Personnel are aware of and trained to adhere to pre-defined security clearances and needto-know parameters Yes/No 

Appropriate personnel are trained in processing and disseminating information and 

intelligence 

Yes/No 

Personnel are trained in the process for preventing, reporting, and addressing the 

inappropriate disclosure of information and/or intelligence 

Yes/No 
` 

72 Target Capabilities List

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

Exercises test the process for preventing, reporting, and addressing the inappropriate 

disclosure of information and/or intelligence 

Yes/No 

All appropriate law enforcement personnel have received the Criminal Intelligence 

Coordinating Council (CICC) Outreach Package 

Yes/No 

All appropriate law enforcement personnel promote the concept of intelligence-led 

policing as outlined in the CICC Outreach Package 

Yes/No 

Training and exercise programs include interaction with the private sector operators of 

critical infrastructure 

Yes/No 

Exercises test alternative, supplemental, and back-up mechanisms for routing information 

and/or intelligence to the necessary agencies 

Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Incorporate All Stakeholders in Information Flow 

Definition: Identify and share information with all pertinent stakeholders across all disciplines 

through a clearly defined information sharing system 

Critical Tasks

ComG 3.1 Share information and/or intelligence between Federal, State, local, and tribal levels by using 

clearly defined mechanisms/processes 

ComG 3.1.1 Adhere to predefined security clearances and need-to-know parameters when disseminating 

information and intelligence 

ComG 3.1.2 Comply with regulatory, statutory, privacy-related, and other issues that may govern the sharing 

of information 

ComG 3.1.3 Prevent, report, and/or address inappropriate disclosures of information and/or intelligence 

Performance Measures Metrics 

Compliance with regulatory, statutory, privacy-related, and other issues that govern the 

sharing of information is audited on a regular basis 

Yes/No 

Percent of inappropriate disclosures of information and/or intelligence for which records 

are maintained 

100% 

Percent of inappropriate disclosures of information and/or intelligence that are reported 

and resolved according to established processes 

100% 

Activity: Vertically Flow Information

Definition: Share information vertically (up and down from the Federal level) within law 

enforcement and other appropriate agencies in a timely and effective manner 

Critical Tasks

ComG 4.1 Share intelligence and information systematically between Federal, State, local, and regional 

entities in a timely manner 
Target Capabilities List 73 

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

ComG 4.1.1 Disseminate relevant intelligence and/or information from Federal or State entities to local 

authorities in a usable format and in a timely manner 

ComG 4.1.3 Disseminate relevant information and/or intelligence products to street-level law enforcement 

personnel 

ComG 4.1.2 Provide relevant intelligence and/or information from local authorities to Federal or State entities 

in a usable format and in a timely manner 

ComG 4.2.2 Declassify or provide tear lines for relevant information and/or intelligence 

Performance Measures Metrics 

Time in which relevant information received from the fusion center is disseminated to 

street-level personnel 

Within 12 hours from 

receipt at the fusion 

center 

Percent of law enforcement intelligence/information passed to local authorities that is 

deemed useful or actionable 

100% 

Activity: Horizontally Flow Information 

Definition: Share information across disciplines (among fire departments, EMS units, public 

works, the private sector, and so forth) at all levels and across jurisdictions in a timely and 

efficient manner 

Critical Tasks

ComG 5.1 Adhere to horizontal coordination across jurisdictions among law enforcement and other 

appropriate agencies at all levels through effective and timely information sharing 

ComG 5.1.1 Share intelligence and/or information across disciplines in a timely and effective manner 

ComG 5.2 

Structure dissemination and information sharing mechanisms so that private-sector entities 

receive accurate, timely, and unclassified information that is updated frequently and is consistent 

with their formal intelligence requirements 

Performance Measures Metrics 

A clearly defined process or procedure is used to disseminate information and products Yes/No 

Intelligence and/or information is shared across disciplines in a timely manner Yes/No 

Linked Capabilities 

Linked Capability Relationship to Capability 

All Protect Capabilities Intelligence and Information Sharing and Dissemination provides the 

means for sharing data on suspected and actual threats, which prompts 

additional monitoring and the implementation of specific protection 

activities. Monitoring results from the Protect Capabilities is further 

shared as needed through this Capability. 

All Respond Capabilities Intelligence and Information Sharing and Dissemination provides the 

means for sharing data needed to carry out response activities effectively. 

Results of response actions are then further shared as needed through this 

Capability. 
` 

74 Target Capabilities List

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

Linked Capability Relationship to Capability 

Risk Management Intelligence and Information Sharing and Dissemination provides the 

means for sharing threat, vulnerability, and consequence data used in risk 

management. 

Information Gathering and Recognition 

of Indicators and Warnings 

The data gathered through Information Gathering & Recognition is 

communicated through Intelligence and Information Sharing and 

Dissemination 

Counter-Terror Investigation and Law 

Enforcement 

Information needed by Counter-Terror Investigation and Law 

Enforcement to conduct investigations is provided through Intelligence 

and Information Sharing and Dissemination 

Intelligence Analysis and Production Intelligence and Information Sharing and Dissemination provides the 

means for communicating data that is gathered to those that analyze it in 

Intelligence Analysis and Production 

Planning Information provided via Intelligence and Information Sharing and 

Dissemination is used to ensure that plans adequately address terrorist 

threats 

CBRNE Detection Information from CBRNE Detection is transferred to the appropriate 

parties through Intelligence and Information Sharing and Dissemination 

Community Preparedness and 

Participation 

Community participation in awareness is one means by which 

information to be shared is generated. 

Communications Communications provides the necessary structure and systems for 

implementing Intelligence and Information Sharing and Dissemination. 
Target Capabilities List 75 

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

 Information disseminated 

to appropriate stakeholders

Incorporate All 

Stakeholders in 

Information Flow

Stakeholders identified

Vertically Flow 

Information

Horizontally Flow 

Information

Appropriate levels of 

government received 

information

Appropriate disciplines at 

appropriate levels of 

government received 

information

Capability Activity Process Flow

Relationship Linked 

Capabilities

Intelligence/Information Sharing and Dissemination

Risk 

Management

CBRNE 

Detection

All Protect and 

Respond 

Capabilities Provide information

Information 

Gathering and 

Recognition of 

Indicators and 

Warnings

Intelligence 

Analysis and 

Production Analyzed data provided

Planning

Community 

Preparedness and 

Participation

Communications

Information for 

dissemination provided

Raw information for 

dissemination provided

Provide system for 

dissemination

Provide information

Provide information

Provide information

Provide information

Counter-Terror 

Investigation and 

Law Enforcement
` 

76 Target Capabilities List

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

Resource Element Description 

Resource Elements Components and Description

Personnel for sharing operational 

information 

Personnel involved in the operational aspects of information sharing (e.g., 

information technology (IT) personnel, law enforcement, public health, fire, 

emergency medical service (EMS), transportation, and other non-law 

enforcement personnel) 

Personnel for sharing 

information on collaborative 

initiatives 

Federal, State, local, tribal, private sector personnel, and other key stakeholders 

involved in information sharing and collaboration initiatives 

Joint Terrorism Task Forces 

(JTTFs) 

Task forces composed of persons from various government and private 

elements (e.g., law enforcement, public health, local businesses, key 

infrastructure representatives, emergency management, and other first 

responders) 

Fusion center/process personnel Supervisors and other management personnel within fusions centers involved 

in the oversight and execution of defined processes and procedures 

Equipment and systems for 

information sharing and 

collaboration 

Information sharing network architecture (e.g., Regional Information Sharing 

System (RISS)/Law Enforcement Online (LEO), Joint Regional Information 

Exchange System (JRIES), National Law Enforcement Telecommunication 

System (NLETS), FBI Criminal Justice Information System/National Crime 

Information Center (CJIS/NCIC) networks), including hardware and software 

physical and network security 

Information sharing software Data synthesis software (hazard prediction, assessment, and threat modeling 

software); data collection/information gathering software.

Planning Assumptions 

 Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions 

against the United States and its interests. These activities decrease the perpetrators’ chance of 

success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or 

detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless 

of a single type of threat, adversary capability, time or location of incident. Similarly, these 

capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as 

they conduct traditional all-hazards, all-crimes activities. 

 This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related 

National Planning Scenarios. Initial planning, however, has been focused on bombing using 

improvised explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device, 

and a radiological dispersal. 

 Effective prevention depends on timely, accurate, and actionable information about the adversary, 

their operations, their support, potential targets, and methods of attack. Homeland security 

intelligence/information fusion is the overarching process of managing the development and flow of 

information and intelligence across all levels and sectors of government and the private sector on a 

continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to 

emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal 

entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes 

issues. 
Target Capabilities List 77 

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

 Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary 

capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence 

Analysis and Production; and Intelligence and Information Sharing and Dissemination. 

 All appropriate objectives and critical tasks will be exercised regularly at all levels in order to 

measure performance and demonstrate capability. 

 Both the Planning Factors for a Single Incident section and the Approaches for Large-Scale Events 

section have been omitted because there is no incident or large-scale event that necessarily occurs 

before these capabilities come in to play. 

Planning Factors for a Single Incident 

Not Applicable 

Approaches for Large-Scale Events 

Not Applicable 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Personnel for 

sharing operational 

information 

Personnel As Needed Federal/State 

Local 

Incorporate All 

Stakeholders in 

Information Flow 

Vertically Flow 

Information 

Horizontally Flow 

Information 

Personnel for 

sharing information 

on collaborative 

initiatives 

Personnel As Needed Federal/State/ 

Local 

All Activities

Joint Terrorism 

Task Forces 

(JTTFs) 

Personnel As Needed Federal/State/ 

Local 

All Activities

Fusion 

center/process 

personnel 

Personnel As Needed Federal/State/ 

Local 

All Activities

Equipment and 

systems for 

information sharing 

and collaboration 

Equipment As Needed Federal/State/ 

Local 

All Activities

Information 

Sharing Software 

Equipment As Needed Federal/State/ 

Local 

All Activities
` 

78 Target Capabilities List

COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. June 2003. 

http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf. 

5. Information/Intelligence Sharing System Survey. Global Intelligence Working Group. 2001. 

http://it.ojp.gov/documents/intell_sharing_system_survey.pdf. 

6. Fusion Center Guidelines. Global Justice Information Sharing Initiative. July 2005. 

7. The National Criminal Intelligence Sharing Plan. U.S. Department of Justice, Global Justice Information 

Sharing Initiative. 2004. http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf. 

8. Applying Security Practices to Justice Information Sharing. U.S. Department of Justice, Global Justice 

Information Sharing Initiative, Security Working Group. March 2004. 

http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf. 

9. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO03-1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d03715t.pdf. 

10. Doctrine for Intelligence Support to Joint Operations. Joint Publication 2-0. Joint Chiefs of Staff, Director 

of Intelligence. March 2000. http://www.fas.org/irp/doddir/dod/jp2_0.pdf. 

11. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July 

2004. http://www.9-11commission.gov/. 

12. The Homeland Security Advisory Council Prevention and Information Sharing Working Group. 2004. 

13. Fusion Center Initiative. Homeland Security Advisory Council. April 2005. 

14. State, Tribal and Local Intelligence and Information Sharing Initiative. Homeland Security Advisory 

Council. December 2004. 

15. Homeland Security Advisory Council. June 2005. 

16. National Strategy for Homeland Security. Office of Homeland Security. July 2002. 

http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf. 

17. Sector-Specific Intelligence Sharing Analysis Center information. Department of Homeland Security. 

18. Homeland Security Information Network. 

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

19. Information Sharing and Analysis Center program. http://www.isaccouncil.org/about/. 

20. NFPA 1061: Standard for Professional Qualifications for Public Safety Telecommunicator. National Fire 

Protection Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1061 

21. NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications 

Systems. National Fire Protection Association. 2002. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1221 

22. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection 

Association. 2005. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=15
Target Capabilities List 79 

Prevent Mission Area 

Target Capabilities 
80 Target Capabilities List 

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Target Capabilities List 81 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

INFORMATION GATHERING AND 

RECOGNITION OF INDICATORS AND 

WARNINGS 

Capability Definition 

The Information Gathering and Recognition of Indicators and Warning Capability entails the gathering, 

consolidation, and retention of raw data and information from sources to include human sources, 

observation, technical sources and open (unclassified) materials. Unlike intelligence collection, 

information gathering is the continual gathering of only pure, unexamined data, not the targeted collection 

traditionally conducted by the intelligence community or targeted investigations. Recognition of 

indicators and warnings is the ability to see in this gathered data the potential trends, indications, and/or 

warnings of criminal and/or terrorist activities (including planning and surveillance) against U.S. citizens, 

government entities, critical infrastructure, and/or our allies. 

Outcome 

Locally generated threat and other criminal and/or terrorism-related information is identified, gathered, 

entered into an appropriate data/retrieval system, and provided to appropriate analysis centers. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex) 

This capability supports: 

Terrorism Incident Law Enforcement and Investigation Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Pre.A1b 1.1 Develop and maintain operationally sound policies to comply with regulatory, statutory, privacy, 

and other issues that may govern the gathering of information 

Pre.A1b 1.2 Develop and maintain procedures, systems, and/or technology to process the inflow of gathered 

information from all sources in a timely fashion 

Pre.A1b 1.3 Develop and provide States and tribal authorities with information needs clearly defined by the 

Federal community based on the threat environment in a timely manner 

Pre.A1b 1.4 Provide the Federal community with feedback on specificity and relevance of Federal 

information needs products defined by the State 

Pre.A1b 1.5 Communicate information needs from Federal community and States to local law enforcement, 

Tribal, private-sector, and other appropriate personnel as needed and in a timely manner 

Pre.A1b 1.6 Provide feedback from information-gathering entities to the State on specificity and relevance of 

State information needs products 
82 Target Capabilities List 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Pre.A1b 1.7 Develop and communicate baseline indicators and warnings sets from Federal community to 

State and Tribal authorities 

Pre.A1b 1.8 Determine within the Federal community Essential Elements of Information (EEI) that can be 

used to identify terrorist operations 

Preparedness Measures Metrics 

State, tribal, and local areas have a clearly defined, implemented, and audited process in 

their jurisdiction for requesting information from the Federal community, generally 

through their State’s designated senior official

Yes/No 

Key stakeholders in the Federal community have developed clear and concise information 

needs based on the threat environment 

Yes/No 

The Federal community has delivered its information needs to each State’s designated 

senior officials using a clearly defined process 

Yes/No 

Each State’s designated senior officials can verify receipt of information needs from the 

Federal community (or demonstrate an understanding of information needs) 

Yes/No 

Frequency with which Federal community updates its information needs Every 12 months 

Information needs products contain a feedback mechanism Yes/No 

Processes by which State, tribal, and/or local authorities request information from the 

Federal community is in place 

Yes/No 

Process by which the State uniformly and consistently communicates information needs 

to the local level is in place 

Yes/No 

Regulatory, statutory, and/or privacy policies that govern the gathering of information are 

in place 

Yes/No 

A clearly defined process for passing information gathered by law enforcement and other 

agencies during routine day-to-day activities into the information-sharing network is in 

place 

Yes/No 

Feedback is provided to those responsible for gathering information during routine dayto-day activities Yes/No 

The process for passing information gathered by law enforcement and other agencies has 

been audited 

Yes/No 

Law enforcement and appropriate agencies are have audited plans, processes, and 

technology in place that enable them to do the following: 

 Identify items and materials used by criminal and/or terrorist organizations and report 

suspicious activities related to them 

 Gather information on critical infrastructure and other potentially high-risk locations 

and assets 

 Increase information gathering activities regarding critical infrastructure and other 

potentially high-risk locations and assets, during an elevated threat level 

 Coordinate information gathering operations across jurisdictions 

 Process gathered information 

 Provide all operational personnel with the most recent indicators and warnings to 

report 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Percent of jurisdictions that have an established system for public reporting of suspicious 

activity (e.g., 911, tip lines) 

100% 
Target Capabilities List 83 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Appropriate governmental entities operate or participate in public education programs to 

raise public awareness of suspicious activities and how to report them 

Yes/No 

Content and template standards for reported information are in place Yes/No 

Processes, protocols, and technical capabilities to allow extraction of information from 

public, private, and law enforcement databases are in place 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Pre.A1b 2.1.1 Develop and initiate terrorism indicator sets and relationships training programs 

Pre.A1b 2.1.2 Develop and distribute information gathering and reporting programs 

Pre.A1b 2.1.6 Develop and initiate critical infrastructure surveillance technique and criteria 

Pre.A1b 2.1.4 Provide training feedback to Federal trainers 

Preparedness Measures Metrics 

Law enforcement and public safety personnel who shall be trained in information 

gathering and recognition of indicators and warnings have been identified. 

Yes/No 

The following training has been provided to identified personnel: 

 Training in recognizing criminal and/or terrorism indicators and warnings 

 Refresher training in indicators and warnings 

 Training in critical infrastructure (CI) surveillance 

 Advanced training programs 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Federally developed training in recognizing and reporting indicators and warnings at 

identified businesses (via a train-the-trainer program) is conducted 

Yes/No 

Businesses in each jurisdiction that should be targeted for training in indications and 

warnings have been identified 

Yes/No 

Frequency with which government training entities review and update training materials Every 12 months 

Government training entities conduct Federally developed training in recognizing 

indicators and warnings to appropriate State, tribal, and local entities 

Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Gather Information

Definition: Gather information that could be used to identify terrorist operations from all sources 

(e.g., law enforcement, public health, public works, transportation, firefighting and emergency 

medical entities) through routine activities

Critical Tasks

Pre.A1b 3.1 Gather homeland security information during routine day-to-day activities and pass to 

appropriate authorities 

Pre.A1b 3.1.1 Identify items and materials used by criminal and/or terrorist organizations to carry out attacks 
84 Target Capabilities List 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Pre.A1b 3.1.2 Catalog information provided by all sources and retain in a database to enable timely retrieval 

Pre.A1b 3.2 Conduct information gathering operations on critical infrastructure and other potentially highrisk locations or assets 

Pre.A1b 3.3 

Coordinate information gathering activities with relevant local, tribal, State, and Federal entities 

on an ongoing basis, in particular with the Joint Terrorism Task Force (JTTF) in terrorismrelated cases 

Pre.A1b 3.3.1 Establish short, medium, and long term coordinated information gathering policies, procedures 

and systems 

Performance Measures Metrics 

Information was organized, linked, searchable, and easily retrievable Yes/No 

Information provided by all sources met predefined standards for accuracy, completeness 

and consistency 

Yes/No 

The process for passing information gathered during routing activities was implemented Yes/No 

Information was passed to appropriate authorities using a clearly defined process, utilizing 

predefined network channels 

Yes/No 

The effectiveness of this process was assessed by appropriate agencies Yes/No 

Feedback was provided to those responsible for gathering information Yes/No 

Activity: Identify Suspicious Circumstances

Definition: Recognize and identify suspicious circumstances or indicators and warnings 

associated with planning, support, and operations related to potential criminal and/or terroristrelated activities 

Critical Tasks 

Pre.A1b 4.1 Recognize suspicious activities involving items and materials used by criminal and/or terrorist 

organizations 

Pre.A1b 4.2 

Recognize and identify suspicious circumstances or indicators and warnings that may be 

associated with planning, support, and operations related to potential criminal and/or terroristrelated activities 

Pre.A1b 4.3 Utilize a predefined notification process to advise law enforcement of suspicious activity 

Pre.A1b 4.4 Notify law enforcement of potential terrorist activities in/around or related to private sector 

businesses/operations 

Performance Measures Metrics 

Law enforcement personnel followed-up with a reporting organization if more information was 

necessary 

Yes/No 

Law enforcement personnel acted on authenticated information Yes/No 

Law enforcement personnel used approved response protocols to dispatch the appropriate 

public or private sector personnel to the potential threat 

Yes/No 

Upon examination at the incident scene, law enforcement or related personnel were able to 

differentiate suspicious behaviors and activities from illegal or potentially threatening actions 

Yes/No 
Target Capabilities List 85 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Key private-sector businesses used an established communication avenue to report suspicious 

activities to appropriate Federal, State, local, or tribal law enforcement entities 

Yes/No 

The general public has been advised how to recognize suspicious activity (e.g., 911 tip lines, 

etc.) 

Yes/No 

The general public was familiar with and used a predefined notification process to advise law 

enforcement of suspicious activity 

Yes/No 

Activity: Screen Information

Definition: Receive, authenticate, and screen information for relevance, with the appropriate level 

of oversight/supervision and in a timely manner 

Critical Tasks

Pre.A1b 5.1 Provide guidance to create linked, compatible national database architecture 

Pre.A1b 5.2 Query databases or records to check for significance of information 

Pre.A1b 5.3 Maintain and update procedures and/or systems to process the inflow of gathered information 

from all sources in a timely fashion 

Performance Measures Metrics 

Relevant personnel had access to systems or technology in order to enter gathered 

information 

Yes/No 

Database systems were linked and compatible allowing for rapid transmission and 

processing of pertinent information 

Yes/No 

Gathered information was processed using clearly defined procedures Yes/No 

Information was traceable, allowing for easy communication between disseminator and 

analyst 

Yes/No 

Procedures for tracking information were audited Yes/No 

All pertinent information was cataloged and databased to enable timely retrieval Yes/No 

Intelligence related to high risk infrastructure or an acute threat was prioritized and 

reported as soon as it was observed 

Yes/No 

Information provided by all sources was corroborated Yes/No 

Information was catalogued and files are maintained in accordance with standards in the 

Fusion Center Guidelines

Yes/No 

Information was extracted in accordance with approved processes, protocols, and 

technical capabilities 

Yes/No 
86 Target Capabilities List 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Linked Capabilities 

Linked Capability Relationship to Capability 

Animal Disease Emergency Support Animal Disease Emergency Support monitoring activities may provide 

a source of data for Information Gathering 

CBRNE Detection Data from detection devices/processes may be a source of data for 

Information Gathering 

Community Preparedness and 

Participation 

Information provided by citizens via hot lines and other collection 

centers may be a source of data for Information Gathering 

Food and Agricultural Safety and 

Defense 

Food and Agricultural monitoring activities may provide a source of 

data for Information Gathering 

Intelligence Analysis and Production Information Gathering provides the data used by Intelligence Analysis 

and Production 

Intelligence and Information Sharing 

and Dissemination 

Intelligence and Information Sharing provides the means for collecting 

the data from various sources 

Counter-Terror Investigation and Law 

Enforcement 

Data gathered through Counter-Terror Investigation and Law 

Enforcement may provide a source of data for Information Gathering 

Laboratory Testing Laboratory analysis may provide a source of data for Information 

Gathering 

Epidemiological Surveillance and 

Investigation 

Epidemiological surveillance may provide a source of data for 

Information Gathering 

Critical Infrastructure Protection Critical Infrastructure Protection is a source of data for Information 

Gathering 
Target Capabilities List 87 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Gather 

Information

Screen 

Information

Identify Suspicious 

Circumstances

Potential indicators and warning 

reported

Capability Activity Process Flow

Relationship Linked 

Capabilities

Information Gathering and Recognition of Indicators 

and Warnings Capability

Intelligence 

Analysis and 

Production

End: Forward Information 

for analysis

All Protect and 

Respond 

Capabilities Raw data may be provided

CBRNE Detection Raw data provided

Community 

Preparedness and 

Participation

Raw data provided

Provide information

Intelligence/

Information 

Sharing and 

Dissemination

Means for data collection 

provided

Counter-Terror 

Investigation and 

Law Enforcement Raw data provided

Animal Disease 

Emergency 

Support

Raw data provided

Laboratory 

Testing Raw data provided

Epidemiological 

Surveillance and 

Investigation

Raw data provided

Critical 

Infrastructure 

Protection

Raw data provided
88 Target Capabilities List 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Resource Element Description 

Resource Elements Components and Description

Information gathering personnel Multi-agency/discipline personnel at all levels to support information 

identification, gathering, and recognition (e.g., medical personnel, law 

enforcement, etc.) 

Information processing personnel Personnel at all levels to process (receive, authenticate, and screen) 

information 

Joint Terrorism Task Force 

(JTTF) 

Task forces formed at the local level and composed of persons from various 

government and private entities (e.g., law enforcement, public health, local 

businesses, key infrastructure representatives, emergency management and 

other first responders) 

Public reporting system System for public reporting of suspicious activity (911, tip lines, etc.) 

Information gathering systems and 

equipment 

Surveillance and detection systems/equipment, data gathering and analyzing 

systems (dedicated software), access to early detection/alert programs and 

networks, and all-source information 

Planning Assumptions 

 Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions 

against the United States and its interests. These activities decrease the perpetrators’ chance of 

success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or 

detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless 

of a single type of threat, adversary capability, time or location of incident. Similarly, these 

capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as 

they conduct traditional all-hazards, all-crimes activities. 

 This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related 

National Planning Scenarios. Initial planning, however, has been focused on bombings using 

improvised explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device, 

and a radiological dispersal. 

 Effective prevention depends on timely, accurate, and actionable information about the adversary, 

their operations, their support, potential targets, and methods of attack. Homeland security 

intelligence/information fusion is the overarching process of managing the development and flow of 

information and intelligence across all levels and sectors of government and the private sector on a 

continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to 

emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal 

entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes 

issues. 

 Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary 

capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence 

Analysis and Production; and Intelligence and Information Sharing and Dissemination. 

 All appropriate objectives and critical tasks will be exercised regularly at all levels in order to 

measure performance and demonstrate capability. 

 Both the Planning Factors for a Single Incident section and the Approaches for Large-Scale Events 

section have been omitted because there is no incident or large-scale event that necessarily occurs 

before these capabilities come in to play. 
Target Capabilities List 89 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

Planning Factors for a Single Incident 

Not Applicable 

Approaches for Large-Scale Events 

Not Applicable 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) Lead 

Capability 

Activity 

supported by 

Element 

Information 

gathering personnel 

Personnel As Needed Federal/State/ 

Local/Private 

Sector 

Gather Information 

Screen Information 

Identify Suspicious 

Circumstances 

Information 

processing 

personnel 

Personnel As Needed Federal/State/ 

Local 

Gather Information 

Screen Information 

Identify Suspicious 

Circumstances 

Joint Terrorism 

Task Force (JTTF) 

Federal 

Resource 

Organization 

As Needed Federal Gather Information 

Screen Information 

Identify Suspicious 

Circumstances 

Public reporting 

system 

Equipment As Needed Federal/State/ 

Local 

Gather Information 

Screen Information 

Identify Suspicious 

Circumstances 

Information 

Gathering Systems 

and Equipment 

Equipment As Needed Federal/State/ 

Local/Private 

Sector 

Gather Information 

Screen Information 

Identify Suspicious 

Circumstances 

References 

1. Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. June 2003. 

http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf. 

2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

3. National Response Plan. U.S. Department of Homeland Security. December 2004. 

4. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

5. U.S. Department of Homeland Security Priority Information Requirements. July 2004–January 2005. 
90 Target Capabilities List 

PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS 

6. Applying Security Practices to Justice Information Sharing, Version 2. U.S. Department of Justice, Global 

Justice Information Sharing Initiative, Security Working Group. March 2004. 

http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf. 

7. Fusion Center Guidelines. Global Justice Information Sharing Initiative. July 2005. 

8. The National Criminal Intelligence Sharing Plan. Global Justice Information Sharing Initiative, U.S. 

Department of Justice. Revised June 2005. 

http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf. 

9. Fusion Center Initiative. Homeland Security Advisory Council. April 2005. 

10. State, Tribal, and Local Intelligence and Information Sharing Initiative. Homeland Security Advisory 

Council. December 2004. 

11. Private Sector Information Sharing Initiative. Homeland Security Advisory Council. June 2005. 

12. Homeland Security Information Network. 

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

13. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO–

03–1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d03715t.pdf. 

14. Information/Intelligence Sharing System Survey. Global Intelligence Working Group. 2001. 

http://it.ojp.gov/documents/intell_sharing_system_survey.pdf. 

15. Doctrine for Intelligence Support to Joint Operations. Joint Publication 2-0. Joint Chiefs of Staff, Director 

of Intelligence. March 2000. http://www.fas.org/irp/doddir/dod/jp2_0.pdf. 

16. National Strategy for Homeland Security. Office of Homeland Security. July 2002. 

http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf. 

17. Report on the U.S. Intelligence Community’s Prewar Intelligence Assessments on Iraq. Select Committee 

on Intelligence, U.S. Senate, 108th Congress. July 2004. http://intelligence.senate.gov/iraqreport2.pdf. 

18. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July 

2004. http://www.9-11commission.gov/. 
Target Capabilities List 91 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

INTELLIGENCE ANALYSIS AND PRODUCTION 

Capability Definition 

Intelligence Analysis and Production is the merging of data and information for the purpose of analyzing, 

linking, and disseminating timely and actionable intelligence with an emphasis on the larger public safety 

and homeland security threat picture. This process focuses on the consolidation of analytical products 

among the intelligence analysis units at the Federal, State, local, and tribal levels for tactical, operational, 

and strategic use. This capability also includes the examination of raw data to identify threat pictures, 

recognize potentially harmful patterns, or connect suspicious links to discern potential indications or 

warnings. 

Outcome 

Timely, accurate, and actionable intelligence/information products are produced in support of prevention, 

awareness, deterrence, response, and continuity planning operations. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports: 

Terrorism Incident Law Enforcement and Investigation Incident Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Pre.A1c 1.1.1 Provide terminology/lexicon glossary from Federal Government to all relevant fusion 

center/process entities to eliminate agency-to-agency terminology confusion 

Pre.A1c 1.1.2 Use tear-line formats to ensure that State, local and/or tribal officials with varying levels of 

clearance have access to useful information 

Pre.A1c 1.1.3 Develop a broad, national, uniform template for analytic products 

PreA1c 1.2 Provide guidance for planners to develop their own current intelligence products, indications and 

warnings at all levels 

PreA1c 1.2.1 Develop guidance for establishing threat at the management level 

PreA1c 1.3 Develop means to share regional and State indications and warnings 

PreA1c 1.3.1 Develop memoranda of understanding for information sharing with other fusion centers 

PreA1c 1.3.2 Develop guidelines for tailoring information according to audience 

PreA1c 1.4 Develop plans and procedures for establishing and staffing fusion center 

PreA1c 1.4.1 Develop job descriptions and training requirements for personnel 
92 Target Capabilities List 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Preparedness Measures Metrics 

A State fusion center strategy is in place that: 

 Conforms to Fusion Center Guidelines

 Provides for a coordinated interface to the Federal Government

Yes/No 

Yes/No 

Fusion center/process participants ensure that analysts understand the tailoring for the 

different audiences to which they provide information/intelligence 

Yes/No 

Memorandums of understanding define processes and responsibilities for information 

sharing and ensure de-confliction with other fusion centers/processes 

Yes/No 

Appropriate State and local entities provide personnel to the fusion center/process as 

required 

Yes/No 

Analysts are granted appropriate clearances by the Department of Homeland Security (DHS) Yes/No 

Job descriptions reflect the region’s applicable risks, threats, and critical infrastructure Yes/No 

Federal standards to pre-qualify the fusion center/process in physical and clearance 

requirements to receive, store, and control secret/secure information are in place 

Yes/No 

State and local entities adhere to Federal standards for the fusion center/process in physical 

and clearance requirements to receive, store, and control secret/secure information 

Yes/No 

All State, local, and tribal law enforcement information/intelligence databases comply with 

national standards and are completely compatible for data transmission between pertinent 

agencies 

Yes/No 

A clearly defined process to establish threat at the management level, consistent with 

established intelligence community standards, is in place 

Yes/No 

A clearly defined process for developing an unclassified briefing is in place Yes/No 

Frequency with which a standardized classified-to-unclassified information review process 

(including ratio) is conducted 

Every 12 months 

Unclassified briefings, reports, and alerts are used whenever possible to provide credible 

information that allows public safety, private-sector, and non-law enforcement agencies to 

develop intelligence- and information-driven prevention plans without compromising 

sources or collection methods 

Yes/No 

Analysts are able to understand and identify links between terrorism-related intelligence and 

information related to traditional criminal activity so they can identify activities that are 

indicative of an imminent or potential threat 

Yes/No 

All personnel demonstrate necessary knowledge of the operating systems and intelligence 

processes required to perform intelligence functions 

Yes/No 

Participating agencies have been provided a glossary of terms, updated every 12 months, to 

the center/process 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Pre.A1c 2.1.1 Train permanent and assigned analytical staff on the intelligence cycle and developing analytic 

products 
Target Capabilities List 93 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Pre.A1c 2.1.2 Develop national standard for training fusion center/process staff 

Preparedness Measures Metric

Each analyst has met a minimum standard for hours of training Yes/No 

Training has met International Association Law Enforcement Analytic Standards from 

Global Intelligence Working Group and International Association of Law Enforcement 

Intelligence Analysts (GIWG/IALEIA) based standards (basic, intermediate, advanced) 

Yes/No 

Percent of personnel trained in the intelligence cycle 100% 

Basic and advanced intelligence analysis training is provided for intelligence operations 

personnel (e.g., commanders/supervisors, officers, analysts) 

Yes/No 

Percent of fusion center/process staff who receive annual awareness training on relevant 

privacy and security rules, and regulations (28 CFR and any other relevant State statutes and 

regulations) 

100% 

Analysts at relevant agencies and centers/processes are trained to identify precursors and 

links between crime and terrorism 

Yes/No 

Analytic staff are properly trained and/or experienced in relevant analytical methods and 

practices 

Yes/No 

Percent of analysts at relevant agencies and centers/processes who are trained in the use of 

analytic methods and tools 

100% 

Participants have established procedures per the International Association of Law 

Enforcement Analytic Standards (GIWG/IALEIA) to benchmark analysts’ capabilities 

Yes/No 

Percent of personnel who demonstrate necessary knowledge of the operating systems and 

intelligence processes required to perform intelligence functions 

100% 

Analytic staff are knowledgeable in the region’s applicable risks, threats, and critical 

infrastructure 

Yes/No 

Permanent and assigned analytical staff are trained to meet their responsibilities Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Establish Fusion Center 

Definition: Establish and operate a multidisciplinary, all-source information/intelligence fusion 

center/process that undertakes an “all-hazards” and “all-crimes” approach 

Critical Tasks 

Pre.A1c 3.1 Establish and maintain a fusion center/process using the national guidelines and standards; colocate with an existing entity if practicable/desirable 

Pre.A1c 3.2 Sustain technical and procedural connectivity with critical intelligence and information streams 

Pre.A1c 3.2.1 Access intelligence and information repositories at all levels of classification as necessary 

Pre.A1c 3.2.2 Ensure appropriate technological redundancy 

Pre.A1c 3.5 Incorporate the fusion center/process principles of the Criminal Intelligence Model Policy 

(International Association of Chiefs of Police [IACP]) 

Pre.A1c 3.3 Establish and maintain communications, including electronic connectivity with other region 

fusion center/processes 
94 Target Capabilities List 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Pre.A1c 3.4 Relay/pass terrorist-related information to the FBI Joint Terrorism Task Force (JTTF) and FBI 

Field Intelligence Group (FIG) 

Pre.A1c 3.6 Adhere to privacy and security rules in operating fusion center/process 

Performance Measures Metrics

Key leaders have established and maintained a fusion center/process using the national 

guidelines and standards per the Global Justice Information Sharing Initiative—Fusion 

Center Guidelines and Homeland Security Advisory Council (HSAC) recommendations, 

(Fusion Center Resource CD) 

Yes/No 

Percent of fusion center staff who have the requisite training and expertise to handle the 

receipt, analysis, and dissemination of intelligence 

100% 

The fusion center is appropriately staffed during all operational hours Yes/No 

Information is effectively shared and received using the fusion center technology Yes/No 

The center makes use of the relevant networks, classified and unclassified (e.g., Regional 

Information Sharing Systems/Law Enforcement Online (RISS/LEO), Homeland Security 

Information Network (HSIN), and various public health networks) 

Yes/No 

Access to and from the fusion center/process by those responsible for gathering 

information is done in accordance with established procedures 

Yes/No 

Efficient connectivity exists with the Joint Terrorism Task Force (JTTF) and Field 

Intelligence Guide (FIG)) 

Yes/No 

Staffing of analysts is conducted in accordance with national standards outlined in the 

Law Enforcement Analytic Standards produced by the Global Intelligence Working 

Group and International Association of Law Enforcement Intelligence Analysts 

(GIWG/IALEIA) 

Yes/No 

The fusion center/process is assigned personnel with diverse subject matter expertise from 

key departments, organizations, agencies or offices on a permanent, or liaison basis 

Yes/No 

The fusion center/process received, stored, and controlled secret/secure information Yes/No 

The center/process uses an accessible repository for analytic methods/tools/techniques Yes/No 

A clearly defined process or procedure is used to disseminate information and products Yes/No 

Activity: Access Information 

Definition: Obtain access to and receive collected information associated with the respective 

territory of the fusion center 

Critical Tasks

Pre.A1c 4.1 

Receive, extract, or collect information from all available sources, including all relevant 

databases and systems available to the State fusion center, on a continuous basis and with 

appropriate technological redundancy 

Pre.A1c 4.2 

Ensure that unclassified briefings, reports and alerts are used whenever possible to provide 

credible information that allows public safety, private sector and non-law enforcement agencies 

to develop intelligence- and information-driven prevention plans without compromising source 

or collection methods 
Target Capabilities List 95 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Performance Measures Metrics

Secret/secure information is received, stored, and controlled in accordance with Federal 

standards established to prequalify the fusion center/process in physical and clearance 

requirements 

Yes/No 

Percent of State, tribal, and local law enforcement databases that are Global Justice XML 

Data Model (JDXM)-compliant 

100% 

Unclassified briefings are established using the established process Yes/No 

The standardized classified to unclassified information review process (including ratio) is 

used 

Yes/No 

Feedback procedures are followed Yes/No 

Activity: Analyze Information/Intelligence 

Definition: Integrate and analyze relevant information/intelligence 

Critical Tasks

Pre.A1c 5.1 Prioritize intelligence based on relevance of the information and the finished intelligence 

products to potential threat elements 

Pre.A1c 5.2.1 Blend, reconcile, and de-conflict data, information, and intelligence received from multiple 

sources 

Pre.A1c 5.2.2 Identify patterns and trends that may indicate emerging, immediate or long-term threat condition 

Pre.A1c 5.2.3 Identify links between terrorism related intelligence and information related to traditional 

criminal activity so as to identify activities indicative of an imminent or potential threat 

Pre.A1c 5.2.4 Utilize any and all relevant and useful analytic methodologies, tools, and technology to provide a 

more comprehensive and useful product 

Performance Measures Metrics

Audit standards are used to review work products Yes/No 

Analysts’ capabilities are assessed using procedures per the International Association of 

Law Enforcement Analytic Standards (GIWG/IALEIA) 

Yes/No 

Percent of participants who have and use a national template for analytic products 

provided by Federal authorities 

100% 

The volume of transactions using information networks are recorded Yes/No 

Actions taken in light of transactions using information networks are tracked Yes/No 
96 Target Capabilities List 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Activity: Develop Analytic Products 

Definition: Develop analytic products that are consumer-tailored, clear, and objective and support 

the development of performance-driven, risk-based prevention, protection, and response 

programs at all levels 

Critical Tasks

Pre.A1c 6.1 Provide briefings, reports and/or alerts tailored to recipients with detailed, specific information 

on actions or activities that may be indicative of an emerging threat 

Pre.A1c 6.2 Analyze information needs on a continuous basis for short- and long-term intelligence 

requirements 

Pre.A1c 6.3 Archive information and intelligence in a searchable repository to support future efforts by all 

fusion analysts 

Pre.A1c 6.4 Vet and review products prior to distribution 

Performance Measures Metrics

Consumer satisfaction with the analytic product is monitored using an established 

producer-to-consumer feedback cycle 

Yes/No 

Analysts tailor requirements for the different audiences to which they provide 

information/intelligence 

Yes/No 

The fusion center/process consults the National Criminal Intelligence Sharing Plan and 

other relevant Federal guidelines for guidance on use of tear-line reports 

Yes/No 

Percent of products vetted prior to distribution using center/process 

procedures/mechanisms 

100% 

Intelligence files are maintained using the standards in the Fusion Center Guidelines Yes/No 

The center/process has an information and intelligence archive Yes/No 

The process used follows the national analytic template in the International Association of 

Law Enforcement Analytic Standards (GIWG/IALEIA) 

Yes/No 
Target Capabilities List 97 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Linked Capabilities 

 Linked Capability  Relationship to Capability 

Information Gathering and 

Recognition of Indicators and 

Warnings 

The data collected from Information Gathering and Recognition is further 

analyzed and processed by Intelligence Analysis and Production 

Counter-Terror Investigation and Law 

Enforcement 

Counter-Terror Investigation and Law Enforcement is one source of data 

analyzed by the Intelligence Analysis and Production capability. The 

products of the Intelligence Analysis and Production capability may further 

inform Counter-Terror Investigation and Law Enforcement investigations. 

CBRNE Detection CBRNE Detection is one source of data analyzed by Intelligence Analysis 

and Production 

Community Preparedness and 

Participation 

Citizen reports of suspicious activities is one source of data analyzed by 

Intelligence Analysis and Production 

Epidemiological Surveillance and 

Investigation 

Epidemiological Surveillance and Investigation contributes data for analysis 

and is provided reports, as appropriate 

Intelligence and Information Sharing 

and Dissemination 

The results of the analyses in Intelligence Analysis and Production are 

disseminated using Intelligence and Information Sharing 

Planning Products that result from Intelligence Analysis and Production are used to 

ensure that plans adequately address terrorist threats 

Risk Management Products from Intelligence Analysis and Production provide the threat, 

vulnerability, and consequence data used in risk management 

 
98 Target Capabilities List 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

End: Intelligence ready for 

dissemination

Establish Fusion 

Center

Fusion Center operational

Analyze 

Information

Analyze 

Information/

Intelligence

Information compiled

Develop Analytic 

Products

Intelligence analyzed

Intelligence processed

Capability Activity Process Flow

Relationship Linked 

Capabilities

Intelligence Analysis and Production Capability

Information 

Gathering and 

Recognition of 

Indicators and 

Warnings

Intelligence/

Information 

Sharing and 

Dissemination

CBRNE 

Detection

Risk 

Management

Community 

Preparedness and 

Participation

Planning

Provide source of data 

for analysis

Provide information

Epidemiological 

Surveillance and 

Investigation

Counter-Terror 

Investigation and 

Law Enforcement
Target Capabilities List 99 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Resource Element Description 

Resource Elements Components and Description

Fusion Center/process A multidisciplinary, all-source information/intelligence fusion center/process 

that undertakes an “all hazards” and “all crises” approach 

Multi-discipline Analysts Analyst personnel for multiple disciplines (e.g., public health, HazMat, etc.) to 

support intelligence analysis 

Intelligence personnel Personnel involved in intelligence analysis at various levels within the 

organization (e.g. analysts, supervisors, officers, etc.) 

Administrative and support 

personnel 

Personnel who perform administrative and support functions (e.g., information 

technology/communications, fusion center staff, security, etc.) 

Public Health Analysts Federal, regional, State, local, tribal, and other appropriate agency public health 

personnel involved in intelligence analysis 

Cleared personnel Personnel possessing valid and current security clearances 

Joint Terrorism Task Forces 

(JTTFs) 

Task forces formed at the local level and composed of persons from various 

government and private elements (e.g., law enforcement, public health, local 

businesses, key infrastructure representatives, emergency management and 

other first responders) 

Hardware, software, and 

internet-based systems 

Hardware, software, and internet-based systems that allow for information 

exchange and dissemination 

Terminals with access to 

information sharing networks 

and early detection/alert 

programs and networks

Information sharing network architecture (e.g., Regional Information Sharing 

System (RISS)/Law Enforcement Online (LEO), Joint Regional Exchange 

System (JRIES), National Law Enforcement Telecommunication System 

(NLETS), FBI Criminal Justice Information Services/National Crime 

Information Center (CJIS/NCIC) networks). 

Access to early detection/alert programs and networks and all-source 

information (i.e., Public Health Information Network, Biosense, Homeland 

Security Information Network, Information Sharing and Analysis Centers, 

etc.). Relevant systems include: RSS/LEO, HSIN, etc. 

Intelligence analysis and 

maintenance tools 

Software and equipment to include surveillance systems/equipment, recording 

systems/equipment analyzing software/systems, data synthesis software, data 

storage 

Data synthesis software Hazard prediction, assessment, and threat modeling software 

Planning Assumptions 

 Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions 

against the United States and its interests. These activities decrease the perpetrators’ chance of 

success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or 

detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless 

of a single type of threat, adversary capability, time or location of incident. Similarly, these 

capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as 

they conduct traditional all-hazards, all-crimes activities. 

 This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related 

National Planning Scenarios. The analysis of national targets focused on bombing using improvised 

explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device, and a 

radiological dispersal. 
100 Target Capabilities List 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

 Effective prevention depends on timely, accurate, and actionable information about the adversary, 

their operations, their support, potential targets, and methods of attack. Homeland security 

intelligence/information fusion is the overarching process of managing the development and flow of 

information and intelligence across all levels and sectors of government and the private sector on a 

continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to 

emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal 

entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes 

issues. 

 The Planning Factors for A Single Incident section and the Approaches for Large-Scale Events 

section do not apply because there is no incident or large-scale event that necessarily occurs before 

these capabilities come in to play. 

 Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary 

capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence 

Analysis and Production; and Intelligence and Information Sharing and Dissemination. 

 All appropriate objectives and critical tasks will be exercised regularly at all levels in order to 

measure performance and demonstrate capability. 

Planning Factors for a Single Incident 

Not Applicable 

Approaches for Large-Scale Events 

Not Applicable 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Fusion 

Centers/process 

Personnel 1 Per jurisdiction/ 

region 

Federal, State, 

Local 

(Intrastate 

region, City) 

Establish Fusion 

Center 

Analyze 

Information 

Analyze 

Information/ 

Intelligence 

Develop Analytic 

Products 

Multi-discipline 

Analysts 

Personnel As Needed Provided from 

appropriate agencies 

on a permanent or 

liaison basis 

Federal/State/ 

Local 

All Activities 

Intelligence 

personnel 

Personnel As Needed Provided from law 

enforcement 

agencies on a 

permanent or liaison 

basis 

Federal/State/ 

Local 

All Activities
Target Capabilities List 101 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Administrative and 

support personnel 

Personnel As Needed Provided from 

appropriate agencies 

on a permanent or 

liaison basis 

Federal/State/ 

Local 

All Activities

Public Health 

Analysts 

Personnel As Needed Provided from 

public health 

agencies on a 

permanent or liaison 

basis 

Federal/State/ 

Local 

All Activities

Cleared personnel Personnel As Needed Federal/State/ 

Local 

All Activities

Joint Terrorism 

Task Forces 

(JTTFs) 

Personnel As Needed Federal/State/ 

Local 

All Activities

Hardware, 

software, and 

internet-based 

systems that allow 

for information 

exchange and 

dissemination 

Systems As Needed Federal/State/ 

Local 

All Activities

Terminals with 

access to 

information sharing 

networks and early 

detection/alert 

programs and 

networks 

Equipment As Needed Per fusion center 

site 

Federal/State/ 

Local 

All Activities

Intelligence 

analysis and 

maintenance tools 

Systems As Needed Per fusion center 

site 

Federal/State/ 

Local 

All Activities 

Data synthesis 

software 

Equipment As Needed Federal/State/ 

Local 

All Activities 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 
102 Target Capabilities List 

PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION 

4. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. June 2003. 

http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf. 

5. Information/Intelligence Sharing System Survey. Global Intelligence Working Group. 2001. 

http://it.ojp.gov/documents/intell_sharing_system_survey.pdf. 

6. Fusion Center Guidelines. Global Justice Information Sharing Initiative. July 2005. 

7. The National Criminal Intelligence Sharing Plan. U.S. Department of Justice, Global Justice Information 

Sharing Initiative. 2004. http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf. 

8. Law Enforcement Analytic Standards. Global Justice Information Sharing Initiative and International 

Association of Law Enforcement Intelligence Analysts, Inc. November 2004. 

9. Applying Security Practices to Justice Information Sharing, Version 2. U.S. Department of Justice, Global 

Justice Information Sharing Initiative, Security Working Group. March 2004. 

http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf. 

10. Central Intelligence Agency (CIA) Fact Book on Intelligence. 

11. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO-03-

1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d03715t.pdf. 

12. Doctrine for Intelligence Support to Joint Operations. Joint Publication 2-0. Joint Chiefs of Staff, Director of 

Intelligence. March 2000. http://www.fas.org/irp/doddir/dod/jp2_0.pdf. 

13. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July 2004. 

http://www.9-11commission.gov/ 

14. Report on the U.S. Intelligence Community’s Prewar Intelligence Assessments on Iraq. Select Committee on 

Intelligence, U.S. Senate, 108th Congress. July 2004. http://intelligence.senate.gov/iraqreport2.pdf. 

15. The Homeland Security Advisory Council Prevention and Information Sharing Working Group. 2004. 

16. Fusion Center Initiative. Homeland Security Advisory Council. April 2005. 

17. State, Tribal and Local Intelligence and Information Sharing Initiative. Homeland Security Advisory Council. 

December 2004. 

18. Private Sector Information Sharing Initiative. Homeland Security Advisory Council. June 2005. 

19. National Strategy for Homeland Security. Office of Homeland Security. July 2002. 

http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf. 

20. Presidential Directive–39: U.S. Policy on Counterterrorism. June 21, 1995. 

http://www.ojp.usdoj.gov/odp/docs/pdd39.htm. 

21. Presidential Directive–62/63: Protection Against Unconventional Threats to the Homeland and Americans 

Overseas. Critical Infrastructure Protection, National Plan for Information Systems Protection. May 22, 1998. 

http://www.fas.org/irp/offdocs/pdd-63.htm 
Target Capabilities List 103 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

COUNTER-TERROR INVESTIGATION AND LAW 

ENFORCEMENT 

Capability Description 

Counter-Terror Investigation and Law Enforcement is the capability that includes the broad range of 

activities undertaken by law enforcement and related entities to detect, examine, probe, investigate, and 

conduct operations related to potential terrorist activities. Current and emerging investigative techniques 

are used with an emphasis on training, legal frameworks, recognition of indications and warnings, source 

development, interdiction, and related issues specific to antiterrorism activities. 

Outcome 

Suspects involved in criminal activities related to homeland security are successfully deterred, detected, 

disrupted, investigated, and apprehended. All counterterrorism-related cases are aggressively prosecuted. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports: 

Terrorism Incident Law Enforcement and Investigation Annex 

ESF #8: Public Health and Medical Services 

ESF #9: Urban Search and Rescue 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

PreC1a 1.1 Establish an infrastructure by which States and local governments can exchange terrorism and 

crime information 

Pre.C1a 1.3 

Develop, implement, and maintain an interagency or multi-jurisdictional training plan that 

ensures commonality in terrorism investigation subject matter being presented to law 

enforcement (State, local, tribal) and non-law enforcement (e.g., Department of Motor Vehicles, 

public health and safety) personnel 

Pre.C1a 1.6 Develop, implement, and maintain a plan for using Federal specialized units or personnel in 

conjunction with an active investigation of a critical event 

Pre.C1a 1.5 

Develop a government-wide program to ensure that the armed services (e.g., maritime forces) 

and appropriate law enforcement agencies have the capability to operate together in a mutually 

supportive and complementary role 

Pre.C1a 1.7 Develop procedures for conducting appropriate background investigations on personnel applying 

for sensitive positions in government, law enforcement, and the private sector 
104 Target Capabilities List 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Preparedness Measures Metrics 

All Federal, State, local, and tribal law enforcement entities have established connections 

with appropriate Joint Terrorism Task Force (JTTF) field offices to establish routine and 

appropriate communications for all personnel 

Yes/No 

Larger jurisdictions or entities have identified a designated liaison with the JTTF Yes/No

Smaller jurisdictions have a procedure in place to communicate with the JTTF, as needed Yes/No

All Federal and tribal entities have established appropriate relationships (e.g., designated 

liaison, part-time liaison) with all JTTF offices 

Yes/No

State and local law enforcement know how to contact the JTTF for any potential terrorism 

threat or activity 

Yes/No

Processes and procedures for law enforcement at all levels to identify and respond to 

suspicious activities and persons through the appropriate channels are in place 

Yes/No

Processes and procedures for law enforcement at all levels to identify individuals planning 

and coordinating terrorist-related activities are in place 

Yes/No

Processes and procedures for law enforcement at all levels to apprehend and interdict 

terrorist suspects are in place 

Yes/No 

Processes and procedures for law enforcement at all levels to gather, catalogue, and 

preserve evidence for prosecutorial purposes and attribution are in place 

Yes/No 

Federal entities have established standard procedures and processes for conducting 

terrorism-related investigations 

Yes/No 

Law enforcement at all levels use memoranda of understanding (MOU) to facilitate the 

conduct of an ongoing investigation 

Yes/No 

Investigative policies, procedures, and processes are reviewed on a periodic basis Yes/No 

The U.S. Department of Homeland Security (DHS) and Department of Justice/Federal 

Bureau of Investigation (DOJ/FBI) provide a comprehensive list of Federal, State, local, 

and tribal resources available to all law enforcement entities and provide updates as 

appropriate 

Yes/No 

An investigative liaison or mechanism to communicate targeted information 

needs/requirements to information collectors is in place 

Yes/No 

Notification processes and procedures to share information to/from Federal, State, local, 

and tribal officials regarding an on-going investigation are in place 

Yes/No 

A mechanism for tracking leads from Federal, State, local, and tribal officials has been 

developed and is maintained so that all entities can view where the information is being 

taken for action 

Yes/No 

State, local, and tribal plans have been revised to include all required changes from the 

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

Yes/No 

Investigative personnel are familiar with the Terrorist Incident Annex to the NRP Yes/No 

Plans and protocols for sharing incident-specific information from Federal partners with 

State, local, and tribal authorities, Emergency Operations Centers (EOCs), and other 

pertinent entities are in place 

Yes/No 

A mechanism for conveying among entities the prevention efforts taken by Federal, State, 

local, and tribal officials is in place 

Yes/No 
Target Capabilities List 105 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

State, local, and tribal law enforcement either possess or have access to special operations 

teams (e.g., SWAT teams) 

Yes/No 

Standard policies and procedures for deploying special operations teams are in place Yes/No 

Sufficient specialized units or personnel exist within the State, local, and/or tribal 

jurisdictions to ensure coverage of at least two simultaneous contingencies 

Yes/No 

State, local, and/or tribal jurisdictions develop and maintain formal MOUs, policies, or 

procedures for accessing specialized units or personnel in an emergency 

Yes/No 

Formal MOUs, policies, or procedures that clearly define the duties and responsibilities of 

Federal specialized units/personnel are in place 

Yes/No 

Appropriate agencies conduct background investigations on individuals applying for 

sensitive positions in government, law enforcement, and the private sector 

Yes/No 

A mechanism for State, local, and tribal law enforcement entities to request/authorize that 

specific Federal specialized units or personnel be assigned to conduct joint operations is 

in place 

Yes/No 

DHS/DOJ/DOD develop and maintain a U.S. Government (USG) plan to attain and 

maintain USG counterterrorism capabilities in a maritime environment 

Yes/No 

DHS/DOJ/DOD identify and implement common doctrine and equipment for the 

maritime environment 

Yes/No 

Designated personnel have an identified source for and access to basic personal protection 

equipment (e.g., Chem/Bio protective mask, protective over-garments) 

Yes/No 

Appropriate processes, procedures, and plans for notifying proper authorities in the event 

of chemical, biological, radiological, nuclear, and explosive (CBRNE) hazards/threats are 

in place 

Yes/No 

Procedures/protocols are in place for relaying CBRNE-related lab analysis (e.g., type, 

quantity, lethality) to FBI laboratory entities are in place 

Yes/No 

Information flow plans/process for onsite personnel and detection capabilities are 

developed for rapidly relaying investigative information 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Pre.C1a 2.1.1 Train appropriate investigative personnel in the proper use of personal protective equipment 

(PPE) 

Pre.C1a 2.1.2 Provide training in general safety procedures for a variety of potentially hazardous environments 

Pre.C1a 2.1.3 Develop and implement interagency terrorism-investigation training plan that ensures 

commonality in terrorism investigation 

Pre.C1a 2.2.2 Design and conduct exercises to test Counter-Terror Investigation and Law Enforcement tasks 

within a single unit and jointly with other jurisdictions and levels of government 

Preparedness Measures Metric 

Federal entities identify and/or develop training and education courses that they will make 

available for all State, local, and tribal entities in the areas of interviewing techniques and 

Yes/No 
106 Target Capabilities List 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

cultural awareness training 

Appropriate law enforcement personnel are trained in the FBI 12-step process of evidence 

collection/preservation 

Yes/No 

State, local, and tribal personnel are trained and educated regarding the Federal assets that 

are available to them 

Yes/No 

State, local, and tribal personnel are trained in appropriate Federal responsibilities in 

prevention and investigation matters 

Yes/No 

Training is tailored to address regional trends/issues by State, local, and tribal officials Yes/No 

Training is repeated/updated at least on a periodic basis Yes/No 

Appropriate personnel are trained in cultural awareness as it relates to terrorism Yes/No 

Appropriate personnel were trained to recognize criminal activity (e.g., money 

laundering) that could be exploited by terrorists and/or related to terrorism investigations 

Yes/No 

Appropriate personnel are trained in source recruitment and development Yes/No 

All law enforcement personnel are educated and trained to recognize terrorist techniques 

and procedures, including suspicious criminal and non-criminal activity and indicators 

Yes/No 

Designated personnel are trained to recognize indicators of a hazardous or contaminated 

environment 

Yes/No 

Designated personnel are trained in the proper use of personal protective equipment (PPE) Yes/No 

All relevant personnel receive safety awareness training from appropriate agencies or 

units (e.g., HazMat, bomb squad, military EOD unit) 

Yes/No 

Appropriate personnel are trained and educated on the NIMS Yes/No 

Communication mechanisms are routinely tested via discussion-based and operationsbased exercises, tabletop exercises (TTX), and functional exercises (FX) to ensure they 

are operating effectively 

Yes/No 

DHS/DOJ/DOD develop and test interoperability capabilities through joint training and 

exercises 

Yes/No 

Training plans are developed independently or in cooperation with other jurisdictions, per 

Federally defined guidelines 

Yes/No 

All jurisdictional training plans designate a centralized training facility and/or lead agency 

responsible for joint training programs 

Yes/No 

All jurisdictional training plans establish a mechanism for notifying/updating participating 

agencies of training opportunities and scheduling 

Yes/No 

Federally sponsored training programs utilize train-the-trainer methods as appropriate to 

enable the broadest possible reach to all levels of government 

Yes/No 

Federally developed awareness training programs relating to legal responsibilities and 

limitations, preservation of potential or suspected crime scenes, and control/custody of 

evidence (videotapes, documents, etc.) are offered to non-law enforcement (public safety, 

code enforcement, public health, and private sector security) 

Yes/No 

Agencies adhere to established policies regarding training intervals and requirements Yes/No 

All State, local, and tribal jurisdictions provide DHS with a list of their cultural awareness 

training needs, in order of priority 

Yes/No 
Target Capabilities List 107 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Performance Tasks and Measures/Metrics 

Activity: Conduct Investigations 

Definition: Carry out effective investigations of criminal/suspicious activities potentially related to 

terrorism

Critical Tasks

Pre.C1a 3.5 Recognize terrorism indications and warnings that arise during the course of investigations 

Pre.C1a 3.6 Conduct targeted outreach with private businesses related to an investigation 

Pre.C1a 3.7 Engage in effective source development activities, including maintaining source confidentiality 

Pre.C1a 3.9 Implement proper procedures and processes when conducting terrorism-related investigations 

Pre.C1a 3.9.1 Follow standard crime-scene procedures 

Pre.C1a 3.5.2 Maintain ability to address CBRNE hazards that may be encountered during the course of an 

investigation 

Pre.C1a 3.9.2 Gather, catalogue, and preserve evidence for prosecutorial purposes and attribution 

Pre.C1a 3.2.1.2 Coordinate with officials from critical infrastructure, key resources, and the private-sector to 

facilitate an investigation 

Pre.C1a 3.5.1 Recognize indicators and warnings of potential terrorist-related activity during criminal 

investigations 

Performance Measures Metrics 

Intelligence related to high-risk infrastructure or an acute threat is prioritized and reported 

as soon as it is observed during the course of an investigation 

Yes/No 

Percent of aw enforcement investigators who are able to recognize and address onsite 

CBRNE hazards encountered during the course of an investigation 

100% 

FBI Hazardous Materials Response Unit (HMRU) collects evidence, processes 

material/evidence, and identifies the source or precursors of CBRNE 

Yes/No 

Law enforcement notifies industry/facilities of the process to identify and report 

suspicious material, activity, or personnel related to the ongoing investigation 

Yes/No 

Law enforcement personnel coordinate with critical resource infrastructure, key resource, 

and private-sector officials to facilitate an investigation 

Yes/No 

Law enforcement personnel follow-up with a reporting organization if more information 

is necessary 

Yes/No 

Law enforcement investigators receive timely threat and intelligence information Yes/No 

Law enforcement contacts the local Joint Terrorism Task Force (JTTF) when a connection 

to terrorism is discovered during a criminal investigation 

Yes/No 

Law enforcement uses investigative information to identify potential vulnerabilities/target 

lists 

Yes/No 

Law enforcement notifies Federal, State, local, and tribal governments how to identify 

and report suspicious material, activity, or personnel related to the ongoing investigation 

Yes/No 

All appropriate entities ensure that sources and methods remain confidential throughout 

the investigative process 

Yes/No 
108 Target Capabilities List 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Activity: Share Information Related to Investigations 

Definition: Receive, develop, and share information to aid in an investigation 

Critical Tasks

Pre.C1a 4.1 Identify and maintain liaisons with appropriate lead Federal terrorism investigation entities. (i.e., 

JTTF) 

Pre.C1a 4.2 Conduct targeted outreach with private businesses, industries, and facilities to assist an 

investigation 

Pre.C1a 4.2.1 Conduct targeted outreach with Federal, State, local, and tribal governments to assist an 

investigation 

Pre.C1a 4.3 Establish, use, and maintain clear lines of reporting for information related to ongoing 

investigations 

Pre.C1a 4.1.1 Contact JTTF in a timely fashion when any nexus to terrorism is discovered 

Pre.C1a 4.3.1 Share investigation-related information across jurisdictions and among law enforcement and 

other agencies as appropriate 

Pre.C1a 4.3.2 Deliver investigation-related information through pre-established channels appropriate for the 

originating source 

Pre.C1a 4.3.3 Follow-up with reporting entity if more information is necessary 

Pre.C1a 4.4 Provide investigators with timely threat and intelligence information 

Pre.C1a 4.5 Follow legal protocols on handling and disseminating information related to an ongoing 

investigation 

Performance Measures Metrics 

Information provided by all sources is delivered through pre-established channels 

appropriate for the originating source 

Yes/No 

Information provided by all sources meets predefined standards for accuracy, 

completeness, and consistency 

Yes/No 

All appropriate entities follow legal protocols on handling and disseminating information 

related to an ongoing investigation 

Yes/No 

Activity: Deploy Specially Trained Personnel 

Definition: Deploy and use specialized units/duly authorized and specially trained personnel for 

search, seizure, and/or intervention/interdiction operations 

Critical Tasks

Pre.C1a 5.1 Maintain access to special operations teams (e.g., SWAT teams) 

Pre.C1a 5.1.2 Maintain access to personnel with specialized skills (e.g., foreign language fluency) 

Pre.C1a 5.1.1 Dispatch special operations teams according to standard policies and procedures 

Pre.C1a 5.2 Conduct tactical deployment 
Target Capabilities List 109 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Pre.C1a 5.3 Conduct surveillance of suspects 

Pre.C1a 5.4 Secure incident scene 

Pre.C1a 5.5 Assess incident and develop action plan 

Pre.C1a 5.6 Conduct hostage negotiations 

Pre.C1a 5.7 Determine and don appropriate PPE 

Pre.C1a 5.8 Conduct tactical entry to disarm, detain, or otherwise render harmless the suspects in accordance 

with the use of force policy/rules of engagement 

Pre.C1a 5.9 Execute search and seizure procedures 

Pre.C1a 5.9.1 Apprehend suspects 

Pre.C1a 5.11 Conduct mission debrief 

Pre.C1a 5.9.2.1 Translate documents and discourse and conduct interviews in languages other than English when 

appropriate 

Pre.C1a 5.10 Immediately share intelligence information from an operation and archive all data in appropriate 

formats to allow for quick retrieval for subsequent analysis and investigation 

Performance Measures Metrics 

Percent of personnel who demonstrate basic knowledge of minimum safe distances and 

how to establish adequate perimeter, containment and decontamination procedures 

100% 

State, local, and tribal law enforcement deploy special operations teams Yes/No 

Law enforcement agencies access personnel with advanced foreign language capabilities Yes/No 

Linked Capabilities 

Linked Capability Relationship to Capability 

All Protect Capabilities Counter-Terror Investigation and Law Enforcement and the Protect 

Capabilities provide each other with investigative support dependent on the 

nature of the investigation 

All Prevent Capabilities Counter-Terror Investigation and Law Enforcement and the remaining 

Prevent Capabilities provide each other with investigative support 

dependent on the nature of the investigation 

On-Site Incident Management Counter-Terror Investigation and Law Enforcement and On-Site Incident 

Management provide each other with situation reports 

Information Gathering and 

Recognition of Indicators and 

Warnings 

Counter-Terror Investigation and Law Enforcement provides raw data to 

Information Gathering and Recognition 

Emergency Operations Center 

Management 

Counter-Terror Investigation and Law Enforcement requests resources from 

Emergency Operations Center Management. Emergency Operations Center 

Management provides Counter-Terror Investigation and Law Enforcement 

with resources. 

Intelligence Analysis and 

Production 

Counter-Terror Investigation and Law Enforcement provides information 

for analysis 
110 Target Capabilities List 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Linked Capability Relationship to Capability 

Emergency Public Safety and 

Security Response 

Emergency Public Safety and Security Response provides Counter-Terror 

Investigation and Law Enforcement s with crowd and traffic control 

Explosive Device Response 

Operations 

Explosive Device Response Operations provides Counter-Terror 

Investigation and Law Enforcement with investigation leads and evidence 

Animal Disease Emergency Support Animal Disease Emergency Support provides Counter-Terror Investigation 

and Law Enforcement with investigation leads and evidence 

Fire Incident Response Support Fire Incident Response Support provides Counter-Terror Investigation and 

Law Enforcement with investigation leads and evidence 

WMD and Hazardous Materials 

Response and Decontamination 

WMD and Hazardous Materials Response and Decontamination provides 

Counter-Terror Investigation and Law Enforcement with investigation leads 

and evidence 

Search and Rescue (Land-Based) Search and Rescue (Land-Based) provides Counter-Terror Investigation 

and Law Enforcement with investigation leads and evidence 

Environmental Health Environmental Health provides Counter-Terror Investigation and Law 

Enforcement with investigation leads and evidence 

CBRNE Detection CBNRE Detection provides raw data for Counter-Terror Investigation and 

Law Enforcement 
Target Capabilities List 111 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

End: Investigation 

Complete

Conduct 

Investigations

Investigation requires 

information sharing

Share Information 

Related to 

Investigations

Capability Activity Process Flow

Relationship Linked 

Capabilities

Counter-Terror Investigation and Law Enforcement 

Capability

On-Site Incident 

Management

CBRNE 

Detection

All Protect

Capabilities

Emergency 

Operations Center 

Management

Information 

Gathering and 

Recognition of 

Indicators and 

Warnings

Intelligence 

Analysis and 

Production

Request resources

Deploy Specially 

Trained Personnel

Provide investigation 

support

Provide sitreps

Resources provided

Provide raw data

Provide data/information for 

analysis

Emergency Public 

Safety and 

Security Response

Perimeter/traffic control

provided

Explosive Device 

Response 

Operations

Fire Incident 

Response Support

Investigation

leads identified and

evidence provided

WMD/Hazardous 

Materials 

Response and 

Decontamination

Search and 

Rescue (LandBased)

Environmental 

Health

All Prevent

Capabilities

Provide investigation 

support

Animal Disease 

Emergency 

Support
112 Target Capabilities List 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Resource Element Description 

Resource Elements Components and Description

Investigative personnel Law enforcement personnel involved in the conduct of investigations of 

criminal/suspicious activities 

JTTFs Task forces formed at the local level and composed of persons from various 

government and private elements (e.g., law enforcement, public health, local 

businesses, key infrastructure representatives, emergency management and 

other first responders) 

Liaisons to JTTFs A government person, designated by larger jurisdictions, to liaise with the 

community’s JTTF 

Evidence collection personnel 

and equipment 

Law enforcement personnel trained in the FBI 12-step process of evidence 

collection/preservation. 

Forensic analysis personnel and 

equipment 

Personnel and equipment at all levels of government involved in the analysis of 

evidence collected from a crime scene or elsewhere 

“Train the trainer” programs Programs to train on Federal assets and roles and responsibilities, terrorism 

indications and warning in criminal investigations, and recognition of 

hazardous materials/threats 

Planning Assumptions 

 Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions 

against the United States and its interests. These activities decrease the perpetrators’ chance of 

success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or 

detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless 

of a single type of threat, adversary capability, time, or location of incident. Similarly, these 

capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as 

they conduct traditional all-hazards, all-crimes activities. 

 This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related 

National Planning Scenarios. Initial planning, however, has been focused on bombing using 

improvised explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device, 

and a radiological dispersal. 

 Effective prevention depends on timely, accurate, and actionable information about the adversary, 

their operations, their support, potential targets, and methods of attack. Homeland security 

intelligence/information fusion is the overarching process of managing the development and flow of 

information and intelligence across all levels and sectors of government and the private sector on a 

continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to 

emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal 

entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes 

issues. 

 Both the Planning Factors for a Single Incident section and the Approaches for Large-Scale Events 

section have been omitted because there is no incident or large-scale event that necessarily occurs 

before these capabilities come in to play. 
Target Capabilities List 113 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Planning Factor Assumptions 

 Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary 

capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence 

Analysis and Production; and Intelligence and Information Sharing and Dissemination. 

 All appropriate objectives and critical tasks will be exercised regularly at all levels in order to 

measure performance and demonstrate capability. 

Planning Factors for a Single Incident 

Not Applicable 

Approaches for Large-Scale Events 

Not Applicable 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number of 

Units 

Unit 

Measure 

(number 

per x) 

Lead Capability Activity 

supported by 

Element 

Investigative 

personnel 

Personnel As Needed (to be 

determined by 

Agency) 

 Federal/State/ 

Local 

Conduct 

investigation 

Share Information 

Related to 

Investigations 

JTTFs Personnel As Needed (to be 

determined by 

Agency) 

 Federal (DOJ/ 

FBI) 

Conduct 

investigation 

Share Information 

Related to 

Investigations 

Deploy Specially 

Trained Personnel 

Liaisons to JTTFs Personnel As Needed (to be 

determined by 

Agency) 

 Federal/State/ 

Local 

Conduct 

investigation 

Share Information 

Related to 

Investigations 

Deploy Specially 

Trained Personnel 

Evidence 

collection 

personnel 

Personnel As Needed (to be 

determined by 

Agency) 

 Federal/State/ 

Local 

Conduct 

Investigation 

Forensic analysis 

personnel 

Personnel As Needed (to be 

determined by 

Agency) 

 Federal/State/ 

Local 

Conduct 

investigation 
114 Target Capabilities List 

PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT 

Resource 

Element Unit 

Type of 

Element 

Number of 

Units 

Unit 

Measure 

(number 

per x) 

Lead Capability Activity 

supported by 

Element 

 

“Train the trainer” 

programs 

Training As Needed Federal Conduct 

investigation 

Share Information 

Related to 

Investigations 

Deploy Specially 

Trained Personnel 

References 

1. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. June 2003. 

http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf. 

2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

3. National Response Plan. U.S. Department of Homeland Security. December 2004. 

4. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

5. Crime Scene Investigation: A Guide for Law Enforcement. U.S. Department of Justice, Office of Justice 

Programs. 1999. http://www.ncjrs.org/pdffiles1/nij/178280.pdf. 

6. Handbook of Forensic Services. U.S. Department of Justice, Federal Bureau of Investigations Laboratory 

Division. 2003. http://www.fbi.gov/hq/lab/handbook/forensics.pdf. 

7. ODP WMD Training Program: Enhancing State and Local Capabilities to Respond to Incidents of Terrorism. 

U.S. Department of Homeland Security, Office for Domestic Preparedness. 2001. 

http://www.ojp.usdoj.gov/odp/docs/coursecatalog.pdf. 

8. NFPA 921: Guide for Fire and Explosion Investigations. National Fire Protection Association. 2004. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=921 

9. NFPA 1033: Standard for Professional Qualifications for Fire Investigator. National Fire Protection 

Association. 2003. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1033
Target Capabilities List 115 

PREVENT MISSION: CBRNE DETECTION 

CBRNE DETECTION 

Capability Definition 

The preventative Chemical, Biological, Radiological, Nuclear, and Explosives (CBRNE) Detection 

capability provides the ability to detect CBRNE materials at points of manufacture, transportation, and 

use. It is important to note that the activities and tasks described in this capability will be carried out 

individually for each specific agent, rather than for all agents at the same time. Therefore, when 

considering critical tasks and preparedness measures, each task and measure should be applied separately 

to each CBRNE agent. For example, in considering whether technical support (or “reachback”) is 

available, rad/nuc “reachback” is considerably different from chemical, biological, or explosive 

“reachback”. Preparedness in one or more of the CBRNE areas does not equate to preparedness across 

the entire CBRNE detection spectrum. 

This capability includes the detection of CBRNE material through area monitoring, but does not include 

detection by their effects (i.e., signs or symptoms) on humans and animals. Such population level 

monitoring is addressed, respectively, in the Epidemiological Surveillance and Investigation and Animal 

Disease Emergency Support capabilities. The CBRNE Detection capability includes the identification and 

communication of CBRNE threats, but does not include actions taken to prevent an incident or respond to 

the consequences of a CBRNE incident, which are also addressed in other capabilities. 

The CBRNE Detection capability includes technology, as well as the capacity to recognize potential 

CBRNE threats through equipment, education, and effective protocols. Training, communication, close 

coordination with key partners, including intelligence, law enforcement, public safety, public health, and 

international partners, and public and private sector awareness of CBRNE threats are all recognized as 

critical enablers for this capability. However, only CBRNE detection-specific tasks within these crosscutting elements have been identified in the discussion of this capability. 

Definitions are as follows: 

• Manufacture: The illegal production of CBRNE material within the borders of the U.S. and its 

territories. 

• Transport: The movement of CBRNE material outside, across, and within the borders of the U.S. and 

its territories. 

• Use: The deployment, emplacement, or employment of CBRNE material within the U.S. and its 

territories. 

Outcome 

 Chemical, biological, radiological, nuclear, and/or explosive (CBRNE) materials are rapidly detected and 

characterized at borders and ports of entry, critical locations, events, and incidents 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs) and Annex: 

ESF #8: Public Health and Medical Services 

ESF #13: Public Safety and Security 

Terrorism Incident Law Enforcement and Investigation Annex 
116 Target Capabilities List 

PREVENT MISSION: CBRNE DETECTION 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems

Critical Tasks

Pre.A1a 1.1 Develop and maintain plans and processes for CBRNE detection and communication operations 

Pre.A1a 1.1.1 Develop regional CBRNE coordination plans or activities involving all Federal, State, local, 

tribal, and private stakeholders 

Pre.A1a 1.1.2 Develop policies and protocols for determining appropriate locations for detection operations 

(“interdiction points”) for each CBRNE agent 

Pre.A1a 1.1.3 Develop processes to identify, acquire, and integrate appropriate detection technology in 

operational environments for each CBRNE agent 

Pre.A1a 1.1.4 Develop protocols for resolving CBRNE alarms 

Pre.A1.a 1.1.5 Develop procedures on how to receive threat information from law enforcement/ intelligence 

agencies regarding CBRNE agents 

Pre.A.1.a 1.1 6 Develop procedures on how to notify appropriate officials of CBRNE detection results 

Pre.A1a 1.2 Develop standards for detection technologies for each CBRNE agent, including sensitivity and 

selectivity standards 

Pre.A1a 1.2.1 Develop and implement global standards for cargo screening ) for each CBRNE agent in 

coordination with Transportation Screening 

Pre.A1a 1.2.2 Develop and implement equipment acquisition and certification standards for each CBRNE 

agent 

Pre.A1a 1.2.3 Develop technology standards for existing detection technologies used by the government and 

private sector for each CBRNE agent 

Pre.A1a 1.2.3.1 Develop technology standards for emerging detection technologies for each CBRNE agent 

Pre.A1a 1.2.4 Validate analytical methods to detect chemical, biological, radiological, nuclear, and explosive 

material 

Pre.A1a 1.3 Establish policies and agreements to enhance and maintain adequate resources and technologies 

for detection operations for each CBRNE agent 

Pre.A1a 1.3.1 Establish coordination and/or mutual aid agreements with external CBRNE detection and alarm 

resolution capabilities 

Pre.A1a 1.3.2 Establish protocols to ensure that technical support (either on-site or “reach back”) is available 

during detection operations for each CBRNE agent 

Pre.A1a 1.3.3 Identify financial and technological gaps in detection resources for each CBRNE agent 

Pre.A1a 1.3.4 Acquire and allocate resources to address identified financial gaps in detection for each CBRNE 

agent 

Pre.A1a 1.3.5 Establish a research and development program to address shortfalls in technologies for detecting 

chemical, biological, radiological, nuclear and explosive material 

Pre.A1a 1.4 Establish policies and agreements to facilitate the sharing and dissemination of information on 

CBNRE detection across stakeholders 

Pre.A1a 1.4.1 Develop processes for obtaining data regarding evolving CBRNE threats in coordination with 

the Information Sharing and Dissemination Capability 
Target Capabilities List 117 

PREVENT MISSION: CBRNE DETECTION 

Pre.A1a 1.4.2 Develop procedures to facilitate the exchange of CBRNE detection-related information and data 

among Federal, State, local and tribal agencies 

Pre.A1a 1.4.3 Establish policies and procedures for detection of each CBRNE agent and the communication of 

CBRNE detection results and warnings 

Pre.A1a 1.4.4 Establish and maintain an interoperable information network for detection of each CBRNE agent 

Pre.A1a 1.5 

Develop and implement a program to conduct detection of each CBRNE agent at critical 

infrastructure/key resources (CI/KR) in coordination with the Critical Infrastructure Protection 

Capability 

Pre.A1a 1.5.1 Conduct a CBRNE threat assessment to CI/KR 

Pre.A1a 1.5.2 Conduct detection requirements analysis for each CBRNE agent for CI/KR 

Pre.A1a 1.5.3 Identify locations to place detection devices at CI/KR for each CBRNE agent 

Pre.A1a 1.5.4 Prioritize and allocate CBRNE detection resources to CI/KR in coordination with Critical 

Infrastructure Protection capability 

Pre.A1a 1.5.5 Deploy fixed and mobile detection resources to CI/KR for each CBRNE agent 

Preparedness Measures Metrics 

Technological shortfalls in detection for each CBRNE agent have been identified Yes/No 

A research and development program to address the detection technological shortfalls for 

each CBRNE agent is in place 

Yes/No 

A program for the timely development of standards for emerging technology is in place Yes/No 

A process to identify, acquire, and integrate appropriate technology in operational 

environments is in place 

Yes/No 

Technical support for each CBRNE agent is available (on-site or through “reach back”) Yes/No 

A standard list of threats of concern for each CBRNE agent is in place Yes/No 

Appropriate levels of detection sensitivity for each CBRNE agent have been selected for 

the identified threats of concern 

Yes/No 

Detection sensitivity thresholds for each CBRNE agent comply with appropriate 

international, national, State, and local standards 

Yes/No 

A regional detection plan for each CBRNE agent has been developed and coordinated Yes/No 

Protocols have been developed and incorporated in plans to communicate CBRNE 

detection activities, locations, anomalies and their resolution to appropriate personnel 

(e.g., intelligence, law enforcement, hazardous materials (HazMat), and public health 

personnel) 

Yes/No 

 Protocols for notifying officials include agency specific call-down lists Yes/No 

Frequency with which CBRNE detection plans are updated to reflect current critical 

infrastructure/key resources (CI/KR) assessments 

Every 12 months 

Appropriate procedures exist for CBRNE detection at critical infrastructure/key resources 

(CI/KR) for specific threat conditions 

Yes/No 

Integrated detection architectures for each of the CBRNE agents exist for all levels of 

government (Federal, State, local, tribal) 

Yes/No 

Gaps in detection capability for each of the CBRNE agents are identified Yes/No 
118 Target Capabilities List 

PREVENT MISSION: CBRNE DETECTION 

A process to acquire and allocate resources and fill CBRNE detection gaps is in place Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Pre.A1a 2.1 Develop and maintain training programs to support CBRNE detection and communication 

operations 

Pre.A1a 2.1.1 Identify personnel for CBNRE detection training 

Pre.A1a 2.1.2 Develop and implement training to enable personnel (e.g., first responders, law enforcement, 

intelligence, and medical community) to recognize the presence of CBRNE material 

Pre.A1a 2.1.3 Establish key personnel training standards for CBRNE detection 

Pre.A1a 2.1.4 Provide CBRNE support equipment and threat device handling training to operations and 

investigation personnel 

Pre.A1a 2.1.5 Develop and implement public education campaigns/ trainings for CBRNE awareness 

Pre.A1a 2.1.5.1 Publish and distribute CBRNE detection awareness material 

Pre.A1a 2.2 Test and exercise CBRNE detection and communication protocols regularly 

Pre.A1a 2.2.1 Conduct after action reports (AARs) and update CBRNE detection and communication 

protocols, as necessary, based on lessons learned during exercises 

Preparedness Measures Metric 

First responders and CI/KR personnel have received awareness level training for each of 

the CBRNE agents 

Yes/No 

Appropriate personnel have been identified for CBRNE detection training (e.g., law 

enforcement, transit police and security, fire department, hazardous materials (HazMat), 

public health, private sector security, and critical infrastructure personnel) 

Yes/No 

Frequency with which detection protocols for each of the CBRNE agents are exercised 

and evaluated 

Every 12 months 

Training for detection operators, laboratory staff, and critical infrastructure personnel has 

been conducted 

Yes/No 

A program to test and evaluate new CBRNE technology in the appropriate operational 

environment is in place 

Yes/No 

Detection training materials have been developed and validated for each CBRNE agent Yes/No 

Percent of required personnel trained to meet jurisdictional CBRNE detection 

requirements 

100% 

Public education campaigns exist for CBRNE detection Yes/No 

The CBRNE detection exercise program is in compliance with Homeland Security 

Exercise and Evaluation Program (HSEEP) guidance 

Yes/No 

Frequency with which CBRNE detection notification plan is exercised Every 3 months 

A process for analyzing exercise results and incorporating lessons learned is in place Yes/ No 
Target Capabilities List 119 

PREVENT MISSION: CBRNE DETECTION 

Performance Tasks and Measures/Metrics 

Activity: Detect CBRNE 

Definition: Operate primary and secondary CBRNE detection technologies at points of illegal 

manufacture, transportation, or use within and across the borders of the U.S. and its Territories 

Critical Tasks

Pre.A1a 3.1 Conduct CBRNE detection operations in communities for illegal manufacture and/or use 

Pre.A1a 3.1.1 Investigate a venue for the possible placement of a CBRNE device 

Pre.A1a 3.1.2 Detect the use of CBRNE material in a community and/or venue 

Pre.A1a 3.1.3 Conduct continuous and ad hoc CBRNE material detection in a community and/or venue 

Pre.A1a 3.1.4 Detect illegal manufacturing of CBRNE material at potential manufacturing sites 

Pre.A1a 3.2 Conduct CBRNE detection operations at key transportation points 

Pre.A1a 3.2.1 Detect CBRNE material on people or items entering/boarding events, aircraft, mass transit, or 

other high impact targets 

Pre.A1a 3.2.2 Inspect and monitor cargo at key interdiction points for potential CBRNE material 

Pre.A1a 3.2.3 Identify potential CBRNE material at key interdiction points requiring further inspection 

Pre.A1a 3.2.4 Detect the ground, air, and sea transport and/or deployment of CBRNE material into and within 

the U.S. and its Territories 

Pre.A1a 3.2.5 Screen people to detect CBRNE material at all ports of entry 

Pre.A1a 3.2.5.1 Screen material (e.g., baggage, mail, etc.) to detect CBRNE material at all ports of entry (e.g., 

sea and airports, border crossing points, etc.) 

Pre.A1a 3.2.6 Provide point and stand-off detection resources 

Pre.A1a 3.3 Conduct CBRNE detection operations at CI/KR locations 

Pre.A1a 3.3.1 Screen people to detect CBRNE material at all CI/KR locations 

Pre.A1a 3.3.2 Screen material (e.g., baggage, mail, etc.) to detect CBRNE material at all CI/KR 

Pre.A1a 3.4 Use intelligence information to focus CBRNE material searches and surveillance activities 

Pre.A1a 3.4.1 Use intelligence information to target suspect containers or shipments 

Pre.A1a 3.4.2 Detect the theft or diversion of CBRNE materials 

Pre.A1a 3.4.3 Coordinate with Animal Health and Epidemiological Surveillance to focus CBRNE detection on 

public health and medical information (e.g., syndromic surveillance and medical diagnostic tests) 

Pre.A1a 3.5 Implement protocols for resolving CBRNE alarms and the detection of suspect material 

Pre.A1a 3.5.1 Document and maintain results from detection alarms and responses 

Performance Measures Metrics 

Illicit chemical, biological, radiological, or explosive material are detected at borders, 

inspection points, or during routine law enforcement investigations 

Yes/No 

Surveillance systems provide early detection of a chemical, biological, or radiological 

release that would facilitate limiting the spread and effect of that release 

Yes/No 
120 Target Capabilities List 

PREVENT MISSION: CBRNE DETECTION 

Checked baggage and cargo entering/boarding events, aircraft, mass transit, or other 

potential targets are screened for CBRNE materials 

Yes/No 

Passengers and event attendees entering/boarding events, aircraft, mass transit, or other 

potential targets are screened for CBRNE materials 

Yes/No 

CBRNE detection efforts are informed by intelligence, public safety, and public health 

information 

Yes/No 

Venues are inspected for potential CBRNE threats prior to major events Yes/No 

Ad hoc CBRNE surveillance capabilities are deployed in response to potential threats Yes/No 

Accurate records are kept of all suspect issues or alarms and their resolution Yes/No 

Activity: Identify and/or Characterize CBRNE material 

Definition: Describe or portray the qualities of detected CBRNE material 

Critical Tasks 

Pre.A1a 4.1 Conduct additional screenings to confirm the presence of CBRNE materials 

Pre.A1a 4.1.1 Provide samples to relevant entities (e.g., public health or animal health laboratories, law 

enforcement, forensic laboratories, etc.) for additional assessments, as necessary 

Pre.A1a 4.1.2 Conduct appropriate tests and assessments to characterize and identify detected CBRNE material 

Pre.A1a 4.2 Determine whether detected CBRNE material is a threat 

Pre.A1a 4.3 Gather CBRNE material detection information that can be used in attribution efforts to 

appropriate personnel, including law enforcement and intelligence community personnel 

Performance Measures Metrics 

Suspicious material is analyzed (either on-site or via laboratory support) Yes/No 

Percent of CBRNE alarms, or suspect material discoveries, at interdiction points that are 

resolved 

100% 

Percent of CBRNE materials that are correctly identified as either a threat or not a threat 100% 

Percent of detected CBRNE materials that are properly identified 100% 

Activity: Communicate CBRNE Detection Incidents 

Definition: Provide CBRNE detection and warning information to appropriate entities and 

authorities 

Critical Tasks

Pre.A1a 5.1 Coordinate CBRNE material threat and discovery information with intelligence, public safety, 

public health and other appropriate agencies 

Pre.A1a 5.2 Notify appropriate personnel (e.g., intelligence community, law enforcement personnel, first 

responders, and the general public) of CBRNE detection data and results 

Pre.A1a 5.3 Communicate data and observations using appropriate formats and standards 
Target Capabilities List 121 

PREVENT MISSION: CBRNE DETECTION 

Performance Measures Metrics 

Disseminated information in event of CBRNE detection follows established protocol Yes/No 

CBRNE detection notification is completed in accordance with relevant plans and 

protocols 

Yes/No 

Linked Capabilities 

Linked Capability Relationship to Capability 

Critical Infrastructure Protection CBRNE Detection provides Critical Infrastructure Protection with 

detection and characterization information. 

Environmental Health CBRNE Detection provides material characterization to Environmental 

Health. Environmental Health data may signal the need for CBRNE 

detection. 

Explosive Device Response 

Operations 

CBRNE Detection provides material characterization to Explosive Device 

Response Operations. 

Intelligence and Information Sharing 

and Dissemination 

Intelligence/ Information Sharing and Dissemination provides CBRNE 

Detection with all relevant intelligence. 

Counter-Terror Investigation and Law 

Enforcement 

Detection of CBRNE materials may trigger the need for a law enforcement 

investigation, and may affect how law enforcement operations are 

conducted 

Laboratory Testing Laboratory Testing results may indicate potential CBRNE threats. CBRNE 

Detection may receive assistance in characterizing the detected material 

from Laboratory Testing. 

Emergency Public Safety and Security 

Response 

CBRNE Detection may require Emergency Public Safety and Security 

Response for perimeter and crowd control. 

WMD and Hazardous Materials 

Response and Decontamination 

CBRNE Detection informs WMD and Hazardous Materials Response and 

Decontamination of CBRNE materials. 
122 Target Capabilities List 

PREVENT MISSION: CBRNE DETECTION 

Detect CBRNE

Material detected

Identify and/or 

Characterize 

CBRNE Material

Communicate 

CBRNE Detection 

Incidents

CBRNE characterized

Capability Activity Process Flow

Relationship Linked 

Capabilities

CBRNE Detection Capability

End: Stakeholders informed of 

detected material

Intelligence/ 

Information 

Sharing and 

Dissemination

Explosive Device 

Response 

Operations

WMD/Hazardous 

Materials 

Response and 

Decontamination

Counter-Terror 

Investigation and 

Law Enforcement

Animal Disease

Emergency 

Support

Critical 

Infrastructure 

Protection

Food and 

Agriculture Safety 

and Defense

Epidemiological 

Surveillance and 

Investigation

 Laboratory Testing

Emergency Public 

Safety and Security 

Response

CBRNE detection requested

Perimeter/crowd 

control provided

Provide CBRNE detection 

and characterization 

information

Relevant intelligence provided

Provide detection information

Environmental 

Health

Provide detection

information
Target Capabilities List 123 

PREVENT MISSION: CBRNE DETECTION 

Resource Element Description 

Resource Elements Components and Description

CBRNE Detection operator/ 

personnel 

Specially trained and equipped personnel with the ability to recognize 

potential Chemical, Biological, Radiological/Nuclear, or explosive threats 

through equipment, education, and effective protocols. Personnel must be 

trained and capable of operating primary and secondary detection systems. 

Explosive Detection Dog (EDD) 

Teams 

A canine and handler, working as a team to perform explosive detection 

searches of building and office areas, vehicles, packages, materials and 

persons 

Laboratory staff and equipment 

for agent identification 

Personnel specially trained and equipped to analyze suspicious materials in 

support of characterization and confirmation. This may involve laboratory 

networks (e.g., Laboratory Response Network (LRN), FERN, Animal and 

Plant Health Inspection Service (APHIS), and National Animal Health 

Laboratory Network (NAHLN)) 

Border control and other targeted 

‘defense layers’ personnel 

Personnel involved in screening materials (e.g., baggage, mail, etc.) to detect 

CBRNE material at all ports of entry (e.g., sea and airports, border crossing 

points, etc.) 

Appropriate critical infrastructure 

personnel 

Critical infrastructure personnel who are trained in CBRNE screening and 

detection of CBRNE materials 

Automated Information System Resources that provide the infrastructure for the dissemination of information 

amongst the various command/control and support nodes 

CBRNE detection Research and 

Design 

Programs for the development of technologies to improve CBRNE detection 

CBRNE monitoring and 

detection equipment 

Appropriate fixed or mobile equipment for detection of CBRNE threats 

based on risk assessments for priority communities or venues. 

CBRNE equipment support 

systems 

Systems to ensure that equipment remains operational and accurate. Systems 

to provide expert analytical assessments of detector data 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, capability planning factors 

were developed from an in-depth analysis of the scenarios featuring an improvised explosives device, 

a chlorine tank explosion, aerosol anthrax, an improvised nuclear device, and a radiological dispersal. 

Other scenarios were reviewed to identify required adjustments or additions to the planning factors 

and national targets. 

 CBRNE detection activities apply to the U.S. and its territories. 

 The CBRNE Detection capability addresses biological agents outside of the body (human and 

animal), and does not include medical or plant samples (i.e., blood and medical tests). Medical and 

syndromic surveillance detection of biological agents is addressed in Epidemiological Surveillance 

and Investigation, as well as Food and Agriculture Safety. Close integration of these capabilities 

must occur with the CBRNE Detection capability. 

 Both the Planning Factors from an In-Depth Analysis of a Scenario with Significant Demand for the 

Capability section and the Approaches to Large-Scale Events section have been omitted because there 

is no incident or large-scale event that necessarily occurs before these capabilities come in to play. 
124 Target Capabilities List 

PREVENT MISSION: CBRNE DETECTION 

 Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary 

capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence 

Analysis and Production; and Intelligence and Information Sharing and Dissemination. The CBRNE 

Detection capability relates closely to all three stages of this process. 

 All appropriate objectives and critical tasks will be exercised regularly at all levels in order to 

measure performance and demonstrate capability. 

 Planning factors are not based on major events, but on an assessment of the risks and vulnerabilities 

that pertain to the locality conducting that assessment. CBRNE detection is needed continuously and 

not just during discrete events. 

Resource 

Element 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources 

Needed 

CBRNE 

detection/operating 

personnel 

Nationwide, organized regionally Nationwide, 

organized regionally 

Automated 

Information System 

One integrated system will provide the 

infrastructure for dissemination of information 

amongst the various command/control and 

support nodes. 

Nationwide, nested 

regionally 

Automated 

Information System 

One integrated system will provide the 

infrastructure for dissemination of information 

amongst the various command/control and 

support nodes. 

Nationwide, nested 

regionally 

CBRNE equipment 

support systems 

 Nationwide, 

organized regionally 

Approaches for Large-Scale Events 

 The main strategy is to use detection technologies and screening processes to interdict the CBRNE 

materials before they are used. The alternative is to rely on existing detection technology; law 

enforcement investigations and alternate technologies will determine the presence of threat devices. 

 Develop the national capability through design and deployment of the Global Nuclear Detection 

Architecture and other similar programs. 

 Encourage states and local jurisdiction to develop and implement detection capabilities through use of 

DHS grants and guidance. 

 Develop equipment, training and communications standards to facilitate and validate the deployment 

and use of detection technologies. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

CBRNE detection 

operator/ personnel 

Personnel Varies by 

Region 

Varies by Region Federal/State/ 

Local 

All Activities 
Target Capabilities List 125 

PREVENT MISSION: CBRNE DETECTION 

Resource 

Element Unit 

Type of 

Element 

Number of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Explosive 

Detection Dog 

(EDD) Teams 

Personnel and 

Canine 

Varies by 

Region 

Varies by Region Federal Detect 

Identify and/or 

Characterize 

Laboratory staff 

and equipment for 

agent identification 

Personnel and 

Equipment 

Varies by 

Region 

Varies by Region Federal/State 

Local 

Identify and/or 

Characterize 

Border control and 

other targeted 

‘defense layers’ 

personnel 

Personnel Varies by 

Region 

Varies by Region Federal/State Detect 

Appropriate critical 

infrastructure 

personnel 

Personnel Varies by 

Region 

Varies by Region Private Sector Detect 

Automated 

information system 

Equipment Varies by 

Region 

Varies by Region Federal/State/ 

Local 

Communicate 

CBRNE detection 

technology 

Research and 

Development 

Organization 

and Leadership 

Varies by 

Region 

Varies by Region Federal All Activities 

CBRNE 

monitoring and 

detection 

equipment 

Equipment Varies by 

Region 

Varies by Region Federal/State/ 

Local 

Detect 

Identify and/or 

Characterize 

CBRNE 

Equipment Support 

Systems 

Equipment Varies by 

Region 

Varies by Region Federal/State/ 

Local 

Detect 

Identify and/or 

Characterize 

References 

1. National Response Plan. U.S. Department of Homeland Security. December 2004. 

2. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

3. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

4. Homeland Security Presidential Directive/HSPD–7: Critical Infrastructure Identification, Prioritization and 

Protection. 

5. Hazardous Materials Emergency Planning Guide. National Response Team. 

2001.http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

6. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 
126 Target Capabilities List 

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Target Capabilities List 127 

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Target Capabilities 
128 Target Capabilities List 

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Target Capabilities List 129 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

CRITICAL INFRASTRUCTURE PROTECTION 

Capability Definition 

The Critical Infrastructure Protection (CIP) capability enables public and private entities to identify, 

assess, prioritize, and protect critical infrastructure and key resources so they can detect, prevent, deter, 

devalue, and mitigate deliberate efforts to destroy, incapacitate, or exploit the Nation’s critical 

infrastructure and key resources. 

Outcome 

The risk to, vulnerability of, and consequence of an attack on critical infrastructure are reduced through 

the identification of critical infrastructure; conduct, documentation, and standardization of risk 

assessments; prioritization of assets; decisions regarding protective and preventative programs; and 

implementation of protective and preventative plans. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs)/Annexes: 

ESF #1: Transportation 

ESF #2: Communications 

ESF #3: Public Works and Engineering 

ESF #4: Firefighting 

ESF #5: Emergency Management 

ESF #8: Public Health and Medical Services 

ESF #10: Oil and Hazardous Materials Response 

ESF #11: Agriculture and Natural Resources 

ESF #12: Energy 

ESF #13: Public Safety and Security 

ESF #14: Long-Term Community Recovery and Mitigation 

Cyber Incident Annex 

Terrorism Incident Law Enforcement and Investigation Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems

Critical Tasks 

Pro.A1a 1.1.1 Develop National Infrastructure Protection Plan (NIPP) 

Pro.A1a 1.5 Establish a national CIP research and development program 

Pro.A1a 1.1.2 Develop Sector-Specific Plans (SSPs) 

Pro.A1a 1.1.3 Develop State and/or regional CIP Plans 
130 Target Capabilities List 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Pro.A1a 1.4 Develop a national risk assessment methodology and standards for Critical Infrastructure/Key 

Resources (CI/KR) 

Pro.A1a 1.4.1 Develop risk assessment tools 

Pro.A1a 1.3.1 Establish Government Coordinating Councils (GCCs) for each sector 

Pro.A1a 1.3.2 Establish Sector Coordinating Councils (SCCs) for each sector 

Pro.A2a 1.1.2 Coordinate development of standard guidelines for physical security programs 

Pro.A3a 1.3 Develop strategies and guidelines for cyber infrastructure protection 

Pro.A2a 1.6 Develop strategies and guidelines for protection of infrastructure personnel 

Pro.A1a 4.1 Define a sector-specific universe of infrastructure assets, systems, networks, and functions 

Pro.A1a 3.1 Develop sector-specific security goals 

Pro.A1a 1.2.1 Develop national metrics to measure progress and to assess effectiveness of the national CI/KR 

protection program 

Pro.A1a 1.2.2 Develop sector-specific metrics to measure progress and to assess effectiveness of the sectorspecific CI/KR protection programs 

Preparedness Measures Metrics 

NIPP and SSPs are in place Yes/No 

State and/or regional CIP Plans are developed and in place Yes/No 

Appropriate risk methodology (i.e. one that takes into account the threats, consequences, 

and vulnerabilities) has been developed and approved by the Federal Government for 

CI/KR protection 

Yes/No 

Vulnerability assessment tool has been developed Yes/No 

GCCs have been established for each sector Yes/No 

SSPs have been reviewed by appropriate GCC Yes/No 

SCCs have been established for each sector Yes/No 

SSPs have been reviewed by appropriate SCC Yes/No 

A mechanism for coordinating CIP efforts has been established for Federal and State 

authorities (e.g. State, Local, and Tribal Government Coordinating Council) 

Yes/No 

National CIP Research and Development Plan has been established Yes/No 

CIP information-sharing mechanism has been established Yes/No 

Sector security goals have been established for each sector in partnership with security 

partners 

Yes/No 

Sector security goals support the goal of the NIPP Yes/No 

Sector security goals yield specific, measurable outcomes that allow security partners to 

allocate security resources and to track progress 

Yes/No 
Target Capabilities List 131 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Performance Tasks and Measures/Metrics 

Activity: Coordinate and Manage Critical Infrastructure Protection

Definition: Partner/coordinate with Federal, State, local, and tribal entities, the private sector, and 

the international community. 

Critical Tasks 

Pro.A1a 3.3.1 Operate public-private partnerships for Critical Infrastructure Protection (CIP) activities 

Pro.A1a 3.3.2 Operate sector-specific GCCs 

Pro.A1a 3.3.3 Operate sector-specific SCCs 

Performance Measures Metrics 

Time in which GCC concurrence with respect to CIP is signed by all relevant 

parties 

Within 12 months from official 

TCL publication 

GCC concurrence includes coordination/cooperation with SCCs Yes/No 

Activity: Identify CI/KR

Definition: Develop an inventory of the individual assets, systems, networks, and functions that 

make up the Nation’s CI/KR, some of which may be located outside the U.S., and collect 

information on them, including dependencies, interdependencies, and reliance on cyber systems. 

Critical Tasks 

Pro.A1a 4.1.1 Develop selection criteria to identify CI/KR 

Pro.A1a 4 Identify CI/KR within the Nation, region, State, or local area 

Pro.A1a 2.1.1 Develop and implement risk and vulnerability assessment training 

Pro.A1a 2.2.1 Develop a system to “Red Team” CIP measures and technology 

Pro.A2a 2.2 Develop and conduct exercise programs to test CI/KR protection plans 

Preparedness Measures Metrics 

Frequency with which exercises are conducted to test the effectiveness of protective 

measures 

Every 12 months 

Vulnerability assessment training program is developed and implemented Yes/No 

Risk assessment training program is developed and implemented Yes/No 

System to “Red Team” CIP measures and technology is in place Yes/No 
132 Target Capabilities List 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Performance Measures Metrics 

Sector-specific agencies have identified assets of potential national-, regional-, or sectorlevel importance Yes/No 

Data have been collected on assets, systems, networks, and functions and are relevant to 

risk assessment efforts 

Yes/No 

Data have been collected on assets, systems, networks, and functions and address 

dependencies and interdependencies that affect functionality and performance 

Yes/No 

Data have been verified for accuracy Yes/No 

Frequency with which data are updated and provided to DHS Every 12 months 

Activity: Assess Risks

Definition: Determine which assets, systems, networks, and functions are critical by calculating 

risk and combining potential direct and indirect consequences of an attack (including 

dependencies and interdependencies associated with each identified asset), known vulnerabilities 

to various potential attack vectors, and general or specific threat information 

Critical Tasks 

Pro.A1a 5.1 Conduct a “top-screen” consequence analysis to determine which assets, systems, networks, and 

functions are high consequence and therefore require risk assessment 

Pro.A1a 5.3 Conduct vulnerability assessments on high-consequence assets, systems, networks, and functions 

Pro.A1a 5.4 Conduct detailed threat assessments on high-consequence assets, systems, networks, and 

functions 

Pro.A1a 5.5 Determine risk profiles of high-consequence assets, systems, networks, and functions 

Pro.A1a 5.6 Conduct an interdependency analysis to determine the relationship of risks within and across 

sectors 

Pro.A1a 5.7 Share the assessment of sector-specific infrastructure risk with interdependent entities within 

appropriate sectors 

Performance Measures Metrics 

Procedures for analyzing threats, vulnerabilities, consequences, and risks were 

implemented 

Yes/No 

Consequence or “top-screen” analysis was performed Yes/No 

Potential threats to assets, systems, networks, and functions were identified Yes/No 

Potential threats to high-consequence assets, systems, networks, and functions were 

identified 

Yes/No 

Percent of high-consequence assets, systems, networks, and functions that have completed 

vulnerability assessments 

100% 

Percent of high-consequence assets, systems, networks, and functions that have completed 

a risk assessment 

100% 

Risk analysis results were disseminated to the proper authorities Yes/No 
Target Capabilities List 133 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Activity: Prioritize 

Definition: Aggregate and order assessment results to present a comprehensive picture of 

national CI/KR risk in order to establish protection priorities and to provide the basis for planning 

and the informed allocation of resources

Critical Tasks 

Pro.A1a 6.1 Prioritize high-risk CI/KR for consideration of protective measures 

Performance Measures 

CI/KR and high-consequence assets, systems, networks, and functions were normalized 

and prioritized for consideration of protective programs 

Yes/No

Activity: Protect 

Definition: Select appropriate protective measures or programs and allocate resources to 

address targeted priorities

Critical Tasks 

Pro.A2a 1.1.4 Develop and implement surge capacity plans to increase CIP capacity during a crisis 

Pro.A2a 2.3 Implement surge capacity plans to increase CIP protection during a crisis 

Pro.A2a 1.1 Develop protective programs and plans to reduce the general level of risk for the highest risk 

CI/KR 

Pro.A2a 1.2 Develop protective programs and plans to respond to and recover from specific threat-initiated 

actions 

Pro.A2a 5 Implement programs to defend and devalue physical CI/KR 

Pro.A3a 5 Implement programs to defend and devalue critical cyber assets, systems, networks, and 

functions 

Pro.A3a 4.1.1 Implement detection measures such as inspection surveillance, employee monitoring, and 

security counterintelligence 

Performance Measures Metrics 

Percent of high-risk assets, systems, networks, and functions for which protective 

programs and/or mitigation strategies have been developed 

100% 

Percent of high-risk assets, systems, networks, and functions for which protective 

programs and/or mitigation strategies have been implemented 

100% 

Percent of high-risk assets, systems, networks, and functions that have active protective 

programs to measurably reduce risk 

100% 

Percent of high-risk assets, systems, networks, and functions for which risk has been 

measurably reduced 

100% 

Percent of high-risk assets, systems, networks, and functions for which plans for surge 

capacity during a crisis have been developed 

100% 

Percent of high-risk assets, systems, networks, and functions for which continuity of 

operations plans have been developed 

100% 
134 Target Capabilities List 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Activity: Measure Effectiveness 

Definition: Incorporate metrics and other evaluation procedures at the national and sector levels 

to measure progress and to assess effectiveness of the national CI/KR protection program 

Critical Tasks 

Pro.A1a 7.1 Collect national metrics data 

Pro.A1a 7.1.1 Analyze national metrics data 

Pro.A1a 7.2 Collect sector-specific metrics data 

Pro.A1a 7.2.1 Analyze sector-specific metrics data 

Performance Measures Metrics 

Frequency with which national metrics data are collected and reported Every 12 months 

Frequency with which sector-specific metrics data are collected and reported Every 12 months 

Linked Capabilities 

Linked Capability Relationship to Capability 

Planning Emergency plans developed under this capability will be coordinated with 

sector-specific CIP plans. 

Food and Agriculture Safety and 

Defense 

Because Food and Agriculture is one of the 17 critical infrastructure sectors, 

CIP provides the initial line of protection for this industry. 

Risk Management Risk Management involves the processes used to prioritize CI/KR for 

protection. 

Intelligence and Information 

Sharing and Dissemination 

Intelligence/information sharing mechanisms support the coordination among 

security partners in CIP 

Information Gathering and 

Recognition of Indicators and 

Warnings 

Locally generated threat and other criminal and/or terrorism-related 

information that results from this capability is used to establish the threat 

picture that forms the basis for risk in CIP 

Counter-Terror Investigation and 

Law Enforcement 

Counter-Terror Investigation and Law Enforcement are one method of 

deterring and thus preventing attacks on critical infrastructure. 

Emergency Public Safety and 

Security Response 

Use of law enforcement for emergency public safety and security is one form 

of protection for critical infrastructure assets. 

Intelligence Analysis and 

Production 

The actionable intelligence/information products produced by this capability 

can indicate the need for specific protective measures in CIP 

Explosive Device Response 

Operations 

Explosive Device Response Operations may involve the prevention of an 

explosive device at a critical asset location. 

CBRNE Detection CBRNE Detection may deter attacks on critical infrastructure or may result in 

the need for specific protective actions. 
Target Capabilities List 135 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Linked Capability Relationship to Capability 

Restoration of Lifelines Restoration of Lifelines addresses the immediate restoration of critical 

infrastructure (e.g., water, power, etc). 

Economic and Community 

Recovery 

Economic and Community Recovery includes recovery and re-building of 

critical infrastructure, to include greater protection. 

Structural Damage Assessment Structural Damage Assessment addresses the structural inspection of critical 

infrastructure to inform and prioritize mitigation resources. 
136 Target Capabilities List 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Coordinate and 

Manage Critical 

Infrastructure 

Protection 

Operations

End: Progress and 

effectiveness evaluated

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Need for inventory of CI/KR

Identify Critical 

Infrastructure/Key 

Resources

Infrastructure/resources 

identified

Assess Risks

Prioritize

Planning

Measure 

Effectiveness

Risk calculated

Provide assessment report

Protect

Protection priorities established

Priorities funded and implemented

Recommended protection 

measures provided

Capability Activity Process Flow

Relationship Linked 

Capabilities

Critical Infrastructure Protection Capability

Provide comprehensive CI/KR 

priorities

Authority to implement protection 

measures provided

Evaluation reports provided

Risk 

Management

CBRNE 

Detection

Explosive Device 

Response 

Operations

Food and 

Agriculture Safety 

and Defense

Economic and 

Community 

Recovery

Restoration of 

Lifelines

Structural 

Damage

 Assessment

Identify CI relative to 

capability

Information 

Gathering and 

Recognition of 

Indicators and 

Warnings

Input on comprehensive 

CI/KR priorities provided

Intelligence 

Analysis and 

Production

Protective measure needs 

identified

Intelligence/

Information 

Sharing and 

Dissemination

Intelligence information on 

CI/KR provided

Explosive device 

protection provided

Post-incident assessment 

provided

Immediate post-incident 

restoration provided

Assists recovery efforts 

with monetary and nonmonetary relief

Assist with plan 

development

Assist with prioritization

of CI/KR

Assist with 

implementation of 

protection measures

Assists with

implementation of

protection measures

Counter-Terror 

Investigation and 

Law Enforcement

Emergency Public 

Safety and 

Security Response
Target Capabilities List 137 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Resource Element Description 

Resource Elements Components and Description

Critical Infrastructure Protection (CIP) 

planning personnel 

Public and private sector coordinators 

Personnel to complete vulnerability 

assessments 

Risk analysis personnel 

Infrastructure Security Specialists 

Infrastructure Intelligence Analysts 

National Infrastructure Protection Plan Per Homeland Security Presidential Directive (HSPD) 7 

CIP Research and Development Plan Per HSPD 7 

Sector Specific Plans Per HSPD 7 

Equipment for detection 

Equipment for protection 

Equipment for mitigation 

System to “red team” critical infrastructure 

protective measures and technology 

Planning Assumptions 

 Critical Infrastructure Protection (CIP) may be applicable to any of the 15 National Planning 

Scenarios as any terrorism-related, accidental, or natural catastrophic event could disrupt or destroy 

CI/KR in one or more sectors. However, for purposes of determining National Targets, no scenarios 

were specifically considered because much of the CIP activities take place on an ongoing basis 

between incidents. Although protective activities are also implemented in response to particular 

threats or events, information regarding whether an affected asset is considered “critical” needs to be 

provided before any implementation can occur. 

 Under the CIP process as defined in the NIPP, protection of CI/KR requires an initial determination 

of whether the asset/system in question and the risks being posed are “critical.” Therefore, protection 

activities are conducted on a case-by-case basis. 

 Resource needs at the State and local level may be determined through the development of a model 

that takes into account the presence and density of CI/KR assets in various geographic areas. 

 The understanding of criticality as related to interdependent systems continues to evolve. Additional 

guidance will be provided as it is developed. 

 State and local law enforcement is available to support CI/KR protection efforts, as required. 

 Critical infrastructure information is able to be shared between Federal and State authorities and the 

private sector in a protected and secure way. 
138 Target Capabilities List 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Target Capability Preparedness Level 

Element 

Resource Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per 

x) 

Lead Capability 

Activity 

Supported by 

Element 

CIP planning 

personnel 

Personnel As needed Per agency Federal (DHS, 

Sector Specific 

Agencies)/ State 

Develop and 

Maintain Plans, 

Measure 

Effectiveness 

Public and private 

sector coordinators 

Personnel As needed Per agency Federal (DHS) Coordinate 

Public and private 

sector coordinators 

Personnel As needed Per agency Federal (SectorSpecific Agencies)/ 

State 

Coordinate 

Personnel for 

vulnerability 

assessments 

Personnel As needed Per agency Federal (DHS, 

Sector Specific 

Agencies)/ State 

Assess Risk 

Prioritize 

Risk analysis 

personnel 

Personnel As needed Per agency Federal (DHS, 

Sector Specific 

Agencies)/ State 

Assess Risk 

Prioritize 

Infrastructure 

Security Specialists 

Personnel As needed Per agency Federal (DHS, 

Sector Specific 

Agencies)/ State 

Protect 

Infrastructure 

Intelligence 

Analysts 

Personnel As needed Per agency Federal (DHS, 

Sector Specific 

Agencies)/ State 

Assess Risk 

National 

Infrastructure 

Protection Plan 

Planning 1 Nationally Federal (DHS) All activities 

CIP Research and 

Development Plan 

Planning 1 Nationally Federal (DHS) All activities 

Sector-Specific 

Plans 

Planning 1 Per SectorSpecific Agency  Federal (Sector 

Specific Agencies) 

All activities 

Equipment for 

detection 

Equipment As needed Per asset Federal/State/ 

Local 

Protect 

Equipment for 

protection 

Equipment As needed Per asset Federal/State/ 

Local 

Protect 

Equipment for 

mitigation 

Equipment As needed Per asset Federal/State/ 

Local 

Protect 

System to Red 

Team critical 

infrastructure 

protective 

measures and 

Exercises Federal All Activities 
Target Capabilities List 139 

PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION 

Element 

Resource Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per 

x) 

Lead Capability 

Activity 

Supported by 

Element 

technology 

References 

1. National Infrastructure Protection Plan. Department of Homeland Security. June 2006. 

2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

3. Homeland Security Presidential Directive /HSPD–7: Critical Infrastructure Identification, Prioritization, and 

Protection. The White House, Office of the Press Secretary. December 2003. 

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

4. National Response Plan. U.S. Department of Homeland Security. December 2004. 

5. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

6. Department of Homeland Security Sector-Specific Intelligence Sharing Analysis Center (ISAC) Information. 

Executive Order 13356, State and Local Tiger Team. U.S. Department of Homeland Security. 2004. 

http://a257.g.akamaitech.net/7/257/2422/06jun20041800/edocket.access.gpo.gov/2004/pdf/04-20052.pdf. 

7. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. June 2003. 

http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf. 

8. Applying Security Practices to Justice Information Sharing. U.S. Department of Justice, Global Justice 

Information Sharing Initiative, Security Working Group. March 2004. 

http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf. 

9. The National Criminal Intelligence Sharing Plan. U.S. Department of Justice, Global Justice Information 

Sharing Initiative. Revised June 2005. 

http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf. 

10. Homeland Security Information Network. U.S. Department of Homeland Security. 

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

11. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO–03–

1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d031165t.pdf. 

12. Information/Intelligence Sharing System Survey. U.S. Department of Justice, Global Justice Information 

Sharing Initiative, Global Intelligence Working Group. 2003. 

http://it.ojp.gov/documents/intell_sharing_system_survey.pdf. 

13. National Strategy for Homeland Security. Office of Homeland Security, The White House. July 2002. 

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

14. Risk Management: An Essential Guide to Protecting Critical Assets. National Infrastructure Protection Center. 

November 2002. 

15. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July 2004. 

http://www.9-11commission.gov/report/911Report.pdf. 

16. National Strategy for Transportation Security. U.S. Department of Homeland Security. 

17. National Fire Protection Association Codes and Standards. 

http://www.nfpa.org/aboutthecodes/list_of_codes_and_standards.asp 
140 Target Capabilities List 

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Target Capabilities List 141 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

FOOD AND AGRICULTURE SAFETY AND 

DEFENSE

Capability Definition 

Food and Agriculture Safety and Defense is the capability to prevent, protect against, respond to, and 

recover from chemical, biological and radiological contaminants, and other hazards that affect the safety 

of food and agricultural products. This includes the timely eradication of outbreaks of crop 

diseases/pests, assessments of the integrity of the food producing industry, the removal and disposal of 

potentially compromised materials from the U.S. food supply, and decontamination of affected food 

manufacturing facilities or retail points of purchase or service. This also includes appropriate laboratory 

surveillance to detect human foodborne illness or food product contamination. It is accomplished 

concurrent to protecting public health and maintaining domestic and international confidence in the U.S. 

commercial food supply. Additionally, the public is provided with accurate and timely notification and 

instructions related to an event and appropriate steps to follow with regard to disposal of affected food or 

agricultural products and appropriate decontamination procedures. 

Outcome 

Threats to food and agriculture safety are prevented, mitigated, and eradicated; trade in agricultural 

products is restored; affected products are disposed of; affected facilities are decontaminated; public and 

plant health are protected, notification of the event and instructions of appropriate actions are effectively 

communicated with all stakeholders; and confidence in the U.S. food supply is maintained. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESF)s/Annexes: 

ESF #8: Public Health and Medical Services 

ESF #11: Agriculture and Natural Resources 

Biological Incident Annex 

Interim Draft Food and Agriculture Incident Annex 

Terrorism Incident Law Enforcement and Investigation Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Pro.A1a 5.2 Conduct vulnerability assessments of sector-specific critical infrastructure and key resources 

Pro.B1b 1.1.2 Develop methods for emergency assessment of firms that manufacture, prepare, and hold U.S. 

Department of Agriculture (USDA) regulated commodities 

Pro.B1b 1.1.3 Develop methods for emergency assessment of firms that manufacture, prepare, and hold U.S. 

Food and Drug Administration (FDA)-regulated commodities 

Pro.B1b 1.2.3 Create emergency response plan for response to all food operations for retail, food service, mass 
142 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

feeding, and food processing facilities 

Pro.B1b 1.2.2 Develop emergency guidelines and operation criteria for retail food, wholesale, and processing 

during disasters 

Pro.B1b 1.3 Develop communications plan for food safety for regulated facilities and the general public 

Pro.B1b 1.4.1 Develop guidelines or procedures for properly conducting a coordinated outbreak investigation 

of food and agricultural events 

Pro.B1b 1.4.2 Develop plans or guidelines for properly disposing of contaminated food products or diseased 

crops 

Pro.B1b 1.5 Develop, adapt, or implement plans to support incident command (IC), unified command (UC), 

or other agencies as needed for food and agricultural safety response 

Pro.B1b 1.5.1 Develop procedures for providing surge staff to support IC and EOCs during a food event 

Pro.B1b 1.4 Develop plans, procedures, and programs for responding to a food safety or agricultural disease 

event 

Pro.B1b 1.3.1 Prepare food and agriculture emergency public information plans 

Pro.B1b 1.3.2 Develop a food and agriculture crisis communications plan 

Res.B1b 1 Develop plans, policies, procedures, and systems for responder safety and health 

Pro.B1b 1.3.3 Develop plans, procedures, and policies for coordinating, managing, and disseminating public 

information regarding food and agricultural safety 

Res.B1f 1.3.3 Plan and provide for external media support and operations 

Res.B1f 1.1.5 Develop and maintain emergency declaration protocols and template 

Res.B1f 1.2.4 Develop a communications network with State homeland security departments 

Preparedness Measures Metrics

Procedures are in place for: 

 Food and agriculture surveillance activities (e.g., active searches, interviews, 

medical record review, compilation of data)Sample collection 

 Maintaining chain of custody of laboratory samples 

 After hours receipt of samples 

 Triaging samples dependent on priority 

 Traceback/trace forward investigations 

 Rapidly informing the public once the contaminated food has been identified 

 Coordinating public communications between government, academia, and the 

private sector 

 Controlling contaminated products (i.e., seizure, product quarantine, recall, 

embargo, condemnation, administrative detention) 

 Appropriate disposal of affected food and/or agricultural products 

 Appropriate decontamination of affected food facilities 

 Quick recall of affected food or agricultural products from the marketplace 

 Verifying effectiveness and timeliness of food and agricultural product recalls 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Yes/No 

Plans and procedures for responding to a food /agricultural event identify the proper food 

and agricultural authorities Yes/No 

Communication plans and procedures for responding to a food/agricultural event provide 

for dissemination of accurate, timely, and accessible information to the public, media, and 

support agencies 

Yes/No 
Target Capabilities List 143 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Emergency response plans include all food operations (e.g., retail, food service, mass 

feeding, food processing facilities) Yes/No 

Memoranda of agreements (MOAs) to facilitate response are in place Yes/No 

Field staff or other designated first responders are appropriately qualified Yes/No 

Redundant emergency communication capabilities are in place Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Pro.B1b 2.1.1 

Develop and conduct emergency food safety response training to field staff and managers of 

State/local food programs having responsibility for food safety response (training should include 

appropriate job safety training) 

Pro.B1b 2.1.2 Provide food safety training to responders and volunteers 

Pro.B1b. 2.2 Develop and implement exercise programs for food and agricultural safety and defense 

Preparedness Measures Metric

Field staff or other designated first responders have: 

 Hazard awareness training 

 NIMS Training 

Yes/No 

Yes/No 

HSEEP-compliant exercises to evaluate food and agricultural safety and defense are 

routinely conducted Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Direct Food and Agriculture Safety and Defense Operations 

Definition: In response to a notification of an existing threat of food contamination or crop 

disease, provide the management and coordination of the epidemiological and food establishment 

investigations as well as appropriate food and crop control measures to stop further cases of 

illness or disease.

Critical Tasks

Pro.B1b 3.3.2 Dispatch food and agriculture personnel to location of suspected contamination 

Res.B1a 4 Activate the on-site incident command system (ICS) 

Pro.B1b 3.4.4 Request food and agriculture resources needed for response to field operations 

Pro.B1b 3.1.2 Coordinate with Federal, State, and local agencies to ensure the safety and security of meat, 

poultry, and egg products in retail groceries and food service establishments and institutions 

Pro.B1b 3.1.3 Coordinate with Federal, State, and local agencies to ensure the safety and security of products in 

retail and food service establishments and institutions 

Pro.B1b 3.4.1 Coordinate food and agriculture emergency management plans at the local, State, and national 

levels 
144 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Res.B1f 5.1.1 Coordinate the provision of timely and accurate emergency public information through the Joint 

Information System (JIS) 

Res.B1c 8.1.1 Provide direction, information, and support as appropriate to IC or unified command UC and 

joint field offices 

Res.B1c 4 Activate the Emergency Operations Center (EOC) 

Res.B1c 3 Direct and coordinate EOC operations 

Pro.B1b 3.4.5 Establish and maintain food and agricultural safety response communication systems 

Pro.B1b 3.4 Coordinate food and agricultural safety response operations and support 

Pro.B1b 3.2 Manage surveillance activities for agriculture and natural resources 

Pro.B1b 3.3 Coordinate food and agriculture investigation activities 

Pro.B1b 3.3.4 Coordinate food and agriculture evidence preservation procedures 

Pro.B1b 3.5.1 Coordinate food recovery programs 

Pro.B1b 3.5.2 Coordinate food facility decontamination 

Pro.B1b 3.5.2.1 Coordinate cleaning and decontamination of affected food facilities 

Pro.B1b 3.5.3 Coordinate the disposal of contaminated food 

Pro.B1b 3.5.4 Coordinate agricultural recovery programs 

Pro.B1b 3.1.6 Ensure the safety, efficacy, and security of regulated foods, the blood supply, drugs, medical 

devices, and other U.S. Department of Health and Human Services (HHS)-regulated products 

Pro.B1b 3.1 Ensure the Nation’s commercial supply of food is safe and secure following a catastrophic 

incident 

Pro.B1b 3.3.1 Implement guidelines or procedures for properly conducting a coordinated outbreak investigation 

of food and agricultural events 

Pro.B1b 3.3.4.1 

Ensure close coordination and cooperation among regional, State, Federal, and international 

agencies and with the private sector and nongovernmental associations to facilitate food and 

agriculture response efforts 

Pro.B1b 3.2.1 Direct agricultural processes for surveillance and testing and isolation or quarantine for threats to 

agricultural assets and the food supply 

Pro.B1b 3.3.3 Provide food and agriculture laboratory and diagnostic support, subject matter expertise, and 

technical assistance 

Pro.B1b 3.4.3 Ensure the adequacy of food and agriculture resources 

Pro.B1b 3.4.3.2 Request subject matter expertise from supporting agencies to assist in the response and recovery 

effort 

Pro.B1b 3.4.3.3 Establish regional and State plans and protocols for food and agricultural safety response and 

requests for assistance 

Pro.B1b 3.4.2 Activate food and agriculture safety and defense personnel 

Performance Measures Metric

Appropriate numbers of trained personnel have been identified to respond to 

the State or local EOC and possibly the Joint Operations Center 

Yes/No 

Boilerplate consumer messages have been developed Yes/No 
Target Capabilities List 145 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Assets for decontamination procedures have been identified Yes/No 

Decontamination is conducted in accordance with local protocol for all 

contaminated personnel, equipment, and animals 

Yes/No 

Return of food products is monitored Yes/No 

Protective gear is available for field staff or other designated first responders Yes/No 

Activity: Conduct Surveillance

Definition: In response to a notification that food products are contaminated or that crops are 

diseased, establish and implement a plan to expand on-going surveillance activities to focus on 

additional food products, crops, and facilities that might be affected. 

Critical Tasks 

Res.B2d 5.1 Conduct epidemiological investigations as surveillance reports warrants, and coordinate Federal, 

State, and local veterinary assistance assets/services 

Pro.B1b 4.2 Search actively for food and agriculture cases 

Pro.B1b 4.2.2.2 Initiate food and agriculture database and data management 

Pro.B1a 4.3.1 Develop basic case descriptions by conducting interviews and reviewing medical records 

Pro.B1b 4.3 Conduct food and agriculture laboratory detection and confirmation 

Pro.B1b 4.3.3 Disseminate food and agriculture laboratory testing results to appropriate stakeholders/partners 

Pro.B1b 4.3.2 Maintain chain-of-custody of all food and agriculture evidence 

Pro.B1b 4.2.2.1 Integrate surveillance findings related to food and agriculture 

Pro.B1b 4.2.2 Compile information about threats to food 

Pro.B1b 4.3.1 Use the results from a food sample analysis to determine the breadth of contamination 

Performance Measures Metric 

Time in which a surveillance plan is implemented upon determination of a specific 

food product associated with illness or the presence of a diseased crop 

Within 24 hours from 

confirmed food product 

association or crop disease 

Time in which individual or joint USDA/FDA/DOJ investigation into source of 

contamination of identified food product or diseased crop is initiated 

Within 24 hours from 

confirmed food product 

association or crop disease 

Frequency and quality of inspection for surveillance of food products at 

manufacturing, distribution, retail, or food service facilities is conducted in 

accordance with Federal and State protocol 

 Yes/No 

Federal/State authorities had access to laboratories with validated methods for 

detection/identification of pathogens, chemical, biological, and radiological 

contaminants 

Yes/No 
146 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Activity: Trace Suspect Products 

Definition: Conduct investigations to determine the source(s) of contamination and identify other 

products, crops, and facilities that could be contaminated. 

Critical Tasks 

Pro.B1b 5.1.1 Collect and preserve contaminated food and agriculture evidence 

Pro.B1b 5.1.2 Collect and preserve non-contaminated food and agriculture evidence 

Pro.B1b 5.2 Inspect the safety and security of the food infrastructure in the affected area 

Pro.B1b 5.3 Inspect the safety and security of the agricultural infrastructure in the affected area 

Pro.B1b 5.2.3 Inspect and monitor meat, poultry, and egg establishments that can continue to operate in the 

affected area 

Pro.B1b 5.2.2 Inspect food facilities that can continue to operate in the affected area 

Pro.B1b 5.2.4 Use laboratory testing and field investigations to identify products that are safe and fit for human 

consumption 

Pro.B1b 5.1.4 Conduct product tracing to determine the source, destination, and disposition of adulterated or 

contaminated products 

Pro.B1b 5.2.1 Conduct inspection and monitoring of food products and establishments in affected areas 

Pro.B1b 5.3.1 Conduct inspection and monitoring of agriculture products and establishments in affected areas 

Pro.B1b 5.1.3 Generate possible associations of transmission, exposure, and source of food and agriculture 

events 

Pro.B1b 5.1.5 Identify possible sources of food and agricultural safety event 

Pro.B1b 5.4 Identify populations and locations at risk from food and/or agricultural safety event 

Performance Measures Metric 

Time in which trace back investigation is initiated following notification of contaminated 

food product involvement 

Within 1 hour from 

notification 

Time in which trace forward investigation was initiated following notification of 

contaminated food product involvement 

Within 1 hour from 

notification 

Time in which epidemiological investigation was initiated following report to health 

department 

Within 3 hours from 

report 

Time in which epidemiological investigation was completed following report to health 

department 

Within 36 hours from 

report 

Time in which analysis of samples was conducted after samples reach the lab Within 1 hour from 

receipt at lab 

Laboratory samples were analyzed within time period appropriate for type of contaminant 

and whether screening and/or confirmatory analysis was conducted 

Yes/No 

Percent of potentially affected food facilities identified 100% 

Time in which FBI was notified for an event that appeared to be due to intentional 

contamination 

Within 6 to 12 hours 

after determination 
Target Capabilities List 147 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Activity: Implement Control Measures for Contaminated Food Products or Diseased 

Crops 

Definition: Implement product recalls/embargoes, alert the public about the situation, and take 

control of contaminated facilities and products or diseased crops to ensure contaminated 

products do not enter the food supply and diseased crops are not further distributed. 

Critical Tasks 

Pro.B1b 6.3 Secure the contamination source and affected areas during a food and agriculture event 

Pro.B1b 6.4.7 Provide appropriate information to the public regarding disposal of potentially contaminated 

food 

Pro.B1b 6.2.1 Determine the need for a food embargo or detention 

Pro.B1b 6.2.2 Determine the need for food condemnation, retention, or seizure 

Pro.B1b 6.2.3 Determine the need to stop the movement of food 

Pro.B1b 6.4.2 

Control all identified food safety and inspection service-inspected products at inspected 

establishments that are suspected of being contaminated through product recall, administrative 

detention, and plant closures 

Pro.B1b 6.4.3 

Control any foodstuffs or other HHS-regulated products suspected of being contaminated 

following an establishment’s inspections through product recall, administrative detention, and 

plant closures 

Pro.B1b 6.4.4 Control all identified products at inspected facilities suspected of being contaminated through 

product recall and administrative detention 

Pro.B1b 6.4.5 Stop all interstate movement of regulated plant articles and means of conveyance as needed 

Pro.B1b 6.4.6 Provide for embargoed food storage 

Performance Measures Metric 

Food recall was issued Yes/No 

Recalls were announced to the public Yes/No 

Percent of potentially affected locations secured to prevent spread of contamination 100% 

Activity: Conduct Product Disposal and Surface and Food Facility Decontamination 

Definition: Dispose of contaminated food products or diseased crops in an environmentally safe 

manner that prevents its use as a food or food product as well as utilize appropriate procedures 

for surface and facility decontamination.

Critical Tasks 

Pro.B1b 7.1.1 Identify assets for food and agriculture decontamination activities 

Pro.B1b 7.1 Implement food and agriculture hazardous material disposal plan 

Pro.B1b 7.1.2 Conduct surface and facility decontamination 

Pro.B1b 7.1.3 Perform food and agriculture clean-up operations 

Pro.B1b 7.1.4 Dispose of contaminated food 
148 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Performance Measures Metric 

Hazardous Material Disposal Plan was implemented Yes/No 

Linked Capabilities 

Linked Capability Relationship 

Laboratory Testing Food and Agriculture Safety and Defense provides samples to Laboratory Testing for 

testing 

WMD and Hazardous 

Materials Response and 

Decontamination 

Food and Agriculture Safety and Defense receives technical decontamination from 

WMD and Hazardous Materials Response and Decontamination 

Emergency Public 

Information and Warning 

Food and Agriculture Safety and Defense develops control measures for Emergency 

Public Information and Warning, which will be released to the public 

Epidemiological 

Surveillance and 

Investigation 

Epidemiological Surveillance and Investigation provides information to Food and 

Agriculture Safety and Defense on the food product associated with illness 

Animal Disease 

Emergency Support 

Animal Disease Emergency Support will provide information to Food and Agriculture 

Safety and Defense if contaminated animals are associated with human illness 

Economic and 

Community Recovery 

Food and Agriculture Safety and Defense conducts damage assessments for Economic 

and Community Recovery 

Emergency Operations 

Center Management 

Food and Agriculture Safety and Defense requests resources from Emergency 

Operations Center Management, who then in turn provides the requested resources. 

Emergency Operations Center Management and Food and Agriculture Safety and 

Defense both provide situational reports to each other 

 
Target Capabilities List 149 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Direct Food and 

Agriculture 

Safety and 

Defense 

Operations

Conduct 

Surveillance

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

WMD/Hazardous 

Materials 

Response and 

Decontamination

Emergency 

Public 

Information and 

Warning

Epidemiological 

Surveillance and 

Investigation

Economic and 

Community 

Recovery

Provide surveillance priorities

Report detection of possible food 

and/or agricultural incident

Trace Suspect 

Products

Implement Control 

Measures for 

Contaminated 

Food Products or 

Diseased Crops

Conduct Product 

Disposal and 

Surface and Food 

Facility 

Decontamination

Report identification of infected 

and/or contaminated products

Provide control measure decisions

Provide decontamination

All infected and/or 

contaminated product disposed

All infected and/or contaminated 

product contained

Emergency 

Operations 

Center 

Management

Provide samples

Testing results provided

Decontamination provided

Notify public of control 

measures

Conduct damage 

assessments

Provide sitreps 

Contamination found

Indication of 

food and/or 

agricultural 

event?

Determine source and extent 

of infection/contamination

Yes

No

No contamination 

detected; continue 

routine surveillance

Provide results of 

traceback/trace forward

Request resources

Resources provided

End: Return to pre-event 

operational level

Capability Activity Process Flow

Food and Agriculture Safety and 

Defense Capability Linked 

Capabilities Relationship

Provide information on 

food products analysis

Laboratory 

Testing

Animal Disease 

Emergency 

Support
150 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource Element Description 

Resource Elements Components and Description

Incident Command System A fully expanded incident command system (ICS) includes subject matter 

experts (SMEs) and policy staff. Subject matter experts include 

microbiologists, toxicologists, food technologists, veterinarians, 

epidemiologists, etc. For large incidents, assume 4 – 6 SMEs and 4 - 6 policy 

staff per 24 hour period above normal staffing levels. 

FDA Emergency Operations 

Center 

This resource manages the FDA Emergency Operations Center facility 24 

hours per day. In addition to normal staffing levels, it requires 24 – 30 support 

staff & SMEs (or 8 – 10 per 8 hour shift). 

USDA Emergency Operations 

Center 

This resource manages the USDA Emergency Operations Center facility 24 

hours per day. In addition to normal staffing levels, it requires 21 additional 

staff (including SMEs) or 7 per 8-hour shift. 

USDA/FSIS Emergency 

Management Committee (EMC) 

The EMC manages large-scale food emergencies and non-routine incidents in 

an established Situation Room. It is composed of the most senior managers 

from all program areas. Operations of EMC managed by the Biosurveillance 

and Emergency Response Staff (9 staff members) 

State Emergency Operations 

Centers 

The State EOC manages the response within each State. The normal staffing 

level is 60 staff; in addition, it would require 18 to 24 SMEs and policy staff 

per 24 hour period (or 6 – 8 per 8 hour shift). 

Local Emergency Operations 

Center 

The Local EOC manages the response within each locality. Typically includes 

5 to 20 staff, but this is entirely dependent on the size of the locality. 

Human Disease Surveillance 

Team 

Team of experts to track all reportable disease and specified syndromes within 

a defined area. Each team includes 1 supervisor (MD, PhD, or Doctor of 

Veterinary Medicine (DVM)), 2 epidemiologists, 1 IT staff per, and 1 

statistician per 8 hour shift. 

Food Investigation Team Field teams of 4 people to collect product samples and food samples, collect 

traceback and trace forward information, conduct investigations, and 

coordinate responses at food facilities. 

Food Facility Decontamination 

Team 

Field teams of 4 people to decontaminate affected food facilities. 

Food Facility Decontamination 

Team Supervisors 

Supervisors to manage Food Facility Decontamination Teams. One supervisor 

can manage 10 team staff. 

Food Facility Decontamination 

Team SMEs 

Subject Matter Experts to assist Food Facility Decontamination Teams. One 

SME can assist at every 20 facilities. 

Disposal Team Field teams of 4 people to dispose of affected food products. 

Semi-tractor trailers Equipment used for disposal of affected food products. 

Disposal Team Supervisors Supervisors to manage food facility Disposal Teams. One supervisor can 

manage 10 team staff. 

Disposal Team SMEs Subject Matter Experts to assist food facility Disposal. One SME can assist at 

every 20 facilities. 
Target Capabilities List 151 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource Elements Components and Description

Sample Analysis Laboratory 

Analysts 

Analysts in a state laboratory capable of analyzing samples. Assume 

laboratory participates in Food Emergency Response Network 

Sample Analysis Laboratory 

Supervisors 

One supervisor for every 10 laboratory analysts. 

Confirmatory Testing 

Laboratory Analysts 

Analysts in a state laboratory capable of analyzing confirmatory samples 

Confirmatory Testing 

Laboratory Supervisors 

One supervisor for every 10 laboratory analysts 

Federal Risk Communication 

Staff 

Risk communication personnel from Federal agencies involved in response. 

State Risk Communication Staff Risk communication personnel from state agencies involved in response. 

Federal Embargo/Recall Team Team of recall staff and compliance officers from Federal agencies 

participating in response at one state. Personnel: 5 Federal recall staff and 6 – 

10 compliance officers per team. 

State Embargo/Recall Team Team of recall staff and compliance officers from state agencies. Personnel: 5 

recall staff and 10 compliance officers per team. 

Federal Public information staff Public information personnel from Federal agencies involved in response. 

State Public information staff Public information personnel from state agencies involved in response. 

Law enforcement – secure scene Coordinated Federal/State/local response 

Law enforcement – investigate 

event 

Coordinated Federal/State/local response 

IT support personnel Personnel to provide technical support for IT equipment provided to persons 

deployed 

IT support equipment cache One Blackberry, one cell phone, one laptop, and one portable printer for each 

person deployed 

Additional transportation Vehicles to transport personnel 

Planning Assumptions 

Scenario-Specific 

 Although applicable to several of the 15 National Planning Scenarios except for blister agents and 

nerve agents, the capability planning factors were developed from an in-depth analysis of the Food 

Contamination scenario. Other scenarios were reviewed to identify required adjustments or additions 

to the planning factors and national targets.

 The capability applies to a wide range of incidents and emergencies including accidental or deliberate 

disease outbreaks, natural disasters, nuclear and conventional events with potential for contamination 

of the food supply. 

 The identification of an intentional contamination incident involving a food product in the U.S. would 

have national implications. Because of the movement of food products around the US, it is highly 

probable that multiple food facilities in multiple States would be contaminated. Even States that 
152 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

eventually are found to have no contaminated product will initially require a stepped up effort to 

ensure that no contaminated product is in their State. 

 If terrorists were to introduce a chemical or biological agent into a food product at multiple sites 

simultaneously, the requirements for resources would increase proportionately and exist in many 

States simultaneously. The requirements for tactical (incident command) resources will increase 

proportionately with the amount of product/products contaminated. 

 It is likely that States would share resources, yet States would have to balance the sharing of 

resources with their need to protect public health within their State. The amount of tactical resource 

requirements would vary depending on the concentration of food facilities. 

 In high concentration areas, the spread may be rapid and many food facilities that purchased 

contaminated food may be affected. In areas with low concentration of food facilities/people, 

logistical obstacles such as driving time or distance between involved locations may present 

additional challenges. 

 The multiplication factors used to gear up from a single point introduction incident to a multiple 

(national) site introduction assumes resource requirements to increase proportionately with the 

number of introductions. In estimating national resource requirements, it was assumed the scenario 

would affect 25 States directly, but all 50 States would have increased workload. The time to resolve 

the scenario would vary depending on number of site introductions and multiple different food items 

contaminated. 

 This scenario is very limited in scope and only lists a food commodity regulated by the U.S. 

Department of Agriculture (ground beef). The Food and Drug Administration regulates 80 percent of 

the nation’s food supply – everything except meat, poultry, and egg products which are regulated by 

USDA. Other scenarios could have potentially more far reaching effects. This is based on 

vulnerability assessments conducted by FDA and USDA. 

 Assume all response personnel in key positions are able to respond to their respective response 

positions after the contaminant has been introduced and they respond as expected. 

 Assume that sector partners are connected to an information sharing and analysis or fusion system 

concept where preventative and protective measure information is proactively being shared. 

 Lack of infrastructure – electricity, phones, transportation, etc., will affect the ability to effectively 

communicate and will significantly affect the ability to plan appropriately or to respond to an 

incident. For example, if the roads are non-passable due to a natural disaster, this will affect the 

ability to get to the affected area and ensure the safety and security of the food supply. 

 Assume that Multi-Agency Coordination is adequately being addressed at the State, Federal and local 

levels and the agencies are coordinating as expected. 

 The following information is needed to effectively detect/respond to/recover from to an event: 

 Quantity of product affected. 

 Distribution of product. 

 Product type or types contaminated. 

 Laboratory capability. 

 Ability to determine the cause of illness. 

 Ability to determine the food item associated with illness or to rule out certain food items. 

 Ability to trace back product. 

 Ability to trace forward product. 

 Ability to effectively recall all affected product. 

 Appropriate disposal of recalled product. 

 Appropriate decontamination of food facility or other locations where food was available for 

purchase. 
Target Capabilities List 153 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

 Risk communication to consumers about appropriate food disposal instructions. 

 Communication with international partners. 

 Recovery Timeline could potentially be months due to the breadth of the event. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Food Contamination) 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement Values 

Quantity of Resources 

Needed 

Incident Command 

Center 

One fully expanded IC 

center can respond to an 

incident in one state, if 

staffed with additional 

personnel (4 – 6 SMEs 

and 4 - 6 policy staff) 

per 24 hour period. 

Assume 25-state incident 

requiring SME and policy 

staff above normal staffing 

levels. 

Personnel above normal 

staffing

4-6 SME* per 24 hours 

4-6 policy staff per 24 hours 

One IC center and one backup per state affected. 

FDA Emergency 

Operations Center 

Capable of responding 

24 hours per day to a 

large national incident 

for one month, 

assuming 8 – 10 staff 

per 8 shift on top of 

normal staffing 

Assume 25-state incident. 

In addition to normal 

staffing, the EOC would 

need 8-10 people/8 hour 

shift 

One national FDA EOC with 

24 - 30 staff (per 24 hours) in 

additional to normal staffing. 

USDA Emergency 

Operations Center 

Capable of responding 

to a large national 

incident for one month, 

assuming 7staff per 8 

shift on top of normal 

staffing 

Assume 25-state incident. 

In addition to normal 

staffing, the EOC would 

need 7 SMEs/8 hour shift 

One national USDA EOC 

with 21staff (per 24 hours) in 

additional to normal staffing 

USDA/FSIS Emergency 

Management Committee 

(EMC) 

 Capable of responding 

to large national 

incident, 24 hours per 

day. 

Assume 25-state incident. 

Composed of the most 

senior representatives of all 

program areas. 

1 EMC 

State Emergency 

Operations Centers 

Capable of managing 

the response within 

each State, assuming 

surge staffing numbers. 

60 Staff is the normal 

operating number 

In addition to normal 

staffing, 6-8 SMEs and 

policy staff would be 

needed/ 8 hour shift 

Assume 25-state incident 

requiring SME and policy 

staff above normal staffing 

levels. 

Personnel above normal 

staffing

6-8 SMEs per 8 hour shift 

One EOC and one back-up 

per state affected. 

Local Emergency Capable of responding 

to a local incident, 

 
154 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement Values 

Quantity of Resources 

Needed 

Operations Centers typically with 5 - 20 

staff. 

Human Disease 

Surveillance Team 

Team capable of 

responding to an 

incident within one 

state for one month 

Consists of 1 supervisor 

(MD, PhD, or Doctor of 

Veterinary Medicine 

(DVM)) per 8 hour 

shift, 

2 epidemiologists per 8 

hour shift, 

1 IT staff per 8 hour 

shift per team, 

1 statistician per 8 hour 

shift per team 

Assume 25-state incident 

requiring 100% staff needs 

for 30 days at each location. 

One team per state 

Food Investigation 

Team 

Each team is capable of 

providing coordinated 

Federal/State/local 

response to food 

facilities, conduct 

investigations, and 

collect samples at 40 

food facilities within a 

State 

Each team consists of 4 

people per food facility 

for 2 days. Teams may 

be split in order to 

cover a larger number 

of facilities 

Initially all 50 states will be 

on heightened alert and will 

be investigating food 

facilities in each State 

Assume 1000 food facilities 

per State are potentially 

contaminated 

1000 facilities = 

= 25 teams per state (4 

people per team) 

 = 100 people per state 

 = 5000 staff nationally 

Food Facility 

Decontamination Team 

One field team of 4 

people capable of 

providing coordinated 

response at 10 affected 

food facilities 

Assume that 

decontamination takes 2 

days per facility 

Assume 25-state incident 

Assume 100 food facilities 

per State are contaminated 

10 teams per state (4 people 

per team) 

For 25 States = 1000 staff 

nationally 

Food Facility 

Decontamination Team 

Supervisors

1 supervisor can 

manage every per 10 

team staff employees. 

Assume 25-state incident 

Assume 100 food facilities 

per State are contaminated 

10 teams per state = 40 staff 

per state = 4 supervisors per 

state 

For 25 States = 100 

supervisors nationally 

Food Facility 1 SME can assist at Assume 25-state incident 5 SMEs per state 
Target Capabilities List 155 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement Values 

Quantity of Resources 

Needed 

Decontamination Team 

SMEs

every 20 facilities Assume 100 food facilities 

per State are contaminated 

For 25 States = 125 SMES 

nationally 

Disposal Team One field team of 4 

staff capable of 

response to dispose of 

affected food products 

at one site 

Assume 50 disposal sites 

per State 

50 Teams per state (200 

staff) 

For 25 States = 1250 teams 

(5000 staff) nationally 

Semi-tractor trailers 5 semi-tractor trailers 

are needed per affected 

facility 

Assume 100 facilities per 

State have product that 

needs to be properly 

disposed 

100 facilities per state = 500 

semi-tractor trailers 

For 25 States = 12,500 semitractor trailers nationally 

Disposal Team 

Supervisors 

1 supervisor per 10 

employees on disposal 

team 

Assume 50 disposal sites 

per State 

50 sites = 50 teams per state 

= 200 staff = 20 supervisors 

per state 

For 25 States = 500 

supervisors nationally 

Disposal Team SMEs 1 SME for every 10 

disposal sites 

Assume 50 disposal sites 

per State 

5 SMEs per state 

For 25 States = 125 SMEs 

nationally 

Sample Analysis 

Laboratory Analysts 

20 analysts are capable 

of analyzing 200 

samples/lab/week in 

one state 

20 lab analysts/State lab 

Assume 50 states are 

involved 

Assume at least one Food 

Emergency Response 

Network lab per State 

Nationally = 1000 laboratory 

analysts 

Sample Analysis 

Laboratory Supervisors 

Assume 1 supervisor 

per 10 employees 

Assume 50 states are 

involved 

Nationally = 100 supervisors 

Confirmatory Testing 

Laboratory Analysts 

5 Analysts capable of 

analyzing 50 

confirmatory 

samples/lab/week in 

one state 

Assume 50 states are 

involved 

Nationally = 250 laboratory 

analysts 

Confirmatory Testing 

Laboratory Supervisors 

Assume 1 supervisor 

per 10 employees 

Assume 50 states are 

involved 

Nationally = 25 laboratory 

supervisors 

Federal Risk 

Communication Staff 

Capable of coordinating 

the response within a 

given area 

Need 5 personnel per 

Federal agency 

involved 

Assume 5 Federal agencies 

are involved 

Nationally = 25 staff at 

Federal level 

State Risk 

Communication Staff 

Capable of coordinating 

the response within a 

Assume all 50 states are 

involved 

Nationally = 250-500 state 

staff 
156 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement Values 

Quantity of Resources 

Needed 

given area 

Assume 5-10 personnel 

per State involved 

Federal Embargo/Recall 

Team 

One team can 

coordinate the Federal 

response in each state 

Each team comprises 5 

recall staff 6-10 Federal 

compliance officers 

(FDA and USDA) 

Assume response in 25 

states 

One Federal Embargo/Recall 

Team per state 

25 States = 125 recall staff 

and 150-250 Federal 

compliance officers 

nationally 

State Embargo/Recall 

Team 

One team can 

coordinate the response 

in each state 

Each team comprises 

10 compliance officers 

and 5 recall staff 

Assume response in 25 

states 

One State Embargo/Recall 

Team per state 

25 States = 250 state 

compliance officers and 125 

state recall staff nationally 

Federal public 

information staff 

5 staff per Federal 

agency 

Assume 5 Federal agencies 

are involved 

25 staff at Federal level 

nationally 

State public information 

staff 

4 staff /8 hour shift at 

State level 

Assume 50 states Per State = 12 staff/24 hours 

50 states = 600 staff 

nationally 

Law enforcement staff – 

secure scene 

2 staff capable of 

response at each 

contaminated facility 

Assume 25 states 

Assume 100 facilities are 

contaminated per State 

2 staff x 100 facilities = 200 

per state 

x 25 States = 5000 personnel 

nationally 

Law enforcement staff – 

investigate event 

2 staff capable of 

response at each 

contaminated facility 

Assume 25 states 

Assume 100 facilities are 

contaminated per State 

2 staff x 100 facilities = 200 

per state 

x 25 States = 5000 personnel 

nationally 

IT support staff One IT support person 

per 20 staff deployed 

Assume 12000 personnel 

deployed in 25 states 

Nationally =600 IT support 

staff 

IT support equipment Cache of one 

Blackberry, one cell 

phone, one laptop, and 

one portable printer for 

each person deployed 

Assume 12000 people 

deployed in 25 states 

Nationally = 12,000 IT 

support equipment caches: 

12,000 blackberries, 12,000 

cell phones, 12,000 laptops, 

12,000 portable printers 

Additional 

transportation 

One vehicle per two 

people deployed 

Assume 120 people 

deployed per state 

Assume 3000 people 

deployed in 25 States 

240 vehicles per state 

6,000 vehicles nationally 
Target Capabilities List 157 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability Activity 

supported by 

Element 

Incident Command 

Center 

Resource 

Organization 

2 Per State (central 

and backup). 

State Direct Food and 

Agriculture Safety and 

Defense Operations 

Implement Control 

Measures for 

Contaminated Products 

Conduct Product 

Disposal and Food 

Facility 

Decontamination 

FDA Emergency 

Operations Center 

Federal 

Resource 

Organization 

1 Nationally Federal 

(HHS/FDA) 

Direct Food and 

Agriculture Safety and 

Defense Operations 

Implement Control 

Measures for 

Contaminated Products 

USDA Emergency 

Operations Center 

Federal 

Resource 

Organization 

1 Nationally Federal 

(USDA) 

Direct Food and 

Agriculture Safety and 

Defense Operations 

Trace Suspect Products 

Implement Control 

Measures for 

Contaminated Products 

Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

USDA/FSIS 

Emergency 

Management 

Committee (EMC) 

Federal 

Resource 

Organization 

1 Nationally Federal 

(USDA/ 

FSIS) 

Direct Food and 

Agriculture Safety and 

Defense Operations 

Trace Suspect Products 

Implement Control 

Measures for 

Contaminated Products 

State Emergency 

Operations Center 

(EOC) 

Resource 

Organization 

2 Per State (central 

and backup) 

State Direct Food and 

Agriculture Safety and 

Defense Operations 

Implement Control 

Measures for 

Contaminated Products 

Conduct Product 
158 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability Activity 

supported by 

Element 

Disposal, Surface, and 

Food Facility 

Decontamination 

Human Disease 

Surveillance Team 

Non-NIMS 

Resource 

Organization 

1 Per State State Surveillance 

Food Investigation 

Team 

Non-NIMS 

Resource 

Organization 

25 Per State State Surveillance 

Trace Suspect Products 

Food Facility 

Decontamination 

Team 

Non-NIMS 

Resource 

Organization 

10 Per State State Implement Control 

Measures for 

Contaminated Products 

Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

Food Facility 

Decontamination 

Team Supervisors 

Non-NIMS 

Resource 

Organization 

4 Per State State Implement Control 

Measures for 

Contaminated Products 

Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

Food Facility 

Decontamination 

SMEs 

Non-NIMS 

Resource 

Organization 

5 Per State State Implement Control 

Measures for 

Contaminated Products 

Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

Disposal Team Resource 

Organization 

50 per State State Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

Semi-tractor 

trailers for disposal 

Equipment 500 Per state State Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

Disposal Team 

Supervisors 

Personnel 20 Per state State Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

Disposal Team 

SMEs 

Personnel 5 Per State State Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 
Target Capabilities List 159 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability Activity 

supported by 

Element 

Sample Analysis 

Laboratory 

Analysts 

Personnel 1000 Nationally State Surveillance 

Sample Analysis 

Laboratory 

Supervisor 

Personnel 100 Nationally State Surveillance 

Confirmatory 

Testing Laboratory 

Analysts 

Personnel 250 Nationally State Surveillance 

Confirmatory 

Testing Laboratory 

Supervisor 

Personnel 25 Nationally State Surveillance 

Federal Risk 

Communication 

Staff 

Personnel 25 Nationally Federal 

(HHS/FDA, 

USDA) 

Implement Control 

Measures for 

Contaminated Products 

State Risk 

Communication 

Staff 

Personnel 250 - 500 Nationally States Implement Control 

Measures for 

Contaminated Products 

Federal 

Embargo/recall 

Team 

Non-NIMS 

Organization 

 1 Per State Federal 

(HHS/FDA, 

USDA) 

Implement Control 

Measures for 

Contaminated Products 

State 

Embargo/recall 

Team 

Non-NIMS 

Organization 

 1 Per State State Implement Control 

Measures for 

Contaminated Products 

Federal Public 

information staff 

Personnel 25 Nationally Federal 

(HHS/FDA, 

USDA) 

Implement Control 

Measures for 

Contaminated Products 

State Public 

information staff 

Personnel 12 Per State State Implement Control 

Measures for 

Contaminated Products 

Law enforcement 

staff – secure scene 

Personnel 200 Per State State Implement Control 

Measures for 

Contaminated Products 

Law enforcement 

staff - investigate 

event 

Personnel 200 Per State State Implement Control 

Measures for 

Contaminated Products 

IT support staff Personnel 600 Nationally State All Activities 

IT equipment cache Equipment 12000 Nationally State All Activities 

Additional 

transportation 

Vehicles 240 Per State State Trace Suspect Product 

Implement Control 

Measures for Infected 

and/or Contaminated 

Products 
160 Target Capabilities List 

PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability Activity 

supported by 

Element 

Conduct Product 

Disposal, Surface, and 

Food Facility 

Decontamination 

References 

1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html 

2. National Response Plan (NRP). Department of Homeland Security. December 2004. 

3. National Incident Management System (NIMS). Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf 

4. Bio-security and the Food Supply. Food Safety and Inspection Service, Department of Agriculture. 2004. 

http://www.fsis.usda.gov/Fact_Sheets/Biosecurity_&_the_Food_Supply/index.asp 

5. Emergency Response to Terrorism Job Aid, Ed 2.0. Federal Emergency Management Agency and Department 

of Justice. February 2003. http://biotech.law.lsu.edu/blaw/FEMA/ert-ja.pdf 

6. Federal Meat Inspection Act. Food Safety and Inspection Service, Department of Agriculture. 2002. 

7. Code of Federal Regulations, Title 10, Part 835; Volume 4, Parts 500 to end. U.S. Government Printing Office. 

2000. 

8. OSHA/NIOSH Interim Guidance - August 30, 2004: Chemical - Biological - Radiological - Nuclear (CBRN) 

Personal Protective Equipment Selection Matrix for Emergency Responders, Biological Agents. Occupational 

Safety & Health Administration, Department of Labor 

9. Hazard Analysis and Critical Control Point (HACCP). U.S. Food and Drug Administration. Center for Food 

Safety and Applied Nutrition. http://vm.cfsan.fda.gov/~lrd/haccp.html 

10. Post-Emergency Response Resources Guide. US Nuclear Regulatory Commission and Federal Emergency 

Management Agency. 1991. 

11. Manual of Protective Action Guides and Protective Actions for Nuclear Incidents, 400-R-92-0001. 

Environmental Protection Agency (EPA). 1991. 

12. Radiological Sources of Potential Exposure and/or Contamination, USACHPPM Tech Guide 238. Aberdeen 

Proving Ground, MD. 1999. 

13. Code of Federal Regulations (CFR) Title 10, Part 835; Volume 4; Parts 500 to end. U.S. Government Printing 

Office. 2000. http://www.access.gpo.gov/nara/cfr/waisidx_03/10cfr835_03.html 

14. National Fire Protection Association. 2002. NFPA 472: Standard for Professional Competence of Responders 

to Hazardous Materials Incidents. 2002 Edition. Available at: 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472. Accessed October 10. 2005. 

15. National Fire Protection Association. 2004. NFPA 1600: Standard on Disaster/Emergency Management and 

Business Continuity Programs, National Fire Protection Association, 2004 Edition. Available at: 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1600. Accessed October 10, 2005. 

16. Multistate Foodborne Outbreak Investigations: Guidelines for Improving Coordination and Communication” – 

National Food Safety System Project, Outbreak Coordination and Investigation Workgroup, February 2001. 

17. Environmental Health Officers Readiness Guide, U.S. Public Health Service 

18. Core Competencies for Public Health Workers, Columbia School of Nursing 
Target Capabilities List 161 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

EPIDEMIOLOGICAL SURVEILLANCE AND 

INVESTIGATION

Capability Definition 

The Epidemiological Surveillance and Investigation capability is the capacity to rapidly conduct 

epidemiological investigations. It includes exposure and disease (both deliberate release and naturally 

occurring) detection, rapid implementation of active surveillance, maintenance of ongoing surveillance 

activities, epidemiological investigation, analysis, and communication with the public and providers 

about case definitions, disease risk and mitigation, and recommendation for the implementation of control 

measures. 

Outcome 

Potential exposure to disease is identified rapidly by determining exposure and mode of transmission and 

agent; interrupting transmission to contain the spread of the event; and reducing number of cases. 

Confirmed cases are reported immediately to all relevant public health, food regulatory, environmental 

regulatory, and law enforcement agencies. Suspected cases are investigated promptly, reported to 

relevant public health authorities, and accurately confirmed to ensure appropriate preventive or curative 

countermeasures are implemented. An outbreak is defined and characterized; new suspect cases are 

identified and characterized based on case definitions on an ongoing basis; relevant clinical specimens are 

obtained and transported for confirmatory laboratory testing; the source of exposure is tracked; methods 

of transmission identified; and effective mitigation measures are communicated to the public, providers, 

and relevant agencies, as appropriate. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Function (ESF)/Annexes: 

ESF#8: Public Health and Medical Services 

Biological Incident Annex 

Terrorism Incident Law Enforcement and Investigation Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

ProB1a 1.1 Develop plans, procedures, and protocols for investigating a potential disease outbreak 

ProB1a 1.1.1 Develop procedures for identification of disease, vector and epidemic 

ProB1a 1.1.2 Develop guidelines or procedures for properly conducting a coordinated outbreak investigation 

Pro.B1a 1.1.4 

Develop and maintain efficient surveillance systems supported by information systems that 

comply with PHIN functional requirements for Early Event Detection, Outbreak Management 

and Countermeasure and Response Administration to facilitate early detection, mitigation and 

evaluation of expected and unexpected public health conditions 
162 Target Capabilities List 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Pro.B1a 1.1.5 

Distinguish on the State list of notifiable conditions between select conditions that require 

immediate reporting to the public health agency (at a minimum, Cat A agents), and conditions 

for which a delay in reporting is acceptable 

ProB1a 1.2 Develop plans and procedures to respond to a disease outbreak 

ProB1a 1.2.1 Develop policies and procedures to respond appropriately to positive notifications of medical 

hazards 

Pro.B1a 1.2.1.1 Describe time frames for notification for conditions where a delay in reporting is acceptable, 

ProB1a 1.2.2 Develop plans, procedures and protocols for the provision of medical personnel, equipment, 

laboratories, and pharmaceuticals and supplies 

ProB1a 1.2.3 Plan and prepare for pandemic influenza, particularly for the stage when vaccine either is nonexistent or in severely short supply 

ProB1a 1.2.4 Develop plans, procedures and protocols to inventory medical supplies, equipment, ambulance 

services, hospitals, clinics and first aid units 

ProB1a 1.2.5 Develop communications to physicians and hospitals regarding use of testing of symptomatic 

and non-symptomatic patients during epidemic 

ProB1a 1.2.6 

Develop an integrated response plan that directs how public health, hospital-based, 

environmental, food, veterinary and agricultural laboratories will respond to a bioterrorism 

incident 

Preparedness Measures Metrics

Epidemiological and laboratory emergency plans are in place Yes/No

Epidemiological plans identify the conditions (e.g., trigger points) for initiating the 

investigation 

Yes/No 

Epidemiological emergency response plans delineate the epidemiological investigation steps 

for identifying the population at risk 

Yes/No 

Epidemiological emergency response plans address surveillance – ongoing and event-specific 

collection of health data 

Yes/No

Epidemiological emergency response plans include steps for comparison of cases to the 

baseline and confirmation of diagnosis 

Yes/No

Epidemiological emergency response plans include steps for case finding – actively searching 

for cases 

Yes/No

Epidemiological emergency response plans include steps for managing data that warrants 

public health attention (e.g. detect through pattern recognition and compile, analyze, and 

report surveillance data) 

Yes/No 

Epidemiological emergency response plans include steps for contact tracing Yes/No

Epidemiological emergency response plans identifying/developing information systems to 

support the epidemiological investigation that comply with PHIN functional requirements for 

Outbreak Management and Countermeasure and Response Administration including a 

protocol for management/flow of data 

Yes/No

Epidemiological emergency response plans include steps for development of descriptions of 

cases through interviews, medical record review and other mechanisms (person, place and 

time) 

Yes/No

Epidemiological emergency response plans include steps for generating possible associations Yes/No
Target Capabilities List 163 

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of transmission, exposure and source 

Epidemiological emergency response plans include steps for coordinating with environmental 

investigation 

Yes/No

Epidemiological emergency response plans include steps for performing and analyzing 

definitive studies 

Yes/No

Epidemiological emergency response plans include steps for sharing with and reporting 

appropriate information to key Federal, State, and local public health partners 

Yes/No

Epidemiological emergency response plans address monitoring the containment of diseases 

(e.g. outbreak course and population characteristics, effectiveness of mitigation steps, status of 

those exposed from identification through disposition, etc.). 

Yes/No 

Epidemiological emergency response plans include steps for evaluating therapeutic outcome Yes/No

Epidemiological emergency response plans include steps for monitoring adverse reactions to 

public health interventions 

Yes/No

Epidemiological emergency response plans include communication requirements (e.g., 

dissemination of accurate, timely, and accessible information to the public, media, and 

support agencies) 

Yes/No 

Chain of evidence and chain of custody protocols are followed according to SOP – zero loss 

of evidence or specimens 

Yes/No 

Information tracking systems (e.g., registries of exposed or potentially exposed persons, 

systems to support investigating, describing, understanding events). 

Yes/No 

State notifiable conditions list distinguishes between select conditions that require immediate 

reporting to the public health agency (at a minimum, Cat A agents), and conditions for which 

a delay in reporting is acceptable 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

ProB1a 2 Develop and implement training and exercises for epidemiological surveillance and investigation 

ProB1a 2.1 Develop and implement training programs epidemiological surveillance and investigation 

ProB1a 2.1.1 Support training on various types and models of equipment likely to be used in an emergency 

situation through government grants and industry sponsored workshops 

ProB1a 2.2 Develop and implement exercises for epidemiological surveillance and investigation 

Preparedness Measures Metric

Staff are trained on activities required to conduct epidemiological surveillance and 

detection including exposure and disease detection, surveillance, analysis, reporting, and 

use of equipment 

Yes/No 

HSEEP-compliant exercises to evaluate epidemiological surveillance and detection are 

routinely conducted Yes/No 
164 Target Capabilities List 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Performance Tasks and Measures/Metrics 

Activity: Direct Epidemiological Surveillance and Investigation Operations

Definition: Coordinate, maintain, enhance, analyze, and provide efficient surveillance and 

information systems to facilitate early detection and mitigation of disease.

Critical Tasks

Pro.B1a 3.3.2 Identify applicable laws, policies, and implementation procedures for public health reporting and 

notification 

Pro.B1a 3.3.1 Maintain public health communication channels supported by information systems that comply 

with the PHIIN functional requirements for Partner Communications and Alerting

Pro.B1a 3.3.3 Provide Public Health information to emergency public information for release 

Pro.B1a 3.2.3 Coordinate resources needed to respond to public health concern 

Pro.B1a 3.1 Lead public health investigations to determine source of disease in collaboration with law 

enforcement 

Pro.B1a 3.2.2 Identify all stakeholders and agency representatives or liaisons for public health response 

Pro.B1a 4.5.1 Report instances of disease that raise the index of suspicion of terrorist or criminal involvement 

to FBI Headquarters (National Response Plan) 

Pro.B1a 3.3.4 Make public health recommendations for prophylaxis and other interventions 

Pro.B1a 3.2.4 Coordinate examination of deceased suspect patients with the medical examiner and/or coroner 

Performance Measures Metric

Time in which State informed local or local informed State of receipt of notice of a 

case with a high index of suspicion of an immediately notifiable condition 

Within 1 hour from receipt 

Time in which information was issued to the public that acknowledged the event, 

provided status, and committed to continued communication 

Within 1 hour from 

implementation of response 

plan 

Time in which case finding and public health instruction was disseminated to all 

hospitals in jurisdiction through the Health Alert Network (HAN) whose supporting 

information systems comply with the PHIN functional requirements for Partner 

Communications and Alerting. 

Within 12 hours from case 

definition 

Percent of public health epidemiological staff with sufficient equipment (e.g., PPE, 

IT, communication, clinical sampling equipment, specimen collection material) to 

conduct investigation 

100% 

Time in which knowledgeable public health professional answered a call of urgent 

public health consequence 24/7/365 

Within 15 minutes from call 

Time in which message was approved and authorized for distribution of public health 

and medical information to clinicians and other responders 

Within 1 hour from 

finalization of message 
Target Capabilities List 165 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Activity: Surveillance and Detection

Definition: Collect ongoing and event-specific health data to recognize events of public health 

significance

Critical Tasks 

Pro.B1a 4.5.4 Facilitate reporting consistent with disease reporting laws or regulations 

Pro.B1a 4.3 Compile surveillance data 

Pro.B1a 4.4 Analyze surveillance data 

Pro.B1a 4.2.1 Detect suspected outbreak through pattern recognition 

Pro.B1a 4.3.3 Maintain chain of custody 

Pro.B1a 4.3.2 Have or have access to PHIN compliant information systems to support detecting events of 

public health significance and tracking of chain of custody 

Performance Measures Metric 

Data warranting public health attention were received, reviewed, and analyzed Yes/No 

Time in which epidemiological investigation was initiated following report to health 

department 

Within 3 hours from 

report 

Time in which epidemiological investigation was completed following report to health 

department 

Within 36 hours from 

report 

Activity: Conduct Epidemiological Investigation 

Definition: Investigate a disease and its determinants in a population; characterize and classify a 

case; identify the source of the public health event; and define the population at risk

Critical Tasks 

ProB1a 5.1 Dispatch public health personnel to location of suspected contamination 

ProB1a 5.2 Conduct epidemiological investigations to identify potential exposure and disease 

Pro.B1a 5.3 Confirm the outbreak using lab data and disease tracking data 

Pro.B1a 5.2.1 Define case characteristics 

Pro.B1a 5.3.1 Search actively for cases (case finding) 

Pro.B1a 5.3.2 Create registries of ill, exposed, and potentially exposed persons 

Pro.B1a 5.4 Conduct contact tracing 

Pro.B1a 5.4.1 Analyze and interpret epidemiological investigation data in coordination with data from CounterTerror Investigation and Law Enforcement 

Pro.B1a 5.4.2 Analyze and confirm origin of outbreak 

Pro.B1a 5.5.1 Recommend control measures for outbreak 

Pro.B1a 5.6 Draft and disseminate initial report of epidemiological investigation 
166 Target Capabilities List 

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Pro.B1a 5.6.1 

Have or have access to information systems to support investigating, describing and 

understanding events of public health significance that comply with the PHIN Functional Area 

Outbreak Management 

Performance Measures Metric 

Time in which public health epidemiologist initiated initial investigation Within 3 hours from initial 

notification 

Time in which recommendation for public health intervention was provided Within 6 hours from first 

identification of agent 

Time in which suspect case was sent to key Federal, State, and local public health 

partners (e.g., CDC, FBI, law enforcement, State, and local) 

Within 3 hours from 

identification 

Time in which case definitions were created Within 12 hours from 

confirmation of index case 

Time in which a health alert that describes the initial report of an indexed case 

along with known cases, possible risk factors, and initial public health 

interventions to be distributed via multiple means such as: Epi-X, Health Alert 

Network (HAN), fax, and e-mail was developed 

Within 12 hours from initiation 

of case investigation 

Time in which active case findings in all affected States was initiated Within 24 hours from 

established working case 

definition. 

Time in which law enforcement was notified of initial laboratory confirmation of 

high priority diseases or events with suspicion of terrorism 

Within 1 hour from laboratory 

confirmation. 

Time in which clinical diagnostic specimens/samples were received at the 

laboratory response network (LRN) after epidemiologist acquisition 

Within 6 hours from 

acquisition 

Time in which 75 % of known suspected cases (or proxies) were 

contacted/interviewed for more detailed epidemiologic follow-up 

Within 48 hours from 

identification of the index case 

Time in which an initial report describing all suspected cases by person, place, 

and time was produced 

Within 60 hours from 

identification of the index case 

Activity: Monitor Containment

Definition: Based upon the extent of the population at risk and recommendations for outbreak 

control, assess the effectiveness of disease containment measures

Critical Tasks 

Pro.B1a 6.1.1 Monitor the course and population characteristics of a recognized outbreak 

Pro.B1a 6.2 

Have or have access to information systems that support administration of outbreak control 

and that comply with the PHIN functional requirements for Countermeasure and Response 

Administration. 

Pro.B1a 6.1 Monitor effectiveness of mitigation steps 

Pro.B1a 6.4 Conduct an after action debriefing (hotwash) to identify deficiencies that require corrective 

actions in areas such as personnel, training, equipment, and organizational structure 

Pro.B1a 6.3.2 Conduct special studies of critical public health issues 
Target Capabilities List 167 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Performance Measures Metric 

Percent of known cases and exposed successfully tracked from identification through 

disposition to enable follow-up 

100% 

Linked Capabilities 

Linked Capability Relationship 

Emergency Public 

Information and Warning 

Epidemiological Surveillance and Investigation provides information for release to 

Emergency Public Information and Warning. 

Emergency Operations 

Center Management 

Epidemiological Surveillance and Investigation and Emergency Operations Center 

Management both contribute to situation reports. 

Medical Surge Epidemiological Surveillance and Investigation and Medical Surge both provide 

situation reports. 

Laboratory Testing Epidemiological Surveillance and Investigation receives lab results from Laboratory 

Testing. 

Mass Prophylaxis Epidemiological Surveillance and Investigation provides outbreak notification to Mass 

Prophylaxis. 

Isolation and Quarantine Epidemiological Surveillance and Investigation provides investigation results to 

Isolation and Quarantine, while Isolation and Quarantine provides containment updates 

to Epidemiological Surveillance and Investigation. 
168 Target Capabilities List 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Direct 

Epidemiological 

Surveillance 

and 

Investigation 

Operations

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Isolation and 

Quarantine

Emergency Public 

Information and 

Warning

Emergency 

Operations Center 

Management

Mass 

Prophylaxis

Lab results provided

Updates provided

Provide stireps

Provide information for 

release

Provide investigation 

results

Provide outbreak 

notification

Report detection of possible 

unusual event

Provide lab results

Medical Surge Provide information

Need for PAD

Sample provided to lab

End: Return to pre-event 

operation levels

Surveillance and 

Detection

Conduct 

Epidemiological 

Investigation

Monitor 

Containment

Routine 

monitoring data 

suggests unusual 

event?

Recommend revisions to PAD

No

Yes

Disease contained

Ready to implement 

containment measures 

Linked 

Capabilities Relationship

Epidemiological Surveillance and 

Investigation Capability

Capability Activity Process Flow

Laboratory 

Testing
Target Capabilities List 169 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Resource Element Description 

Resource Elements Components and Description

Local Health Department-based 

Surveillance Team 

Team to track suspect case reports (reportable diseases) within their 

jurisdiction; personnel (per 12-hour shift): 1 supervisor (MD, DVM, or PhD 

level), 2 epidemiologists, 1 IT staff , and 1 statistician. The team is led by a 

local health department, but staff may be drawn from local, State, and/or 

Federal resources. 

Investigation Epidemiologist Personnel: 1 Epidemiologist (or public health nurse or public health advisor) 

to interview cases and perform investigation 

Active Surveillance/Case 

Finding Epidemiologist 

Personnel: 1 epidemiologist (or public health nurse or public health advisor) 

per 12 hour shift per facility (e.g. hospital ER in affected region) to find to 

cases in hospitals and the community. 

Special Studies Team Team to undertake focused scientific investigations of interest; personnel: 1 

epidemiology supervisor (MD, DVM, or PhD), 5 epidemiologists or scientists, 

1 public health advisor, 1 subject matter expert, 1 interviewer per 10 persons, 

and 1 statistician 

CDC Department Emergency 

Operations Center (DEOC) 

Surge Team 

Team to coordinate CDC response to an incident at a location. Personnel: 1 

senior epidemiology supervisor, 1 Federal-State liaison epidemiologist per 

affected State, 5 support epidemiologists, 1 public health advisor (PHA), 1 data 

entry manager, 10 data entry staff 

State/Local EOC Surge Team EOC personnel to coordinate the response to the incident. Personnel: 1 

epidemiology incident commander, 1 senior epidemiology supervisor per 12 

hour shift, 1 Bioterrorism coordinator, 5 support epidemiologists per 12 hour 

shift, 1 PHA per 12 hour shift, 1 Database manager, 1 programmer, 2 analysts, 

2 transport teams (each with 1 driver), 1 clerical staff member, 1 IT person 

Personal Equipment Cache 1 Blackberry/cell phone, PPE, and appropriate equipment cache per person 

Laptop computers/printers 1 laptop per 2 persons deployed; 1 printer per 10 laptops (1 printer per 20 

persons deployed) 

Planning Assumptions

Scenario-Specific 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning 

factors were developed from an in-depth analysis of the Anthrax and Pandemic Influenza 

scenarios. Other scenarios were reviewed to identify required adjustments or additions to the 

planning factors and national targets. 

 Estimates are made of the needs for communities to respond to this emergency once identified 

and for baseline resources needed for timely initial detection 

 B. anthracis spores added directly to product without aerosolization 

 Ground beef was sent to San Diego, Seattle, and Phoenix 

 Orange juice was sent to Albuquerque, Las Vegas, and Palm Springs 

 Patient presentations involved gastrointestinal, oropharyngeal, and cutaneous forms of anthrax. 

 Clinical and laboratory confirmation (LRN) occurred between days 2 and 5 after index case 

presentation 
170 Target Capabilities List 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

 Production facilities and distribution system mechanisms will be contaminated until formally 

decontaminated 

 Cases will continue sporadically following public health intervention due to consumers and 

retailers failing to discard/return/destroy contaminated product 

 No simultaneous disasters are occurring during the same time 

 There will be an unprecedented level of public concern, anxiety, and fear as a result of this 

incident 

 Assume field investigation will last 10 days at full personnel strength and then another 20 days at 

50 percent personnel strength. 

 Assume a concurrent law enforcement investigation 

 Assume health departments and Emergency Operation Centers (EOC) will require 100 percent 

surge staffing for 30 days in 10 cities (6 affected cities and 4 neighboring areas that have high 

levels of anxiety/concern) and at CDC. 

 Staff requirements, detailed in this worksheet, represent existing local, State, and Federal 

resources that are devoted to routine (baseline) public health activities. 

 Assume that staff at the local level may include Federal or State employees; assume that staff at 

the State level may include Federal employees. 

 Assume that for every case interviewed, 10 ill persons with diseases other than anthrax will need 

to be interviewed in a more abbreviated manner. Assume these “non-case” interviews will take 

half the time of a case interview. Given that 2,300 cases are indicated in the scenario, this means 

that 25,300 total interviews will need to be conducted. 

 Assume 100 percent of cases and 50 percent of non cases will be interviewed during first 10 days. 

The remaining 50 percent of non-cases will be interviewed during the next 20 days. 

 Assume there will be 100 facilities (hospital emergency departments) requiring active 

surveillance in 10 locations. 

 Assume 10 special studies will be conducted. Each study will require 50 interviews. 

 The food contamination scenario explored would be considered a national response that involves 

local, State and Federal resources. 

 To provide 24 hour coverage for the first 10 days, the national response described in this scenario 

would require a staff of 110 epidemiology supervisors, 451 epidemiologists, 60 data entry staff, 

40 IT staff, 30 statisticians, 60 public health advisors, 10 occupational/environmental 

epidemiologists, 50 non-epidemiologist interviewers, 10 subject matter experts and 10 State 

bioterrorism coordinators. 

 Over the next 20 days of the investigation, staffing could be reduced to 70 epidemiology 

supervisors, 270 epidemiologists, 31 data entry staff, 30 IT staff, 30 statisticians, 40 public health 

advisors, 10 occupational/environmental epidemiologists, 50 non-epidemiologist interviewers, 10 

subject matter experts and 10 State BT coordinators. 

 The percent of staff contributions to the investigation from the State and local levels is dependent 

on baseline availability of resources. It should be noted that the Council of State and Territorial 

Epidemiologists (CSTE) 2004 National Assessment of Epidemiology Capacity: Findings and 

Recommendations sites a 40 percent deficiency of trained public health epidemiologists 

nationally. 

 Due to potentially unforeseen delays in the identification of a non-naturally occurring 

epidemiological event, detection of disease outbreaks may not occur until large numbers of 

victims are affected, particularly when the agent has a long incubation period. 
Target Capabilities List 171 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Anthrax and Pandemic Influenza) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed

Local Health 

Department-based 

Surveillance Team 

One team can track diseases at 

one location per 12 hour shift. 

Assume 24 hour/day 

staff needs for 30 days 

at 10 locations 

All 30 days – need 20 

teams nationally 

Each location needs 2 

teams (1 per shift) 

Investigation 

Epidemiologist 

One epidemiologist can conduct 

investigations at 5 locations 

during first 10 days 

Assume 100 facilities 

requiring active 

surveillance in 10 

locations (cities) during 

first 10 days 

Nationally: 

200 epidemiologists for 

first 10 days 

100 epidemiologists for 

next 20 days 

Active 

Surveillance/Case 

Finding 

Epidemiologists 

One epidemiologist per shift can 

conduct surveillance/case finding 

at 1 health facility during first 10 

days. 

For 24-hour surveillance, need 2 

epidemiologists per day at each 

facility. 

Assume 100 facilities 

requiring active 

surveillance across 10 

locations (cities) during 

first 10 days. 

Nationally: 

200 epidemiologists for 

first 10 days; 100 

epidemiologists for next 

20 days 

2 Epidemiologist per 

health facility 

Special Studies 

Team 

One team (comprising personnel 

in Resource Element Description 

Table) can conduct one study 

Assume 10 special 

studies conducted, each 

requiring 50 interviews 

All 30 days – need 10 

Teams nationally 

CDC Department 

Emergency 

Operations Center 

(DEOC) Surge Team 

100% surge staffing for first 10 

days, and 50% staffing for next 20 

days at CDC EOC. 

Assume 1 surge team can support 

response for one affected location 

per 12 hour shift 

Assume 10 affected 

locations (6 with cases + 

4 additional) requiring 

24 hour/day response 

Nationally – 20 Surge 

Teams 

State/Local EOC 

Epidemiology Surge 

Personnel Team 

Assume 100% staff needs for first 

10 days, and 50% staffing for next 

20 days at each location 

Assume 1 surge team can support 

response for one affected location 

per 12 hour shift 

Assume 10 affected 

States (6 with cases + 4 

additional) 

2 Surge Teams per State 

EOC for 1st 10 tens; then 

1 Surge Team for 20 

days. 

Personal Equipment 

Cache 

Blackberry/cell phone; PPE and 

appropriate equipment cache per 

person – 1 per person deployed;

Assume 511 people 

deployed during first 10 

days; 

341 people next 20 days 

First 10 Days: 

511 Blackberry/cell 

phones/PPE/appropriate 

equipment cache 

Next 20 Days: 

341 Blackberry/cell 

phones/PPE/appropriate 
172 Target Capabilities List 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed

equipment cache 

Laptop 

computers/printers 

1 laptop for every 2 people 

deployed; 1 printer for every 10 

laptops 

(or 10 laptops and 1 printer for 

every 20 people deployed) 

Assume 511 people 

deployed during first 10 

days; 

341 people next 20 days 

First 10 Days: 

256 laptops, 26 printers 

Next 20 Days: 

171 laptops, 17 printers 

Approaches for Large-Scale Events 

Pandemic Flu – For all teams, the work force will be diminished by one-third. The need for 

epidemiologic investigation will be far reduced relative to surveillance needs; resource needs for 

pandemic flu are orders of magnitude greater. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Local Health 

Department-based 

Surveillance Team 

Personnel 2 Per affected county Federal/State/ 

Local 

Monitor 

Containment 

Surveillance and 

Detection 

Investigation 

Epidemiologist 

Personnel 1 Per affected county Local (County) Conduct 

Epidemiological 

Investigation 

Active Case 

Finding/ 

Surveillance 

Epidemiologist 

Personnel 1 Per affected county Local (County) Conduct 

Epidemiological 

Investigation 

Monitor 

Containment 

Surveillance and 

Detection 

Special Studies 

Team 

Personnel 10 Nationally Federal/ State/ 

Local 

Conduct 

Epidemiological 

Investigation 

Monitor 

Containment 

Surveillance and 

Detection 
Target Capabilities List 173 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

CDC Department 

Emergency 

Operations Center 

(DEOC) Surge 

Team 

Federal 

Resource 

Organization 

10 Nationally Federal 

(HHS/CDC) 

Direct 

Epidemiological 

Surveillance and 

Investigation 

Operations 

State/Local EOC 

Epidemiology 

Surge Personnel 

Team 

Resource 

Organization 

2 Per State State Direct 

Epidemiological 

Surveillance and 

Investigation 

Operations 

Personnel 

Equipment cache 

Equipment 511 Nationally Federal/State/ 

Local 

All Activities 

Laptop 

computers/printers 

Equipment 256 Nationally Federal/State/ 

Local 

All Activities 

References 

1. Homeland Security Presidential Directive/HSPD-8, “National Preparedness”. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html 

2. National Response Plan (NRP) Department of Homeland Security. December 2004. 

3. National Incident Management System (NIMS). Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf 

4. Bravata, D, McDonald, K, Owens, D et al. Bioterrorism Preparedness and Response: Use of Information 

Technologies and Decision Support Systems. Evidence Report/Technology Assessment No 59, HRQ 

Publications No. 02-E028. Agency for Healthcare Research and Quality. June 2002. 

http://www.ahrq.gov/clinic/epcsums/bioitsum.pdf 

5. Syndrome and Outbreak Detection Using Chief-Complaint Data: Experience of the Real-Time Outbreak and 

Disease Surveillance Project. Morbidity and Mortality Weekly Report. September 2004. 

http://www.cdc.gov/mmwr/preview/mmwrhtml/su5301a7.html 

6. Epidemic Intelligence Service. Center for Disease Control. 2004. http://www.cdc.gov/eis 

7. State Public Health Preparedness and Response Capacity Inventory; Version 1.1. Centers for Disease Control 

and Prevention. December 2002. 

http://www.phppo.cdc.gov/od/inventory/docs/State%20Inventory%20version%201_1_FINAL.pdf 

8. Bioterrorism and Public Health Emergency Preparedness and Response: A National Collaborative Training 

Plan. Centers for Disease Control and Prevention. February 2002. 

http://www.phppo.cdc.gov/owpp/docs/library/2002/BioTerrorism%20National%20Training%20Plan%20Exec

%20Sum.pdf 

9. National Bioterrorism Hospital Preparedness Program, Continuation Guidance. Department of Health and 

Human Services, Health Resources and Services Administration. 2005. 

http://www.hrsa.gov/grants/preview/guidancespecial/hrsa05001.htm 
174 Target Capabilities List 

PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION 

10. FY05 CDC Public Health Preparedness and Response Cooperative Agreement. 2005. 

http://www.bt.cdc.gov/planning/guidance05/index.asp 

11. U.S. Department of Health and Human Services Strategic Plan to Combat Bioterrorism and Other Public Health 

Threats and Emergencies. October 2003. http://www.hhs.gov/emergency/index.shtml#bioterrorism 

12. Ready or Not...Chemical Terrorism Project. Association of Public Health Laboratories (APHL). July 2003. 

www.aphl.org 

13. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program, 

http://mmrs.fema.gov. 
Target Capabilities List 175 

PROTECT MISSION: LABORATORY TESTING 

LABORATORY TESTING

Capability Definition 

The Laboratory Testing capability is the ongoing surveillance, rapid detection, confirmatory testing, data 

reporting, investigative support, and laboratory networking to address potential exposure, or exposure, to 

all-hazards which include chemical, radiological, and biological agents in all matrices including clinical 

specimens, food and environmental samples, (e.g., water, air, soil). Such all-hazard threats include those 

deliberately released with criminal intent, as well as those that may be present as a result of unintentional 

or natural occurrences. 

Outcome 

Potential exposure to disease is identified rapidly by determining exposure and mode of transmission and 

agent; interrupting transmission to contain the spread of the event; and reducing number of cases. 

Confirmed cases are reported immediately to all relevant public health, food regulatory, environmental 

regulatory, and law enforcement agencies. Suspected cases are investigated promptly, reported to 

relevant public health authorities, and accurately confirmed to ensure appropriate preventive or curative 

countermeasures are implemented. An outbreak is defined and characterized; new suspect cases are 

identified and characterized based on case definitions on an ongoing basis; relevant clinical specimens are 

obtained and transported for confirmatory laboratory testing; the source of exposure is tracked; methods 

of transmission identified; and effective mitigation measures are communicated to the public, providers, 

and relevant agencies, as appropriate. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Function (ESF)/Annexes: 

ESF#8: Public Health and Medical Services 

Biological Incident Annex 

Terrorism Incident Law Enforcement and Investigation Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Pro.B1e 1.1.1 Identify, establish and maintain working collaboration with all Laboratory Response Network 

(LRN) Sentinel and LRN Clinical Chemistry laboratories within the jurisdiction 

Pro.B1e 1.1.1.1 Develop and maintain an accurate and current database of contact information and capability for 

all the Laboratory Response Network (LRN) Sentinel and LRN Clinical Chemistry laboratories 

Pro.B1e 1.1.1.2 Provide all the Laboratory Response Network (LRN) Sentinel and LRN Clinical Chemistry 

laboratories with updated LRN Reference laboratory contact information 

Pro.B1e 1.1.3 

Establish and maintain collaborative linkages with other State laboratories, e.g., environmental, 

agriculture, veterinary, and university, as well as the jurisdiction’s National Guard Civil Support 

Team (CST) and other first responders 
176 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Pro.B1e 1.1.4 

Establish and maintain linkages with Federal laboratory networks and member laboratories 

within the jurisdiction, e.g., the Food Emergency Response Network (FERN), National Animal 

Health Laboratory Network (NAHLN), and the EPA 

Pro.B1e 1.1.5 

Establish and maintain a sentinel laboratory advisory committee or equivalent that meets at least 

Every year and includes representatives from clinical microbiology, clinical chemistry, 

veterinary, food, and environmental laboratories in your jurisdiction

Pro.B1e 1.3.3 

Establish and utilize a State and local health alert network that complies with the PHIN 

Functional Area Partner Communication and Alerting for electronic connectivity with all LRN 

Sentinel laboratories 

Pro.B1e 1.3.4 

Establish and maintain connectivity with the State Emergency Operations Center (SEOC) and 

other official components of the State and local emergency response, including the Emergency 

Management Assistance Compact (EMAC) 

Pro.B1e 1.3.5 

Establish and maintain communication linkages with local, State, and Federal (e.g., CDC DEOC 

and LRN) public safety and law enforcement entities, e.g., police, fire, emergency management, 

and the FBI

Pro.B1e 1.5.1 Hire and/or maintain a biosafety officer for each facility 

Pro.B1e 1.5.2 Develop a contingency plan for a breach in biosafety 

Pro.B1e 1.6.4 Provide a ready supply of the reagents required for rapid testing of biological threat agents by 

LRN Reference laboratories 

Pro.B1e 1.6.5 Maintain a ready supply of the reagents and materials, not supplied by CDC, required for rapid 

testing of biological and chemical threat agents at the reference level

Pro.B1e 1.6.6 Maintain an accurate inventory of reagents and supplies in their respective laboratories.

Pro.B1e 1.7.1 Develop and validate, in partnership with LRN Reference and LRN Chemical laboratories, 

standard laboratory methods to test for chemical and biological threat agents 

Pro.B1e 1.7.2 Transfer standardized technology and laboratory methods from the CDC to State and local LRN 

Reference and LRN Chemical laboratories

Pro.B1e 1.7.3 Develop, in collaboration with CDC, e.g., EPA, FDA, USDA, and DOD, additional standardized 

and validated methods for testing for chemical and biological agents in non-clinical samples 

Pro.B1e 1.7.4 

Integrate new advanced biological and chemical rapid identification methods, as they are 

developed and approved by the LRN, into the current laboratory testing algorithm for human, 

environmental, animal, or food specimens

Preparedness Measures Metrics

Laboratory plans and procedures address linkages to Federal lab networks and member labs 

within the jurisdiction (e.g. Food Emergency Response Network, National Animal Health 

Laboratory Network, EPA) 

Yes/No 

Laboratory plans and procedures address collaborative linkages with other state laboratories 

(e.g. environmental, agriculture, veterinary, university). Yes/No 

Laboratory plans and procedures address sharing information with key Federal, State, and 

local public health partners (e.g. FBI, first responders, HazMat teams, LRN Sentinel and 

Chemical labs) 

Yes/No 

Laboratory plans and procedures address dissemination of accurate, timely, accessible 

information to public, media, support agencies Yes/No 
Target Capabilities List 177 

PROTECT MISSION: LABORATORY TESTING 

Laboratory plans and procedures address investigation and follow-up lab support (e.g. 

analytical and investigative assistance to epidemiologist, law enforcement, and 

environmental health). 

Yes/No 

Laboratory plans and procedures address information tracking systems (e.g. database of 

contact information and capability at all LRN labs, database of inventory of reagents and 

supplies at their respective labs). 

Yes/No 

The Public Health Laboratory has or has access to information systems that comply with the 

PHIN Functional Area Connecting Laboratory Systems to send and receive laboratory test 

orders and results 

Yes/No 

LRN reference laboratory has a system to maintain an inventory of reagents and supplies to 

support LRN testing Yes/No 

CDC (BPRP) produces and/or acquires sufficient reagents to maintain LRN reference testing 

of biological threat agents Yes/No 

Percent of Health Resources & Services Administration (HRSA) funded hospitals that have 

PHIN compliant IT systems that are interoperable with their jurisdictional public health 

agency and that transmit clinical and/or hospital utilization data in near real-time to a PHINcompliant early-event detection information systems. (responsibility aligns with Health 

Resources and Services Administration and interface with Interoperable Communications, 

Epidemiology and Medical Surge Capabilities) 

( Reference National Bioterrorism Hospital Preparedness Program FY2005 Continuation 

Guidance Health Resources and Services Administration Announcement number 5-U3R-05-

001) 

100% 

Frequency with which tests are conducted of select LRN Sentinel laboratories laboratory to 

reach a knowledgeable public health laboratory professional at the jurisdictional 

confirmatory LRN Reference and LRN Chemical laboratories 24/7/365 by landline phone 

Every 12 months 

Time in which public health laboratory professionals are reached by landline phone Within 15 minutes 

Percent of LRN Sentinel laboratories within the LRN jurisdiction that successfully 

acknowledge receipt of health alerts. 

Note: Reference PHIN Preparedness Functional Area Partner Communication and Alerting

100% 

Frequency with which acknowledgement of receipt of health alerts that includes at least one 

priority category (i.e., alert, advisory, update, etc.) is tested Every 12 months 

The laboratory has a primary system that ensures delivery of specimens/samples 24/7/365 Yes/No 

The laboratory has a secondary courier (e.g., State patrol helicopter) system that ensures 

rapid delivery in an emergency situation Yes/No 

At least one operational Biosafety Level Three (BSL-3) facility is available within 

jurisdiction for testing for biological agents, or if not immediately possible, BSL-3 practices, 

as outlined in the CDC-NIH publication “Biosafety in Microbiological and Biomedical 

Laboratories, 4th Edition” (BMBL), used (see www.cdc.gov/od/ohs) or formal arrangements 

(i.e., MOU) established with a neighboring jurisdiction to provide this capability. 

Yes/No 

At least one laboratory exists within jurisdiction for testing of chemical agents or formal 

arrangements (i.e., MOU) established with a neighboring jurisdiction to provide this 

capability 

Yes/No 

Laboratory registration, operations, safety, and security are consistent with both the 

minimum requirements set forth in Select Agent Regulation (42 CFR 73) and the USA 

PATRIOT ACT of 2001(P.L. 107-56) and subsequent updates 

Yes/No 

Laboratory plans address developing and maintaining a public health laboratory information 

website Yes/No 
178 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Public health laboratory website includes information about protocol updates for rule-out 

testing Yes/No

Public health laboratory website includes information about Department of Transportation 

(DOT) compliant packaging and shipping Yes/No

Public health laboratory website includes chain-of-custody guidelines Yes/No

Public health laboratory website includes CDC endorsed material on referral of clinical 

human and Veterinary specimens Yes/No

Public health laboratory website includes information about environmental samples Yes/No

Public health laboratory website includes information about suspect bioterrorism (BT) 

isolates Yes/No

Public health laboratory website includes information about bacterial and viral food borne 

pathogens Yes/No 

The LRN reference laboratories maintains a ready supply of the reagents, not supplied by 

CDC, required for rapid testing of biological threat agents at the reference level Yes/No 

Adequate amounts of required test reagents and materials are maintained by and 

immediately available to LRN Reference and LRN Chemical laboratories during an 

emergency event 

Yes/No 

Materials for chemical methods are available through commercial vendors and stocked by 

chemical laboratories for use in an emergency Yes/No 

Laboratory system to receive and triage specimens and samples is in place Yes/No 

Laboratory plans and procedures address compiling an all hazards team to address laboratory 

testing Yes/No 

All-hazards team includes chemical terrorism (CT) laboratory coordinator (chemist or 

medical technologist) Yes/No

All-hazards team includes assistant CT laboratory coordinator Yes/No

All-hazards team includes bioterrorism laboratory coordinator Yes/No

All-hazards team includes biologic sentinel network liaison who is available 24/7/365 to 

advise public health agencies, hospitals, private laboratories, first responders, HazMat teams, 

local, State, and Federal law enforcement, the Army National Guard (WMD-CST), and 

poison control 

Yes/No

All-hazards team is capable of proper triage screening Yes/No 

All-hazards team is capable of collection, packaging, labeling, and shipping of 

biological/environmental sample Yes/No 

All-hazards team is capable of collection, packaging, labeling, and shipping of 

biological/clinical specimen Yes/No 

All-hazards team is capable of collection, packaging, labeling, and shipping of 

biological/food sample Yes/No 

All-hazards team is capable of collection, packaging, labeling, and shipping of 

chemical/environmental samples Yes/No

All-hazards team is capable of collection, packaging, labeling, and shipping of 

chemical/clinical specimen Yes/No

All-hazards team is capable of collection, packaging, labeling, and shipping of 

chemical/food sample Yes/No

All-hazards team is capable of collection, packaging, labeling, and shipping of Yes/No
Target Capabilities List 179 

PROTECT MISSION: LABORATORY TESTING 

radiological/environmental sample 

All-hazards team is capable of collection, packaging, labeling, and shipping of 

radiological/clinical specimen Yes/No

All-hazards team is capable of collection, packaging, labeling, and shipping of 

radiological/food sample Yes/No

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Pro.B1e 2.1.3 Participate in a CDC-approved proficiency testing program to assure laboratory competency 

Pro.B1e 2.1.4 Participate in training provided by other Federal partners for the use of standardized methods to 

detect and identify chemical and biological agents

Pro.B1e 2.1.5 Provide information and training on the use of appropriate safety and security equipment and 

procedures

Pro.B1e 2.1.6 Train all LRN Sentinel laboratories in the use of LRN biological agent rule-out protocols, 

specimen or isolate referral responsibilities and notification algorithms

Pro.B1e 2.1.7 Participate in CDC training to use standardized protocols to detect biological agents

Pro.B1e 2.1.8 Participate in CDC training as required for designated levels of chemical preparedness, e.g., LRN 

Level-1, 2, or 3

Pro.B1e 2.2.5 Coordinate response planning, drills and exercises for the laboratory with all relevant partners 

Preparedness Measures Metric

LRN Reference and LRN Chemical laboratories have internal competency training 

program for LRN methods

Yes/No

Laboratory training includes CDC lab proficiencies, use of appropriate safety and security 

equipment, biological agent rule-out protocols, specimens, or isolate referral 

responsibilities and notification algorithms 

Yes/No 

Frequency with which LRN Reference laboratory offers training to LRN Sentinel 

laboratories 

Every 12 months 

Percent of participating LRN Reference laboratories and Level-1 and Level-2 LRN 

chemical laboratories that pass their proficiency tests according to CDC criteria 

100% 

Percent of LRN Sentinel and LRN Clinical Chemistry laboratories that participate in 

State-developed training programs, i.e., by LRN Reference laboratories (responsibility 

aligns with Health Resources and Services Administration) 

100% 

Percent of participating LRN Level 1, 2, or 3 chemical laboratories that successfully 

complete packaging and shipping exercises 

100% 

Frequency with which tests are conducted of select LRN Sentinel and LRN Clinical 

Chemistry laboratory to reach a knowledgeable public health laboratory professional at 

the jurisdictional confirmatory LRN Reference and LRN Chemical laboratories 24/7/365 

by landline phone 

Every 12 months 

Frequency with which tests are conducted of select LRN sentinel and LRN clinical 

chemistry laboratory to reach a knowledgeable public health laboratory professional at 

Every 12 months 
180 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

jurisdictional confirmatory LRN laboratory 24/7/365 by redundant means not dependent 

on electricity, cellular/landline phone service, internet (e.g., radio/satellite phone) 

Percent of LRN Sentinel laboratories within the LRN jurisdiction that successfully 

acknowledge receipt of health alerts. 

Note: Reference PHIN Preparedness Functional Area Partner Communication and 

Alerting 

100% 

Frequency with which acknowledgement of receipt of health alerts that includes at least 

one priority category (i.e., alert, advisory, update, etc.) is tested 

Every 12 months 

LRN Sentinel and LRN Clinical Chemistry laboratory staff are trained in the use of 

standardized procedures for collecting and shipping clinical specimens. 

Yes/No 

Training includes International Air Transport Association (IATA), and US Department of 

Transportation (DOT) packaging and shipping of infectious agents regulations 

Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Direct Laboratory Testing 

Definition: Direct and coordinate local, State, and Federal public health, food testing, veterinary 

diagnostic, and environmental testing laboratory efforts in response to biological and chemical 

terrorism.

Critical Tasks

Pro.B1e 3.1.6 Coordinate laboratory activities with the Laboratory Response Network (LRN) within the 

jurisdiction 

Pro.B1e 3.1.1 Function as the gatekeeper for the Laboratory Response Network (LRN) within the jurisdiction 

Pro.B1e 3.1.5 Operate laboratory within the Laboratory Response Network (LRN) 

Pro.B1e 3.1.2 Function as Laboratory Response Network (LRN) Sentinel laboratories 

Pro.B1e 3.1.3 Function as Laboratory Response Network (LRN) Chemical laboratories 

Pro.B1e 3.2.2 

Work in close partnership with public health epidemiology and environmental health, and poison 

control to provide timely data to assure implementation of effective prevention, detection, and 

control measures, including treatment 

Performance Measures Metric

Percent of calls/inquiries received by the CDC LRN Coordinating Office for which a 

response is initiated within 2 hours during an emergency 

100% 

Percent of calls/inquiries received by the CDC LRN Coordinating Office that require a 

response for which a response is initiated within 24 hours on a routine basis 

100% 

Time is which public health department and other State and Federal partners are 

notified of a high-level threat credibility assessment of suspicious agent 

Within 2 hours from 

credibility assessment 

Time in which key Federal , State, and local health partners (e.g. CDC, FBI) are 

notified of presumptive identification of potential bioterrorism agent or communication 

that signals a high index of suspicion 

Within 3 hours of 

presumptive identification 
Target Capabilities List 181 

PROTECT MISSION: LABORATORY TESTING 

Activity: Sample and Specimen Management

Definition: Implement LRN established protocols /procedures for specimen collection, transport, 

and testing.

Critical Tasks 

Pro.B1e 4.1 Establish and maintain a jurisdiction-wide transport system to assure timely receipt of samples or 

specimens for laboratory testing 

Pro.B1e 4.2 Perform triage screening on environmental samples per Department of Homeland Security and 

Environmental Protection Agency protocols 

Pro.B1e 4.3 

Communicate requirements for all-hazard specimen or sample collection, packaging, and 

shipping to submitters, e.g., FBI, CST, first responders, HazMat Teams, and LRN Sentinel and 

Clinical Chemistry Laboratories 

Pro.B1e 4.4 Provide consultation to all submitters regarding appropriate collection and shipment of 

specimens or samples for testing 

Pro.B1e 6.3 Provide surge capacity for CDC to measure metabolites (e.g., of nerve agents, in clinical 

specimens) 

Performance Measures Metric 

Time in which designated State LRN-1 Level 1 Chemical Laboratories to accept 

clinical specimens begins analysis 

Within 24 hours from 

receiving the call for 

assistance from CDC 

Time in which laboratory health alert detailing laboratory related information 

(including specimen collection, packaging, and shipping guidelines) is distributed after 

health alert by agency epidemiologist, environmental health, or relevant partner is 

distributed via HAN 

Within 12 hours from 

initial distribution 

Time in which samples are shipped to an LRN reference laboratory with relevant 

confirmatory capabilities 

Within 2 hours from 

presumptive identification 

Time in which LRN reference laboratory (appropriate confirmatory capabilities) 

confirms identification of agent 

Within 48 hours of receipt 

Percent of LRN reference laboratories that provide technical assistance to submitters 

on errors within 3 business days of receipt of mislabeled, mis-packaged, and misshipped packages 

100% 

Activity: Provide Surveillance Support

Definition: Provide support to agencies in chemical, biological, and radiological agent and public 

health disease surveillance by testing and analyzing samples.

Critical Tasks 

Pro.B1e 5.3.1 Acquire timely isolates of selected enteric and invasive biological agents from all LRN Sentinel 

laboratories 

Pro.B1e 5.3.2 Analyze quickly the isolates submitted by LRN Sentinel laboratories using advanced 

technologies to rapidly identify and subtype isolates 

Pro.B1e 5.3.3 Provide reference analysis and identification of unusual or emerging biological agents present in 

communities 
182 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Pro.B1e 5.2 Perform analyses for BioWatch 24/7/365 

Pro.B1e 5.1.1 

Enhance, in coordination with public health epidemiology partners, the capacity to apply 

standardized molecular methods (e.g., DNA sequencing) in real-time to support surveillance and 

outbreak investigations as appropriate 

Performance Measures Metric 

Percent of isolates for which pulse-field gel electrophoresis (PFGE) testing and analysis of data is 

completed within 3 working days of receipt in the laboratory (or within 3 working days of 

organism isolated in pure culture, if lab processes clinical specimen) 

E. coli O157:H7 

Listeria monocytogenes 

(# of isolates that have PFGE patterns analyzed within 3 working days of 

identification/denominator = # of isolates identified in lab) 

Start time: Date and time isolate identified in lab 

Stop time: Date and time PFGE sub-typing pattern analysis is complete 

100% 

Percent of PFGE patterns submitted to the National PulseNet Server (or the PulseNet Database 

Team at CDC) that are designated with an official PulseNet pattern name within 3 working days of 

submission. 

E. coli O157:H7 

Listeria monocytogenes 

# of isolate patterns in the National PulseNet database that are given an official PulseNet pattern 

name within 3 working days of submission/# of isolate patterns submitted to the National PulseNet 

Server/database team 

Start time: Date and time PFGE isolate pattern submitted to National PulseNet Server/database 

team 

Stop time: Date and time official PulseNet name is assigned to the submitted isolate pattern 

100% 

Percent of PFGE patterns and associated data submitted to the National PulseNet Server (or the 

PulseNet Database Team at CDC) within one (1) working day of PFGE pattern analysis. 

E. coli O157:H7 

Listeria monocytogenes 

(numerator = # of patterns submitted to PulseNet within 1 working day) 

(denominator = # of isolates PFGE pattern-analyzed) 

Start time: Date and time PFGE sub-type/pattern analysis complete 

Stop time: Date and time PFGE sub-type/pattern is submitted to PulseNet server/team 

100% 

Activity: Detection Testing and Analysis

Definition: Test and analyze initial chemical, biological, and radiological samples to provide 

presumptive agent identification or diagnosis. 

Critical Tasks 

Pro.B1e 6.2.5 

Evaluate clinical specimens from patients exposed to chemical or radiochemical agents, e.g., 

tests for blood gases, CBC analysis, and enzyme levels (link with Health Resources and Services 

Administration) 

Pro.B1e 6.2.3 Test initial 20-40 clinical specimens to assess human exposure by measuring metabolites of 

chemical agents (e.g., of nerve agents) 
Target Capabilities List 183 

PROTECT MISSION: LABORATORY TESTING 

Pro.B1e 6.2.4 Test environmental samples for toxic industrial chemicals and materials 

Pro.B1e 6.2.6 Identify all emerging infectious agents or possible bioterrorism agents using available LRN 

protocols 

Performance Measures Metric 

Time in which specimen/sample is received at the public health laboratory following 

high-level threat credibility assessment of suspicious agent to 

Within 6 hours from 

identifying a suspicious 

agent 

Time LRN Reference Laboratory makes presumptive identification of agent by rapid 

biological assays 

Within 8 hours from 

sample receipt 

Time in which CDC Chemical laboratory conducts Rapid Toxic Screen on initial 20-40 

specimens analyzed for 150 chemical agents (including nerve agents) 

Within 36 hours from 

receipt of specimens 

(surge) 

Activity: Confirm Testing

Definition: Test and analyze chemical, biological, and radiological samples to provide 

confirmation agent identification or diagnosis. 

Critical Tasks 

Pro.B1e 7.2.3 Confirm results using CDC clinical chemical detection methods 

Pro.B1e 7.1.1 Use standardized, Laboratory Response Network (LRN) protocols to detect emerging infectious 

agents or possible bioterrorism agents in clinical specimens, food, or environmental samples 

Pro.B1e 7.4 Verify reactive BioWatch samples 

Pro.B1e 7.4.1 Verify reactive samples from the Biohazard Detection Systems (BDS) located in facilities of the 

U.S. Postal Service (USPS) 

Performance Measures Metric 

Time in which sample is shipped to an LRN Reference Laboratory with relevant 

confirmatory capabilities from the presumptive notification Within 2 hours 

Time from presumptive identification to confirmatory identification by LRN reference 

laboratory Within 48 hours 

Activity: Support Public Health Epidemiological Investigations 

Definition: Provide follow-up analytical and investigative support to epidemiologists, law 

enforcement, and environmental health and/or poison control efforts to test additional specimens, 

determine cause and origin of an event, definitively characterize an agent, and genotype disease 

strains through LRN member labs.

Critical Tasks 

Pro.B1e 3.2.2 

Work in close partnership with public health epidemiology and environmental health, and poison 

control to provide timely data to assure implementation of effective prevention, detection, and 

control measures, including treatment 
184 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Pro.B1e 8.3.2 Collaborate with law enforcement and perform testing of evidentiary samples (link to law 

enforcement) 

Pro.B1e 8.3.3 

Test additional clinical specimens by CDC or another qualified select Laboratory Response 

Network (LRN) Reference lab for retrospective assessment of chemical exposure following an 

event 

Pro.B1e 8.3.4 Coordinate testing of environmental samples for assessment and remediation 

Pro.B1e 8.6 

Isolate emerging infectious or biological threat agents tested by CDC and qualified select 

Laboratory Response Network (LRN) reference laboratories using Clinical Laboratory 

Improvement Act (CLIA) approved methods to determine the agent’s susceptibility to 

antimicrobial drugs used for prevention and control 

Pro.B1e 8.5 Use Clinical Laboratory Improvement Act (CLIA) approved methods for antimicrobial 

susceptibility testing 

Pro.B1e 8.7 Determine whether an emerging infectious disease agent or a biological threat agent consists of 

single or multiple strains 

Activity: Report Results 

Definition: Report surveillance results to public health epidemiology officials and other decisionmakers.

Critical Tasks 

Pro.B1e 3.2.3 Report surveillance results suggestive of an outbreak immediately to public health epidemiology 

Pro.B1e 3.2.4 Report results of CDC chemical or biological testing to submitting LRN Reference and Chemical 

laboratories through the secure LRN website 

Pro.B1e 3.2.6 Report confirmed laboratory results to all submitters in a timely manner using PHIN-compliant 

Laboratory Information Management Systems (LIMS) 

Pro.B1e 6.4 Contact the nearest LRN Reference laboratory when unable to identify or rule-out emerging 

infectious agents or possible bioterrorism agents 

Pro.B1e 3.2.5 Notify appropriate public health, public safety, and law enforcement officials immediately (24/7) 

of presumptive and confirmed laboratory results of a chemical and biological threat agent 

Performance Measures Metric

Time in which appropriate Federal, State, and local officials, also including the 

specimen/sample submitter, are notified of identification (positive or negative)

Within 1 hour from 

confirmatory identification

Laboratory Response Network (LRN) reference laboratory has a Public Health 

Information Network (PHIN)-compliant Laboratory Information Management System 

(LIMS) 

Yes/No 
Target Capabilities List 185 

PROTECT MISSION: LABORATORY TESTING 

Linked Capabilities 

Linked Capability Relationship 

Emergency Public 

Information and Warning 

Laboratory Testing provides information for release to Emergency Public Information 

and Warning. 

Emergency Operations 

Center Management 

Laboratory Testing provides situation reports to Emergency Operations Center 

Management. Emergency Operations Center Management provides situation reports 

and resources to Laboratory Testing. 

WMD and Hazardous 

Materials Response and 

Decontamination 

WMD and Hazardous Materials Response and Decontamination provides samples for 

testing to Laboratory Testing. 

Epidemiological 

Surveillance and 

Investigation 

Laboratory Testing provides lab results to Epidemiological Surveillance and 

Investigation. 

Food and Agriculture 

Safety and Defense 

Laboratory Testing provides lab results to Food and Agriculture Safety and Defense. 
186 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Direct Public 

Health 

Laboratory 

Testing

End: Return to pre-event 

operation levels

Conduct Sample 

and Specimen 

Management

Planning

Logistics

Comm.

Coordinate

Supervise

Safety

Resource 

Requests

Provide 

Surveillance 

Support

Report Results

Emergency Public 

Information and 

Warning

Report anomaly detection

No

Laboratory Testing Capability

Capability Activity Process Flow

Relationship Linked 

Capabilities

Routine 

monitoring data 

suggests unusual 

event?

Confirm Testing

Conduct 

Detection Testing 

and Analysis

Emergency 

Operations 

Center 

Management

Provide sitreps

WMD/Hazardous 

Materials 

Response and 

Decontamination

Samples provided Yes

Isolates and 

patterns 

identified

Presumptive 

diagnosis/agent 

identification provided

Diagnosis/agent 

identification verified

Provide verified diagnosis/agent 

identification

Epidemiological 

Surveillance and 

Investigation 

Food and 

Agriculture 

Safety and 

Defense

Provide lab results

Provide presumptive diagnosis/agent identification

Provide information 

for release

Resources provided

Support Public 

Health 

Epidemiological 

Investigations

Analytical and investigative 

support provided

Results provided
Target Capabilities List 187 

PROTECT MISSION: LABORATORY TESTING 

Resource Element Description 

Resource Elements Components and Description

Laboratory Response Network 

(LRN) National Level 

Laboratories 

Laboratories in the Laboratory Response Network (LRN) that have unique 

resources to handle highly infectious agents and the ability to identify specific 

agent strains. These include labs at CDC, the US Department of Agriculture, 

the Food and Drug Administration (FDA), and other facilities run by Federal 

agencies. National Laboratory at National Center for Environmental Health 

capable of 24/7 coverage 

Centers for Disease Control 

(CDC) Chemical Laboratory 

LRN Chemical Laboratory capable of advanced testing located in the National 

Center for Environmental Health’s (NCEH’s) Division of Laboratory Sciences 

State Public Health Laboratory State laboratory that performs testing and other laboratory services on behalf of 

the entire jurisdiction, scanning the horizon for anything suspicious 

LRN National Level Biological 

Laboratory 

LRN National Level Laboratory at Bioterrorism Preparedness and Response 

Program (RRAT Lab) capable of 24/7 coverage. There are currently 3 

National laboratories (CDC, DOD). 

LRN Reference Laboratories Laboratories that can perform rapid tests to detect and confirm the presence of 

a threat agent. These labs ensure a timely local response in the event of a 

terrorist incident or other public health emergencies. There are currently 152 

Reference laboratories for biological agents across the national (105 public 

health, 15 military, 9 veterinary, 12 food, 8 international, 5 other Federal 

laboratories). 

LRN Chemistry Laboratories – 

Level 1 

Public health laboratories that comprise the chemical component of the LRN; 

Level 1 laboratory personnel are trained to detect exposure to an expanded 

number of chemicals in human blood or urine, including all Level 2 laboratory 

analyses, plus analyses for mustard agents, nerve agents, and other toxic 

chemicals 

LRN Chemistry Laboratories – 

Level 2 

Public health laboratories that comprise the chemical component of the LRN; 

they are designated as Level 3, 2, or 1, with increasing technical expertise. 

Level 2 laboratory personnel are trained to detect exposure to a limited number 

of toxic chemical agents in human blood or urine; 

LRN Chemistry Laboratories – 

Level 3 

Public health laboratories that comprise the chemical component of the LRN; 

Level 3 laboratories work with hospitals in clinical specimen 

collection/storage/shipment and also work to help develop a coordinated 

response plan for their State and/or geographical area. 

LRN Sentinel Clinical Labs Laboratories that perform rule-out or refer testing to LRN Reference Level 

Laboratory. There are about 4,500 laboratories nationally; majority are inhospital laboratories 

CDC Coordinating Office for 

LRN 

Existing Personnel: 1 LRN Coordinator, 1 Program Manager, 1 Help Desk 

Support, 1 Technical Officer, 1 Communication Officer (technical writing, 

interface with CDC Office of Emergency Communication) 

Surge: 1 LRN Coordinator, 3 Program Managers, 4 Help Desk Support on 12-

hour shifts, 2 Technical Officers, 1 Communication Officer (technical writing, 

interface with CDC Office of Emergency Communication) 

CDC Scientific Resources 

Program/Biologics Branch 

Existing Personnel: 6 – production, 2 – shipping, 6 inventory management 

Surge Personnel: 12 – production, 4 – shipping, 12 inventory management 
188 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Resource Elements Components and Description

CDC SME Existing personnel : < 1 per agent; 

Surge personnel: 2 per agent 

CDC Bioterrorism Rapid 

Response and Advanced 

Technology Laboratory 

Existing personnel: 9 CDC laboratorians for short-term biological response 

Surge Personnel: 15 laboratorians 

LRN Partner Organizations Includes APHL, DOD, ASM, FBI, EPA, FDA, USDA/APHIS, DHS 

Reagents A rapidly deployable repository of LRN reagents sufficient to meet current 

needs and potential emergency surge needs Reagents for biological agent 

testing and materials for chemical methods 

Laboratory equipment Polymerase chain reaction (PCR) = Smart Cycler, Light Cycler, ABI 7500, or 

ABI 7000 

Time-resolved fluorescence (TRF) = Victor 

LRN and biosafety training TRF Training – 2 day course provided by CDC (Atlanta); Conventional 

Microbiology train-the-trainer one week course provided by CDC (location 

varies); PCR Training 

LRN lab credentials Select agent registration and staff security risk assessment approval 

USDA/APHIS Regulations 

CLIA (Clinical Laboratory Inspection Standards) 

Accreditation from AAVLD (American Association Veterinary Laboratorian 

Diagnosticians) 

Courier system for sample 

transport 

System or contract to ensure secure transport of samples 

Laboratory equipment and 

supplies 

Sufficient instrumentation and adequate supplies 

CDC Directors Emergency 

Operations Center (DEOC) 

State and Local EOC 

Planning Assumptions 

 Plans to augment the capacity of public health laboratories should include having or having access to 

information systems that electronically send and receive test orders and results in compliance with 

PHIN Functional Area for Connecting Laboratory Systems

Scenario-Specific 

Laboratory Testing (Chemical Nerve Agent): 

 Assume 10,000 worried well; assume that 2,500 worried well population will require testing. 

Scenario does not state exact number of worried well. Difficult to determine exactly what proportion 

of the downwind population would fall in this category but assumed 80 percent for purposes of this 

effort. Of these, assume 25 percent will require/request testing for exposure to nerve agents. 

 40 analyses per day per instrument. 
Target Capabilities List 189 

PROTECT MISSION: LABORATORY TESTING 

 13 instruments within Centers for Disease Control (CDC) and seven instruments within States can 

perform analysis of nerve agent metabolites. 

 CDC stockpiles enough standards/materials to analyze 5,000 samples. Each of seven States 

stockpiles enough standards/materials to analyze 500 samples. Total for CDC and States are 8,500 

samples. Conducting additional analyses requires additional materials/standards. 

 Depending on how urgently results are needed, along with involving the States, additional 

instruments in CDC’s laboratory can be ramped up quickly. 

 Currently, analytic resources are located at CDC (Atlanta) and 7 State health departments (California, 

Florida, Michigan, Minnesota, New Mexico, New York and Virginia). Given the nature of the need 

and this resource, a centralized/regionalized approach is acceptable. 

Laboratory Testing (Biological) 

 Estimates address needs for communities to respond to this emergency once identified. Estimate does 

not include needs for baseline resources needed for timely initial detection. 

 B. anthracis spores added directly to product without aerosolization. 

 Ground beef was sent San Diego, Seattle, and Phoenix. 

 Orange juice was sent to Albuquerque, Las Vegas and Palm Springs. 

 Patient presentations involved gastrointestinal, oropharyngeal and cutaneous forms of anthrax. 

 Laboratory confirmation by the Laboratory Response Network (LRN) occurred between days 2 and 5 

after index case presentation. 

 Production facilities and distribution system mechanisms will be contaminated until formally 

decontaminated. 

 Cases will continue sporadically following public health intervention due to consumers and retailers 

failing to discard/return/destroy contaminated product. 

 No simultaneous disasters are occurring during the same time. 

 Assume multi-agency coordination is adequately being addressed at Federal (CDC, Food and Drug 

Administration [FDA], USDA/APHIS [United States Department of Agriculture/Animal and Plan 

Health Inspection Service, FBI), State, and local levels and the agencies are coordinating as expected. 

Overall assumptions for LRN testing of specimens/samples: 1. All Reference LRN laboratories in the 

affected jurisdictions have the testing capability for the agent. 2. For planning purposes, throughput 

for four types of equipment available in the LRN Reference laboratory was provided. 3. There are a 

sufficient number of trained personnel to operate the equipment. 4. There is sufficient availability of 

reagents. 

 Factors that could affect the number of specimens/samples calculated assuming laboratorians perform 

three runs in each shift include time involved to set up the assay, machine capacity, personnel shift 

duration, condition specimen/sample arrived in, physical working space, individual pace of 

laboratorian. 

 For LRN Sentinel laboratories, the first 1,000 patients are distributed evenly among the six affected 

cities resulting in an even distribution of laboratory rule-out tests (approximately 167 per city), which 

would result in approximately 16 tests per Emergency Room. The burden on the LRN Sentinel 

laboratories for foodborne anthrax is inconsequential. 

 Case definition by epidemiologists will be created within the first 10 days resulting in no further ruleout testing at the LRN Sentinel laboratories following the first 1,000 patients. 

 Assume a concurrent Law Enforcement Investigation. 
190 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource 

Element 

Estimated Capacity Scenario 

Requirement Values 

Quantity of 

Resources Needed 

Centers for Disease 

Control (CDC) 

Chemical 

Laboratory 

Days 1-5: 80 samples/day 

using 2 instruments (1 

instrument can process 40 

samples/day) 

Days 6-10: 320 samples/day 

using an additional 6 

instruments (8 instruments 

total, so 8*40=320) 

520 samples/day using all 

instruments available (13 

instruments total, so 

13*40=520) 

Testing for 350 injured 

people (assume testing 2 

samples per person) = 700 

2500 tests performed for 

worried well 

Total = 3200 samples 

CDC stockpiles enough 

standards/materials to 

analyze 5,000 samples. 

1 resource organization 

(either CDC alone or CDC 

and affiliated State chemical 

laboratories). 

Based on urgency: 

approximately 4 weeks if 

only CDC is involved. With 

involvement of State public 

health laboratories, priority 

analysis of the first 350 

samples (one sample from 

each of the injured people) 

could be completed in a 

matter of days 

State Public Health 

Laboratories 

5 States are currently 

capable to perform nerve 

agent analysis. 

Each laboratory can analyze 

40 samples/day. 

= 200 samples/day capacity 

Total = 3200 samples Depends on how quickly 

analyses need to be 

completed (See above) 

LRN National Level 

Biological 

Laboratory 

CDC would accept 

specimens/samples for 

susceptibility testing and 

genotyping. 

1 CDC laboratory 

LRN Reference 

Laboratories 

LRN reference laboratories 

in the affected cities would 

handle test volume in that 

area; assume a 12-hour shift 

and a 30-day time period 

For planning purposes, 

assume 8235 specimens 

Each state at a minimum 

should have access to a 

reference laboratory. 

If Victor equipment = 14 

pieces of equipment needed 

If ABI 7000 = 3 machines 

needed 

If Light Cycler = 11 

machines needed 

If Smart Cycler = 23 

instruments needed 

LRN Chemistry 

Laboratories – Level 

1 

 

LRN Chemistry 

Laboratories – Level 

2 

 
Target Capabilities List 191 

PROTECT MISSION: LABORATORY TESTING 

Resource 

Element 

Estimated Capacity Scenario 

Requirement Values 

Quantity of 

Resources Needed 

LRN Sentinel 

Clinical 

Laboratories 

Existing Sentinel lab 

personnel will support the 

required testing 

 

CDC Coordinating 

Office for LRN 

 

CDC Scientific 

Resources 

Program/Biologics 

Branch 

CDC SME 

CDC Bioterrorism 

Rapid Response and 

Advanced 

Technology 

Laboratory 

 

LRN Partner 

Organizations 

All other organization 

involvement is scenario 

specific 

1 APHL Gatekeeper, 1 

DOD Gatekeeper, and 1 

FDA Gatekeeper

Reagents (CDC) (Food borne/Plague) -- One 

specimen per suspected case 

will be sent to the LRN for 

testing; additional 15% of 

tests will be conducted for 

quality control; polymerase 

chain reaction (PCR) kits 

can complete 500 tests per 

kit using smart cycler or 

light cycler; PCR kits can 

complete 1,000 tests per kit 

using ABI 7000 equipment; 

TRF kits can complete 60 

tests per kit using Victor 

equipment 

(Aerosolized Anthrax) 

Cannot determine lab 

requirements because 

scenario involves 

undetermined 

environmental exposure 

which will require extensive 

sampling for source 

identification and 

decontamination efforts 

(Foodborne) 

Approximately 7000 

suspected cases will result 

in 7000 specimens and 1235 

controls for a total of 

approximately 8235 tests; 

does not include food 

samples that would also be 

tested at LRN laboratory in 

response to this event 

(Plague) Dependent on Epi 

calculations, not yet 

complete 

(Aerosolized Anthrax) In 

Anthrax event of 2001, 

125,000 environmental 

samples for less than 10 

victims 

(Pandemic Flu) Cannot 

determine because assays 

under development 

(Foodborne) Assuming all 

tests are conducted at one 

LRN, the lab would need 16 

PCR kits if at same LRN 

using smart cycler or light 

cycler equipment; 9 PCR 

kits if at same LRN using 

ABI7000 equipment; 138 

TRF kits if at same LRN 

using TRF equipment; does 

not include reagents needed 

for food samples that would 

also be tested at LRN 

laboratory in response to 

this event 

(Plague) Dependent on Epi 

calculations, not yet 

complete 
192 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

Approaches for Large-Scale Events 

Pandemic Flu – For all teams, the work force will be diminished by one-third. The need for 

epidemiologic investigation will be far reduced relative to surveillance needs. Resource needs for 

pandemic flu are orders of magnitude greater. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

CDC Chemical 

Laboratory 

Federal 

Resource 

Organization 

1 Nationally Federal 

(HHS/CDC) 

Provide 

Surveillance 

Support 

Detection and 

Analysis 

Confirmation 

Testing 

Investigation and 

Follow-up 

Laboratory Support 

LRN National 

Level Biological 

Laboratory 

Federal 

Resource 

Organization 

1 Nationally Federal 

(HHS/CDC) 

Provide 

Surveillance 

Support 

Detection and 

Analysis 

Confirmation 

Testing 

Investigation and 

Follow-up 

Laboratory Support 

LRN Reference 

Laboratories 

Non-NIMS 

Resource 

Organization 

1 Minimum per State 

(152 Nationally) 

State/Federal Provide 

Surveillance 

Support 

Detection and 

Analysis 

LRN Chemistry 

Laboratories – 

Level 1 

Non-NIMS 

Resource 

Organization 

10 Nationally Federal Provide 

Surveillance 

Support 

Detection and 

Analysis

LRN Chemistry 

Laboratories – 

Level 2 

Non-NIMS 

Resource 

Organization 

36 Nationally State/Local Provide 

Surveillance 

Support 

Detection and 

Analysis
Target Capabilities List 193 

PROTECT MISSION: LABORATORY TESTING 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

LRN Sentinel 

Clinical 

Laboratories 

Non-NIMS 

Resource 

Organization 

4,000 Nationally State/Local Sample and 

Specimen 

Management 

Reagents Equipment As needed Per laboratory Federal/State/ 

Local 

Sample and 

Specimen 

Provide 

Surveillance 

Support 

Detection and 

Analysis 

Confirmation 

Testing 

Investigation and 

Follow-up 

Laboratory Support 

Courier system for 

sample transport 

Non-NIMS 

Resource 

Organization 

1 Per State State Sample and 

Specimen 

Management 

Laboratory 

Equipment and 

Supplies 

Equipment As needed Per laboratory Federal/State/ 

Local 

Sample and 

Specimen 

Provide 

Surveillance 

Support 

Detection and 

Analysis 

Confirmation 

Testing 

Investigation and 

Follow-up 

Laboratory Support 

CDC Director’s 

Emergency 

Operations Center 

(DEOC) 

Non-NIMS 

Resource 

Organization 

1 Nationally Federal 

(HHS/CDC) 

Direct Laboratory 

Testing 

State and Local 

EOC 

Resource 

Organization 

1 Per State and/or 

affected local 

jurisdiction 

State/Local Direct Laboratory 

Testing 

References 

1. Homeland Security Presidential Directive/HSPD-8, “National Preparedness”. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html

2. National Response Plan (NRP) Department of Homeland Security. December 2004. 
194 Target Capabilities List 

PROTECT MISSION: LABORATORY TESTING 

3. National Incident Management System (NIMS). Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf

4. Bravata, D, McDonald, K, Owens, D et al. Bioterrorism Preparedness and Response: Use of Information 

Technologies and Decision Support Systems. Evidence Report/Technology Assessment No 59, HRQ 

Publications No. 02-E028. Agency for Healthcare Research and Quality. June 2002. 

http://www.ahrq.gov/clinic/epcsums/bioitsum.pdf

5. Syndrome and Outbreak Detection Using Chief-Complaint Data: Experience of the Real-Time Outbreak and 

Disease Surveillance Project. Morbidity and Mortality Weekly Report. September 2004. 

http://www.cdc.gov/mmwr/preview/mmwrhtml/su5301a7.html

6. Epidemic Intelligence Service. Center for Disease Control. 2004. http://www.cdc.gov/eis 

7. State Public Health Preparedness and Response Capacity Inventory; Version 1.1. Centers for Disease Control 

and Prevention. December 2002. 

http://www.phppo.cdc.gov/od/inventory/docs/State%20Inventory%20version%201_1_FINAL.pdf

8. Bioterrorism and Public Health Emergency Preparedness and Response: A National Collaborative Training 

Plan. Centers for Disease Control and Prevention. February 2002. 

http://www.phppo.cdc.gov/owpp/docs/library/2002/BioTerrorism%20National%20Training%20Plan

%20Exec%20Sum.pdf 

9. National Bioterrorism Hospital Preparedness Program, Continuation Guidance. Department of Health and 

Human Services, Health Resources and Services Administration. 2005. 

http://www.hrsa.gov/grants/preview/guidancespecial/hrsa05001.htm 

10. FY05 CDC Public Health Preparedness and Response Cooperative Agreement. 2005. 

http://www.bt.cdc.gov/planning/guidance05/index.asp 

11. U.S. Department of Health and Human Services Strategic Plan to Combat Bioterrorism and Other Public Health 

Threats and Emergencies. October 2003. http://www.hhs.gov/emergency/index.shtml#bioterrorism

12. Ready or Not...Chemical Terrorism Project. Association of Public Health Laboratories (APHL). July 2003. 

www.aphl.org

13. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program, 

http://mmrs.fema.gov
Target Capabilities List 195 

Respond Mission Area 

Target Capabilities 
196 Target Capabilities List 

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Target Capabilities List 197 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

ON-SITE INCIDENT MANAGEMENT

Capability Definition 

Onsite Incident Management is the capability to effectively direct and control incident activities by using 

the Incident Command System (ICS) consistent with the National Incident Management System (NIMS). 

Outcome 

The event is managed safely, effectively and efficiently through the common framework of the Incident 

Command System. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

All Emergency Support Functions (ESFs) are coordination (resource providing) functions, thus ESFs are 

not involved in on-scene command. The ESFs work through coordination centers to provide the incident 

management organization with the resources it needs. Command is generally a local/county or State 

responsibility. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B1a 1.1.2 Develop NIMS-compliant plans and standard operating procedures (SOPs) for emergency 

response operations within the jurisdiction 

Res.B1a 1.1.3 Develop jurisdiction emergency management plans and SOPs that are compatible and integrate 

support for unified command during operations 

Res.B1a 1.2.1 Pre-identify resources available to supplement command and control capabilities 

Res.B1a 1.1.1 Develop processes to order, track, and assign incident resources 

Res.B1a 1.1.2 Develop systems for tracking on-site incident resources and personnel 

Preparedness Measures Metrics

Emergency management plans and SOPs include a formal process for activating onsite 

incident management for large and complex events 

Yes/No 

Emergency management plans and SOPs include are based on a formal assessment of 

risks and vulnerabilities 

Yes/No 

Emergency management plans and SOPs address establishing incident command (e.g., IC 

posts, staging areas, command and general staff) 

Yes/No 

Emergency management plans and SOPs address the process for developing an incident 

action plan (e.g. to establish priorities, procedures, actions to meet incident objectives) 

Yes/No 

Emergency management plans and SOPs address command management (e.g., 

transitioning from Incident Command to Unified Command, interface with agency 

administrators like municipal executives) 

Yes/No 
198 Target Capabilities List 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Emergency management plans and SOPs address communication requirements (e.g., 

maintaining communications with responding units, dispatching centers, EOC) 

Yes/No 

Emergency management plans and SOPs address demobilization of onsite incident 

management (e.g. transition from IC to recovery management, incident resources are 

returned to normal service) 

Yes/No 

Incident Command Post is equipped with processes and/or technologies to maintain 

accountability of deployed resources and personnel 

Yes/No 

Incident Command Post is equipped with ability to display real-time video feed of 

incident site (large cities only) 

Yes/No 

Standard Operating Procedure (SOP) is in place to provide Incident Commander with 

observation trips for aerial view or satellite imaging of incident (large cities only) 

Yes/No 

Plans and SOPs are NIMS-compliant and support multi-agency response operations Yes/No 

Electronic personnel tracking system is in place with ability to transmit personnel 

information to Department Operations Center (large cities only) 

Yes/No 

Command Post is equipped with ability to receive information from Command and 

General Staff and participating agencies and transmit IAPs and other documentation 

Yes/No 

A records management system is in place (or is accessible) to order, track, and assign 

incident resources and to identify personnel who need training 

Yes/No 

Emergency management plans and procedures include processes for ensuring the safety, 

security, structural integrity, and self-sufficiency of facilities used for onsite incident 

management facilities 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B1a 2.1.1 Train personnel in accordance with NIMS typing 

Res.B1a 2.2.1 Exercise personnel in accordance with NIMS typing 

Res.B1a 2.1.3 Arrange for command and elected officials to attend NIMS and other applicable training 

Res.B1a 2.1.2 Develop a records management system to identify appropriate personnel who lack Incident 

Command System (ICS) training, and provide automated notification of training opportunities 

Preparedness Measures Metric

Percent of capability staff and elected officials trained and exercised on their roles and 

responsibilities for implementing National Incident Management System (NIMS) during 

an incident 

100% 

Percent of command staff (police, fire, EMS, public health) with training on how ICS will 

be applied locally 

90% 

Percent of personnel trained and exercised on incident command and management 

protocols and procedures in compliance with NIMS 

100% 

Personnel have had experience (e.g.,. through exercises) in activating and implementing 

onsite incident command operations 

Yes/No 
Target Capabilities List 199 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Performance Tasks and Measures/Metrics 

Activity: Direct On-Site Incident Management 

Definition: In response to indication of an incident, implement management, planning, and 

coordination of on-site incident 

Critical Tasks

Res.B1a 3.3.6.1 Establish and maintain communications with EOC, dispatch center, and responding units 

Res.B1a 3.3.6.2 Direct and coordinate with arriving local, tribal, regional, State, and Federal first responders 

Res.B1a 3.3.4 Monitor/measure performance of assigned resources and request additional resources as needed 

Performance Measures Metric

Time in which additional resources are requested following initial scene 

assessment 

Within 5 minutes from 

completion of assessment 

Frequency with which resources are tracked and managed from arrival onscene or at staging area until release Continuous 

Time in which communication is established with appropriate local, State, and 

Federal response entities 

Within 30 minutes from arrival 

Activity: Implement On-Site Incident Management 

Definition: In response to an incident, arrive on scene and provide initial scene report while 

beginning response operations; carry out management, planning, and coordination of on-site 

incident 

Critical Tasks

Res.B1a 4.1.1 Conduct initial assessment (size-up) (first arriving units) 

Res.B1a 4.1.2 Determine initial incident site perimeter (first arriving unit) 

Res.B1a 4.2 Initiate and implement the Incident Command System (ICS) 

Res.B1a 4.2.5 Transfer command between oncoming and outgoing Incident Commander as appropriate 

Res.B1a 4.2.4 Request additional resources as necessary for operations and on-site incident management 

Performance Measures Metric

Frequency with which resources are tracked and managed from arrival onscene or at staging area until release Continuous 

Frequency with which communication is established with appropriate local, 

tribal, regional, State, and Federal response entities 

Continuous 

Time in which initial incident conditions are reported to responding units Within 2 minutes from arrival of 

first unit on scene 
200 Target Capabilities List 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Activity: Establish Full On-Site Incident Command 

Definition: Establish staff and facilities necessary to conduct on-site incident command

Critical Tasks

Res.B1a 5.1 Establish Incident Command (IC) 

Res.B1a 5.1.2 Establish the command structure to manage the incident and meet objectives 

Res.B1a 5.1.3 Establish branches, groups, and divisions needed to manage the incident and meet incident 

objectives, strategies, and tactics 

Res.B1a 5.1.1 Establish an incident command post (ICP), incident bases, camps, staging areas, helispot or 

helibase, and other facilities as required 

Res.B1a 4.2.1 Establish communications with emergency operations center multi-agency coordinating center 

(EOC/MACC) 

Res.B1a 4.2.1.1 Maintain communications with emergency operations center multi-agency coordinating center 

(EOC/MACC) 

Res.B1a 4.2.2 Coordinate operations with specialized emergency response teams (e.g. SWAT/tactical, bomb 

squad/explosives, HAZMAT, Land-based Search and Rescue) 

Res.B1a 5.3.2 

Transition from incident command to unified command for incidents involving multiple 

jurisdictions, a single jurisdiction with multi-agency involvement, or multiple jurisdictions with 

multi-agency involvement 

Res.B1a 5.2 Implement processes to order, track, and assign incident resources 

Performance Measures Metric

Time in which on-site incident command is established Within 5 minutes from arrival 

of the first unit on scene 

Time in which the Incident Commander designates command and general staff, 

dependent upon complexity and scope of incident 

Within 30 minutes from 

establishment of command 

Command is successfully transferred to incident command organization able to 

manage the level of complexity and achieve the incident objectives 

Yes/No 

Activity: Conduct Resource Management 

Definition: Implement policies and procedures to ensure the provision and tracking of all 

necessary resources

Critical Tasks

Res.B1a 5.2 Implement processes to order, track, assign and release incident resources 

Res.B1a 3.3.4 Monitor/measure performance of assigned resources and request additional resources as needed 

Res.B1a 5.2.2 Request mutual aid through the EOC and Multi-Agency Coordination (MAC) Group ordering 

process 

Res.B1a 4.2.3 Direct and coordinate with arriving local, tribal, regional, State, and Federal first responders 

Performance Measures Metric 

Percent of resources tracked throughout incident 100% 
Target Capabilities List 201 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Activity: Develop Incident Action Plan (IAP) 

Definition: Develop all necessary components of the IAP and obtain approval

Critical Tasks

Res.B1a 6.1 Establish incident objectives, priorities, and operational periods 

Res.B1a 6.2 Develop the incident action plan (IAP) to establish priorities, procedures, and actions to be 

accomplished to meet the incident objectives 

Res.B1a 6.2.1.1 Obtain IC/UC approval of IAP 

Res.B1a 6.1.1 Establish operational period, not to exceed 24 hours 

Performance Measures Metric

Initial incident priorities and objectives are effectively communicated Yes/No 

Time in which Incident Action Plan (IAP) is developed and approved Within 12 hours from designation of 

command and general staff 

Incident Action Plan (IAP) incorporates Incident Command System (ICS) 

management structures in accordance with the National Incident 

Management System (NIMS) 

Yes/No 

IAP clearly states measurable incident objectives and communicates 

strategies and tactics required to fulfill the incident objectives throughout the 

entire operational period 

Yes/No 

Activity: Execute Plan 

Definition: For each operational period, distribute Incident Action Plan (IAP) to response 

organizations for their assigned operations. The IAP is implemented to achieve the desired 

incident objectives

Critical Tasks

Res.B1a 7.1.1 Disseminate IAP to other response organization through operational briefing 

Res.B1a 7.3 Direct efforts to meet incident objectives in accordance with current IAP 

Res.B1a 7.5.1 Review progress towards meeting incident objectives 

Res.B1a 7.3.2 Direct efforts to achieve personnel accountability 

Res.B1a 7.3.3 Develop mechanisms for controlling incident 

Res.B1a 7.3.5 Consider potentially impacted areas 

Res.B1a 7.3.4 Update IAP based on review of resource requirements 

Res.B1a 7.5.1 Evaluate, revise and prioritize tactics to meet incident developments 

Performance Measures Metric

Time in which IAP is shared with other agencies and organizations at each 

operations briefing 

Within 30 minutes from IAP approval 
202 Target Capabilities List 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Formal operational briefings are conducted at the start of each operational 

period 

Yes/No 

Incident objectives are accomplished through strategic and tactical actions Yes/No 

Potentially impacted areas are considered Yes/No 

IAP is re-assessed, revised, distributed, and briefed at least at the start of 

each new operational period 

Yes/No 

All on-site management activities are coordinated through the Incident 

Command System (ICS) 

Yes/No 

Activity: Demobilize On-Site Incident Management 

Definition: Upon completion of the incident, implement demobilization plan and/or transition to 

recovery operations

Critical Tasks

Res.B1a 8.1 Implement demobilization plan 

Res.B1a 8.3 Transition incident command to recovery management 

Res.B1a 8.2 Monitor demobilization/transition process 

Performance Measures Metric

Demobilization is implemented in accordance with demobilization plan Yes/No 

Effective transition is made from the on-site Incident Commander to recovery manager Yes/No 

Incident resources are returned to normal service when no longer needed Yes/No 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations Center 

Management 

On-Site Incident Management requests resources from the EOC and provides 

regular situation reports on incident response operations. 

Critical Resource Logistics and 

Distribution 

On-Site Incident Management receives resource requests and coordinates 

resource allocation. 

Fire Incident Response Support On-Site Incident Management receives resource requests and incident updates. 

Emergency Public Safety and 

Security Response 

On-Site Incident Management requests public safety resources and coordinates 

resource allocation. 

Responder Safety and Health On-Site Incident Management provides resources and processes resource 

requests. 

Explosive Device Response 

Operations 

On-Site Incident Management provides resources and processes resource 

requests specific to EDRO 

Fatality Management On-Site Incident Management processes resource requests and coordinates 

fatality management with the appropriate agencies/organizations. 
Target Capabilities List 203 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Linked Capability Relationship 

Search and Rescue (Land-Based) On-Site Incident Management coordinates with Search and Rescue (LandBased) to determine resource needs and identify the scope of the incident. 

WMD and Hazardous Materials 

Response and Decontamination 

On-Site Incident Management provides resources and requests technical 

assistance on CBRNE incidents. 

Mass Care (Sheltering, Feeding, 

and Related Services) 

On-Site Incident Management processes resource requests and provides 

assistance to shelter impacted individuals. 

Epidemiological Surveillance and 

Investigation 

On-Site Incident Management coordinates with public health when the incident 

is expected to have adverse human effects. 

Emergency Triage and PreHospital Treatment On-Site Incident Management coordinates with EMS and hospitals to ensure 

rapid triage, treatment, and transport of impacted individuals while tracking the 

quantity, destination, and disposition of patients leaving the incident site. 

Emergency Public Information 

and Warning 

On-Site Incident Management provides support and coordination to ensure 

prompt warning and notification to the public. 

Citizen Evacuation and ShelterIn- Place On-Site Incident Management receives protective action decisions and 

provides support and coordination to ensure citizens receive correct 

information regarding the need to shelter in place or evacuate. 
204 Target Capabilities List 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Direct On-Site 

Incident 

Management

End: Command 

transitions to 

recovery

Implement On-Site 

Incident 

Management

Start: Indication 

of an incident 

Emergency 

Operations 

Center 

Management

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Critical Resource 

Logistics and 

Distribution

Emergency 

Triage and PreHospital 

Treatment

Responder Safety 

and Health

Initial units dispatched to incident scene

Establish Full OnSite Incident 

Command

Ready to manage 

incident

Command and General 

staff identified

Develop Incident 

Action Plan (IAP)

Identification of resource needs (ongoing)

Execute Plan

Plan created

Demobilize OnSite Incident 

Management

IAP is shared with other response agencies

Sitrep provided

Incident resolved

Explosive Device 

Response 

Operations

Fatality 

Management

Emergency 

Public Information 

and Warning

Search and 

Rescue (LandBased)

Citizen 

Evacuation and 

Shelter-In-Place

WMD/Hazardous 

Materials 

Response and 

Decontamination

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)

Provide sitrep

Provide acquired 

patient information

Provide sitrep

Notified of PADs

Resources requested

Provide sitrep

Provide resources

Resources 

requested

Support and 

coordinate information

Support and 

coordinate information

Provide resources

Request resources

Resources provided

Linked 

Capabilities Relationship

Capability Activity Process Flow

Onsite Incident Management 

Capability

Plan 

evaluated

Plan 

updated

Epidemiological 

Surveillance and 

Investigation

Conduct Resource 

Management

Resources managed

Fire Incident 

Response Support

Emergency 

Public Safety and 

Security Response
Target Capabilities List 205 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Resource Element Description 

Resource Elements Components and Description

Type IV Incident Management 

Team 

NIMS Typed Resource. Type IV IMTs are designated teams of fire, EMS, 

and/or law enforcement officers from a region or single jurisdiction (city or 

county), activated to manage a major or complex incident during the first 6-12 

hours and possibly transition to a Type III IMT. Capable of functioning in an 

incident management function that may involve resources from multiple 

agencies from the discovery of and arrival at an incident up to and including a 

full operational period as defined by the agency or jurisdiction. 

Type III Incident Management 

Team 

NIMS Typed Resource. Type III IMTs are standing teams of trained personnel 

from different departments, organizations, agencies, and jurisdictions within a 

State or metropolitan region, deployed within a State or region to manage or 

support incident management at incidents that extend beyond one operational 

period and possibly transition to a Type II or Type I IMT. Capable of 

functioning in an incident management function that involves resources from 

multiples agencies and jurisdictions from local to Federal levels for multiples 

operational periods. 

Type II Incident Management 

Team 

NIMS Typed Resource. Type II IMTs are Federally or State-certified standing 

team comprised of up to approximately 38 members qualified and certified 

through the National Wildfire Coordinating Group (NWCG) qualification 

process. A Type II IMT may be self-contained and is typically deployed to 

incidents of regional significance. Capable of functioning in an incident 

management function that involves utilization of significant numbers of State 

and Federal-level resources. 

Type I Incident Management 

Team 

NIMS Typed Resource. Type I Incident Management Teams (IMTs) are 

Federally or State-certified standing teams comprised of approximately 38 

members qualified and certified through the NWCG qualification process. A 

Type I IMT is the most robust IMT with the most experience; is fully equipped 

and self-contained and is typically deployed to catastrophic events. Capable of 

functioning in an incident management function that involves utilization of 

significant numbers of Federal-level resources. 

Federal Incident Response 

Support Team (FIRST) 

Per the National Response Plan, a quick and readily deployable Emergency 

Response Team providing on-scene support to the local incident command. 

The FIRST is a forward extension of the Emergency Response TeamAdvanced (ERT-A) providing the ERT-A Team Leader and, after a Stafford 

Act Declaration, the Federal Coordinating Officer (FCO). FIRST has an 

Incident Command System (ICS) structure and each team has five permanent 

team members including a Team Leader, Operations Section Chief, Planning 

Section Chief, Logistics Section Chief, and a Communications Unit Leader. A 

State may chose to assign a person(s) to respond with the FIRST. Other 

Federal expertise may be assigned to augment the FIRST on an as-needed 

basis. The FIRST is considered a National Asset but is stationed in a FEMA 

Region and on a day-to-day basis reports to the Regional Response and 

Recovery (R&R) Division Director 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the “Toxic Industrial Chemical” scenario. Other 
206 Target Capabilities List 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

scenarios were reviewed to identify required adjustments or additions to the planning factors and 

national targets 

 Any scenario might require the combined efforts of responders from various local, State, regional, 

private sector, and Federal entities to carry out sustained support for emergency operations and 

expand the Incident Command System (ICS) to an inter-jurisdictional and national focus. The 

coordination of the ICS will be critical in this regard to avoid duplication of effort and to manage 

strained resources. While the focus would be on response, it is important to note that some scenarios 

can impact a large geographical area in a relatively short period of time (e.g., when hazards are fastmoving). 

 Establishment of an intelligence/investigation function will be required if the event is terroristinitiated and, as such, is a criminal act that will require coordinated intelligence gathering and 

analysis and extensive criminal investigation. 

 Type V IMTs are a “pool” of primarily fire officers from several neighboring departments, trained to 

serve in Command and General Staff positions during the first 6-12 hours from a major or complex 

incident and possibly transition to a Type IV or Type III IMT. 

 Complex incident management-unified incident command will have to be established immediately. 

Multi-agency coordination will be required. 

 Resource management processes will have to be established immediately. 

 An inadequate number of first responder resources will be available to manage the entire incident 

scene as it grows due to the wind transportation of toxic chemicals. 

 Incident command post, incident base camps, staging areas, and decontamination sites will have to be 

established. 

 The multi-agency coordinating group and incident communications management required to 

supplement dispatch centers and Emergency Operations Centers (EOCs) will be overwhelmed from 

the onset. 

 Responder care issues will have an immediate impact on the emergency response system. 

 All incidents will be managed using the National Incident Management System/Incident Command 

System (NIMS/ICS) at the local level. Expanding or complex incidents may require transitioning 

incident management to a Type III, Type II, or Type I Incident Management Team (IMT). 

 “Drawdown” of Type I and Type II IMTs due to significant wildfire activity results in increased use 

of Type III IMTs at catastrophic events. 

 Hazardous conditions, weather, size of area, scope, access, and criminal activity (hazard) affect how 

quickly incident scene can be sized up. 

 The Toxic Industrial Chemical scenario involves a fire and toxic industrial chemical release from a 

petroleum refinery caused by terrorist attack using rocket-propelled grenades and explosive devices. 

There are 350 fatalities, 1,000 hospitalized victims, 10,000 evacuated, 1,000 seeking shelter, 25,000 

shelter-in-place, and 100,000 self-evacuating. One-half of the structures at the refinery are damaged 

from explosions. 
Target Capabilities List 207 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Toxic Industrial Chemical)

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement Values 

Quantity of Resources 

Needed 

Type III Incident 

Management Team 

One Team can 

respond to one 

moderate/complex 

incident 

All-risk incident 

Single or unified command 

Assume 100-200 

responders in operations 

section 

1 IMT; if incident is a longduration incident, it may 

require a transition of a new 

IMT 

Type II Incident 

Management Team 

One Team can 

respond to one 

moderate/complex 

incident 

All-risk incident 

Single or unified command 

Assume 200-500 

responders in operations 

section 

1 IMT; if incident is a longduration incident, it may 

require a transition of a new 

IMT 

Type I Incident 

Management Team 

One Team can 

respond to one 

complex incident 

All-risk incident 

Single or unified command 

Assume 500+ responders in 

operations section 

1 IMT; if incident is a longduration incident, it may 

require a transition of a new 

IMT 

Approaches for Large-Scale Events 

 National ICS positions and qualification standards need to be established by the NIMS Integration 

Center (NIC) using existing standards established for IMTs by the National Fire Protection 

Association (NFPA), National Wildfire Coordinating Group (NWCG), U.S. Department of 

Agriculture (USDA), U.S. Coast Guard (USCG), and U.S. Fire Administration. 

 Increase the local-level Type III and IV IMT training using existing programs such as that of the U.S. 

Fire Administration. Use subject matter experts (SMEs) from local, State, and Federal agencies 

certified/qualified in ICS to accomplish national training needs. 

 The NIMS Integration Center (NIMS) needs to establish training and exercise requirements; use those 

established by NWCG, USDA, and USCG. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Type IV Incident 

Management Team 

NIMS-Typed 

Resource 

1 Per large cities, 

counties, or regions 

Local All Activities 

Type III Incident 

Management Team 

NIMS-Typed 

Resource 

1 State and UASI 

Regions 

State/Local 

(City) 

All Activities 

Type II Incident 

Management Team 

NIMS-Typed 

Resource 1 Per State with high 

occurrence, or per 

regional area available 

to multiple States 

State All Activities 
208 Target Capabilities List 

RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Type I Incident 

Management Team 

NIMS-Typed 

Resource 

6 Nationally, 

strategically placed 

Federal All Activities 

Federal Incident 

Response Support 

Team 

NIMS-Typed 

Resource 

1 Nationally Federal All Activities 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

5. Statement of Requirements for Public Safety Wireless Communications & Interoperability. Version 1.0. U.S. 

Department of Homeland Security, SAFECOM Program. March 2004. 

http://www.safecomprogram.gov/SAFECOM/library/technology/1200_statementof.htm. 

6. Telecommunications. Washington Military Department, Emergency Management Division. 2004. 

http://emd.wa.gov/6-rr/com/com-idx.htm. 

7. Incident Communications Emergency Plan, ICEP–2004. U.S. Department of Homeland Security. 2004. 

8. NFPA Standard on Incident Management Professional Qualifications 

 http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1026 

9. NFPA 1561: Standard on Emergency Services Incident Management System 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561 

10. FEMA 508-2 Typed Resource Definitions – Incident Management Resources, July 12, 2005 

http://www.fema.gov/pdf/emergency/nims/incident_mgmt.pdf 

11. NFPA 1021, Standard for Fire Officer Professional Qualifications, National Fire Protection Association, 2003 

Edition, http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1021. 

12. NFPA 1500, Standard on Fire Department Occupational Safety and Health Program, National Fire Protection 

Association, 2002 Edition, http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500. 

13. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa. 

14. Emergency Management Accreditation Program Standards. September 2003. 

http://www.emaponline.org/index.cfm. 

15. Code of Federal Regulations, Title 10, Part 835; Title 10, Volume 4, Parts 500 to end. U.S. Government 

Printing Office. 2001. 

16. National Disaster Medical System. U.S. Department of Homeland Security. 2004. http://ndms.dhhs.gov/. 

17. NFPA 1561: Standard on Emergency Services Incident Management Systems. National Fire Protection 

Association. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561. 
Target Capabilities List 209 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

EMERGENCY OPERATIONS CENTER 

MANAGEMENT

Capability Definition 

Emergency Operations Center (EOC) Management is the capability to provide multi-agency coordination 

(MAC) for incident management by activating and operating an EOC for a pre-planned or no-notice 

event. EOC management includes EOC activation, notification, staffing, and deactivation; management, 

direction, control, and coordination of response and recovery activities; coordination of efforts among 

neighboring governments at each level and among local, regional, State, and Federal EOCs; coordination 

public information and warning; and maintenance of the information and communication necessary for 

coordinating response and recovery activities. Similar entities may include the National (or Regional) 

Response Coordination Center (NRCC or RRCC), Joint Field Offices (JFO), National Operating Center 

(NOC), Joint Operations Center (JOC), Multi-Agency Coordination Center (MACC), Initial Operating 

Facility (IOF), etc. 

Outcome 

The event is effectively managed through multi-agency coordination for a pre-planned or no-notice event. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports Emergency Support Function (ESF) #5: Emergency Management. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

ResB1c 1.1.1 Develop standard operating procedures for activation, operation, and deactivation of EOC 

Res.B1c 1.1.2 Develop security and access control plans for EOC 

Res.B1c 1.1.3 Develop, adapt, or implement plans to support the IC, UC, or other agencies as needed 

Res.B1c 1.1.4 Establish and implement an order of command succession or continuity consistent with NIMS 

Res.B1c 1.3 Establish operational and redundant communication systems for EOC operation 

Res.B1c 1.3.1 

Verify that all critical communication links/circuits/systems have been identified and regularly 

tested; redundant and diverse links exist in case of single point of failure; and all emergency 

circuits are protected with telecommunications service priority for prompt restoration/ 

provisioning 

Res.B1c 1.3.2.7 

Verify that all participating public safety-related Communication Centers—serving the 

EOC/MACC/IOF directly or indirectly—are secure and functional, have established 

communication links with the EOC/MACC/IOF, have appropriate supplemental resources and 

other outlets to provide prompt, accurate public information and effective, timely notifications, 

and maintain a valid common operating picture for all responders/participants 
210 Target Capabilities List 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Res.B1c 1.3.2.5 Verify that all serving Public Safety Communication Centers have clear and standard operating 

procedures (SOPs), consistent with the potential needs specifically related to the event 

Res.B1c 1.3.2.6 

Verify that primary and secondary means to establish and maintain communication services 

through the event timeline are in place, can be activated promptly, and can continue to operate 

at acceptable levels 

Res.B1c 1.2.1 Create one central and one backup EOC/MACC/IOF 

Res.B1c 1.1.6 Develop emergency operations plans, policies, and procedures 

Res.B1c 1.1.7 Develop continuity of operations/continuity of government (COOP/COG) plans 

Preparedness Measures Metrics

A national security policy to identify classified information handling requirements has been 

developed for Federal, State, and local EOC/MACC/IOFs 

Yes/No 

Standard operating procedures (SOPs) for activation, operation, and deactivation of 

EOC/MACC/IOFs are in place 

Yes/No 

Standard operating procedure (SOP) sections related to the role of each entity in the 

management of EOC/MACC/IOFs have been reviewed 

Yes/No 

EOC plans and SOPs address continuity of operations (e.g. central and backup EOCs, primary 

and secondary communications services). 

Yes/No 

EOC Plans and SOPs address resource and personnel use limitations (e.g. work/rest, 

maintenance restrictions). 

Yes/No 

EOC Plans and SOPs address dissemination of accurate, timely, accessible information to 

public, media, support agencies) 

Yes/No 

A system is in place (or is accessible) for mapping, modeling, and forecasting potential hazards Yes/No 

EOC plans and SOPs address the demobilization of Emergency Operations Center (e.g. reassess and implement EOC deactivation plan, re-supply EOC entity to return to a state of 

readiness). 

Yes/No 

EOC plans and procedures include processes for ensuring the safety, security, structural 

integrity, and self-sufficiency of EOC facilities 

Yes/No 

EOC Plans and SOPs address dissemination of accurate, timely, accessible information to 

public, media, support agencies) 

Yes/No 

Communications plans to exchange data and voice in real time are in place Yes/No 

Frequency with which critical communication links/circuits/systems are identified and tested Every 3 months

Redundant and diverse links in case of single point of failure for all critical communications are 

in place 

Yes/No 

Design, construction, and repair reports identify and resolve any single failure point Yes/No 

Critical circuits are identified and telecommunication service priority contracted with provider Yes/No 

Alternate processes for sharing public information have been created, tested and deployed Yes/No 

Policy/procedure, appropriate equipment, and capability to relocate safely, without loss of 

operational integrity, is established and tested 

Yes/No 
Target Capabilities List 211 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Primary and secondary means to establish and maintain communication services through the 

event timeline so that services can be activated promptly and have the capacity to continue to 

operate at acceptable levels are in place 

Yes/No 

Effective process for assessing the status of any/all public safety communication centers 

throughout the lifetime of event are in place 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B1c 2.1 Conduct EOC/MACC/IOF specific training 

Res.B1c 2.2.2 Develop exercise program to evaluate the effectiveness of emergency operations center (EOC) 

incident management process 

Res.B1c 2.2 Develop exercise program for emergency operations plans, policies and procedures 

Res.B1c 2.2.1 Develop exercise program for continuity of operations/continuity of government (COOP/COG) 

plans 

Res.B1c 2.3 Brief chief executive and other key officials of the jurisdiction in the jurisdiction’s command 

and control plans for large-scale emergencies 

Res.B1c 2.4 Conduct annual command and control training and exercises for large-scale emergencies 

Preparedness Measures Metric

Appropriate personnel have completed FEMA Independent Study Program for IS 700-NIMS, 

An Introduction 

Yes/No 

Appropriate personnel have completed FEMA Independent Study Program for IS 800-National 

Response Plan, An Introduction; 

Yes/No 

Appropriate personnel have completed FEMA Independent Study Program for IS 275-EOC 

Management and Operations; 

Yes/No 

Appropriate personnel have completed FEMA Independent Study Program for IS 100-

Introduction to Incident Command System 

Yes/No 

Appropriate personnel have completed FEMA Independent Study Program for IS 200-ICS for 

Single Resources and Initial Action Incidents 

Yes/No 

Chief executive and other key officials of the jurisdiction are briefed in the jurisdiction’s 

command and control plans for large-scale emergencies 

Yes/No 

HSEEP-compliant exercises are conducted to test EOC management plans and procedures (e.g. 

secure EOC, track incidents, deliver resources).

Yes/No

Chief executive and other key officials of the jurisdiction participate in annual command and 

control training and exercises for large-scale emergencies 

Yes/No 

Exercises include private sector participation Yes/No 

EOC/MACC/IOF personnel (primary and backup) are trained to perform EOC/MACC/IOF 

tasks and on their assigned roles and responsibilities as part of the EOC/MACC/IOF team 

Yes/No 
212 Target Capabilities List 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Performance Tasks and Measures/Metrics 

Activity: Direct Emergency Operation Center’s Tactical Operations

Definition: In response to notification of incident, activate, staff, and organize the EOC/MACC/IOF 

in accordance with emergency plans and standard operating procedures; plan, direct, and 

coordinate information and activities internally within EOC/MACC/IOF functions, and externally 

with other multi-agency coordination entities and the public information system; coordinate 

logistical support to maintain an operationally functioning EOC/MACC/IOF until deactivation.

Critical Tasks

Res.B1c 3.1 Establish organization/operation of EOC/MACC/IOF CC/IOF

Res.B1c 3.1.1 Ensure that all Emergency Support Functions (ESFs) are staffed 

Res.B1c 3.3.3 Direct all support organizations participating in EOC/MACC/IOF 

Res.B1c 3.1.3 Ensure appropriate maintenance and rest cycles are included in resource (personnel and 

equipment) management activities 

Res.B1c 3.5.3.1 Arrange for shelter, housing, and feeding for responders and personnel supporting the operation 

per the emergency plan, as applicable 

Res.B1c 3.5.3.2 Arrange for shelter, housing, and feeding for displaced responder families and general population 

Res.B1c 3.3.1 Coordinate jurisdictional emergency management operations/

Res.B1c 3.7 Transition from response to recovery 

Res.B1c 3.7.1 Include Business Operation Center capability within state EOCs 

Performance Measures Metric

The emergency operations center (EOC) is activated upon notification of the incident Yes/No 

The emergency operations center (EOC/MACC/IOF) was activated upon notification of 

the incident 

Yes/No

EOC/MACC/IOF is appropriately staffed to meet incident demands Yes/No

Activity: Activate EOC/MACC/IOF 

Definition: In response to activation, perform incident notifications, recall of essential personnel, 

and stand-up of EOC/MACC/IOF systems to provide a fully staffed and operational EOC.

Critical Tasks

Res.B1c 4 Activate the EOC/MACC/IOF 

Res.B1c 4.3 Activate, alert, and request response from EOC/MACC/IOF personnel 

Res.B1c 4.4 Brief incoming personnel 

Res.B1c 4.3.3 Designate a Principal Federal Official (PFO) from an appropriate agency, who will assemble a 

support staff and deploy to the affected area as soon as possible (Federal only) 

Performance Measures Metric

Time in which the EOC/MACC/IOF is fully staffed Within 2 hours from activation 
Target Capabilities List 213 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Time in which the EOC/MACC/IOF commences operations Within 2 hours from activation 

Time in which incoming staff are appropriately briefed and assigned Within 15 minutes from staff arrival 

Time in which DHS designates a Principal Federal Official (PFO) Within 1 hour from start of the incident 

Time in which PFO assembles a support staff and deploys to the 

affected area 

Within 1 hour from start of the incident 

Activity: Gather and Provide Information 

Definition: Upon establishing EOC/MACC/IOF operations, gather, organize, and document 

incident situation and resource information from all sources to maintain situational awareness 

within the EOC/MACC/IOF, and horizontally and vertically within the National Incident 

Management System.

Critical Tasks

Res.B1c 5.1.1 

Verify that all participating public safety-related Communication Centers, serving the 

EOC/MACC/IOF directly or indirectly, have established communication links with the 

EOC/MACC/IOF 

Res.B1c 5.1 Make proper connections with other agencies involved in incident 

Res.B1c 5.2.2 Coordinate emergency management efforts among local, county, regional, State, and Federal 

EOC/MACC/IOF 

Res.B1c 5.2.3 Coordinate with non-government agencies and/or private sector to collect/share data on incident 

situation 

Res.B1c 5.1.2 Monitor communications and information systems 

Res.B1c 5.2 Collect, analyze, and disseminate information and intelligence 

Res.B1c 5.2.4 Ensure appropriate notifications are made 

Performance Measures Metric

Process for assessing the status of any/all public safety communication centers 

throughout the event has been established 

Yes/No 

Time in which connectivity is established with all participating public safetyrelated Communication Centers, serving the EOC/MACC/IOF directly or 

indirectly 

Within 30 minutes from 

EOC/MACC/IOF becoming 

operational 

Connectivity has been verified with all participating public safety-related 

Communication Centers, serving the EOC/MACC/IOF directly or indirectly 

Yes/ No 

Time in which the availability and functionality status of all plan supporting teams 

and resources, including identification of deficiencies or limiting factors, are 

reported to the NRCC 

Within 12 hours from the 

incident 

Time in which the jurisdiction produces an incident action plan (IAP) defining a 

schedule and setting the operational period 

Within 2 hours from the 

EOC/MACC/IOF entity 

becoming operational 

Time in which the jurisdiction produces and distributes a situation report Within 2 hours from the 

EOC/MACC/IOF entity 

becoming operational 

The jurisdiction provides situation reports at least once per operational period Yes/No 
214 Target Capabilities List 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Activity: Identify and Address Issues 

Definition: Upon receiving information, assess and identify current and anticipated resource 

shortages, technical support issues, and key policy decisions needed across all capabilities, and 

provide to the applicable agency, function, jurisdiction or multi-agency coordination entity for 

resolution.

Critical Tasks

Res.B1c 6.1.4 Identify issues 

Res.B1c 6.1.5 Identify and elevate needs/issues up the chain of command as needed, while tracking status 

Res.B1c 6.3 Track issues until they are resolved 

Performance Measures Metric

Issues are tracked until they are resolved Yes/No 

Time in which appropriate decision-makers are consulted to facilitate 

resolution of issues 

Within 30 minutes from recognizing need 

to consult decision-makers 

Activity: Provide EOC/MACC/IOF Connectivity 

Definition: Upon identification of issues, establish priorities between Incident and/or Area 

Commands; provide strategic direction; coordinate and resolve multi-agency policy issues, 

including the issuance of protective action recommendations and protective action decisions.

Critical Tasks

Res.B1c 7.3.4 Coordinate legal and regulatory issues with support of general counsel 

Res.B1c 7.3.1 Facilitate resolution to legal, policy, political, social, and economic sensitivities of the affected 

jurisdiction(s) as they impact response and recovery operations 

Res.B1c 7.3.2 Facilitate formulation of protective action decisions (PADs), as needed 

Res.B1c 7.3.3 Facilitate decision to implement isolation and quarantine, when needed 

Res.B1c 7.4 Implement continuity of operations (COOP) plans and continuity of government (COG) plans 

Performance Measures Metric

EOC/MACC/IOF recognizes the need to implement mutual aid agreements (MAAs) Yes/No 

Mutual aid, State and/or Federal resources are requested during an incident based on 

availability of resources and mutual aid 

Yes/No 

EOC/MACC/IOF consults appropriate decision-makers and facilitates resolution of 

needs/issues in a timely manner 

Yes/No 

Resource staging areas, Logistical Bases, and Logistical Staging Areas (LSAs) have 

been designated 

Yes/No 

Activation of pre-positioned resources has been requested Yes/No 

Time in which establishment of a Joint Field Office (JFO), National Response 

Coordination Center (NRCC), and Regional Response Coordination Center (RRCC) is 

initiated/expedited 

Within 4 hours from the 

incident 
Target Capabilities List 215 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Time in which of continuity of operations (COOP) plans and continuity of government 

(COG) plans are successfully implemented 

Within 2 hours from the 

incident 

Time in which Federal staging areas are designated inside incident area (forward of 

Federal Mobilization Center)

Within 1 hour from the 

incident 

Time in which pre-positioned Equipment Program Teams are activated Within 2 hours from the 

incident 

Time in which pre-positioned Equipment Program Teams are deployed Within 2 hours from the 

incident 

Time in which field survey support team and remote sensing aircraft are deployed to the 

incident area 

Within 4 hours from the 

incident 

Activity: Support and Coordinate Response 

Definition: Once requested, provide resource, technical, and policy support to the Incident 

Command by coordinating the actions of off-site agencies, organizations, and jurisdictions, 

implementing mutual aid agreements, and requesting higher-level assistance

Critical Tasks

Res.B1c 8.3.1 Coordinate activation of mutual aid agreements to obtain resources 

Res.B1c 8.1.1 Provide direction, information, and/or support as appropriate to IC/UC), and/or EOC/MACC/IOF 

Res.B1c 8.3.2 Support incident response operations by providing resources ordered by the Incident 

Management Team (IMT) through the EOC/MACC/IOF/JFO/ICP 

Res.B1c 8.3 Coordinate resource logistics and distribution 

Res.B1c 8.2.2 Support identification and determination of potential hazards and threats including mapping, 

modeling, and forecasting 

Performance Measures Metric

Time in which the jurisdiction recognizes the need to implement mutual aid 

agreements and request private sector resources 

Within 2 hours from EOC/MAC 

operations beginning 

Time in which mutual aid and State and/or Federal resources are requested, 

as needed, during an incident 

Within 2 hours from recognizing 

need for mutual aid, State and/or 

Federal resources 

Time in which private sector resources are requested, as needed, during an 

incident. 

Within 2 hours from recognizing 

need for mutual aid, State and/or 

Federal resources 

Process to ensure direction, information, and/or support provided to field is 

established Yes/No 

Status of resource requests are provided at least once per operational period Yes/No 

Activity: Demobilize Emergency Operations Center Management 

Definition: Upon completion of response phase, terminate EOC response activities, archive 

records, and restore systems, supplies, and staffing to a pre-incident ready State (or as 

appropriate for recovery activities).
216 Target Capabilities List 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Critical Tasks

Res.B1c 9.3 Facilitate demobilization plans and procedures for preparation of after-action reports 

Res.B1c 9.3.2 Implement EOC/MACC/IOF demobilization, deactivation, and transitional plan to JFO 

Res.B1c 9.1 Re-assess and implement EOC demobilization and deactivation plans 

Res.B1c 9.4 Rehabilitate and re-supply EOC/MACC/IOF entity/resources to return to state of readiness 

Performance Measures Metric

Time in which criteria for demobilization of EOC are established Within 2 hours from receipt of first 

demobilization request 

Time in which EOC/MAC entity is deactivated/demobilized Within 24 hours from decision to 

deactivate 

Linked Capabilities 

Linked Capability Relationship 

All Respond Capabilities EOC Management, in coordination with On-Site Incident Management, coordinates 

resource logistics, information sharing, decision-making, and implementation of 

activities in other Respond Capabilities. 

All Recover Capabilities EOC Management coordinates resource logistics, decision-making, information 

sharing, and implementation of activities in Recover Capabilities 

On-Site Incident 

Management 

EOC Management coordinates closely with IC/UC to set incident priorities, 

facilitate resource requests, and troubleshoot political, economic, policy, legal or 

regulatory, or social issues affecting on-site response operations. 

Emergency Public 

Information and Warning 

EOC Management provides information to Emergency Public Information and 

Warning for release to the media and the public. EOC Management receives 

information from Emergency Public Information and Warning on mis-information 

and rumors in the public domain that may impact response operations. 

Critical Resource Logistics 

and Distribution 

EOC Management coordinates with Critical Resource Logistics and Distribution to 

facilitate resources being distributed according to incident priorities. 

Isolation and Quarantine EOC Management receives protective action recommendations from Isolation and 

Quarantine, when appropriate. Isolation and Quarantine assists EOC Management 

in making well-informed protective action decisions and in implementing those 

decisions. 

Citizen Evacuation and 

Shelter-In-Place 

EOC Management receives protective action recommendations from Citizen 

Evacuation and Shelter In-Place, when appropriate. Citizen Evacuation and Shelter 

In-Place assists EOC Management in making well-informed protective action 

decisions and in implementing those decisions. 

Mass Prophylaxis EOC Management receives protective action recommendations from the Mass 

Prophylaxis, when appropriate. Mass Prophylaxis assists EOC Management in 

making well-informed protective action decisions and in implementing those 

decisions. 
Target Capabilities List 217 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Direct 

Emergency 

Operation 

Center’s 

Tactical 

Operations

End: Return to pre-incident 

“ready” status

Activate EOC/

MACC/IOF

Gather and 

Provide 

Information

Demobilize 

Emergency 

Operations Center 

Management

Identify and Address 

Issues

Staffed and operational EOC

Support and 

Coordinate 

Response

Support no longer needed

Provide situational awareness

Situation status and 

resource status

Policy decisions; PAD/PAR 

decisions; multi-agency resource 

decisions; assignments

On-Site Incident 

Management

Emergency Public 

Information and 

Warning

Start: 

Request to 

activate 

EOC

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Critical Resource 

Logistics and 

Distribution

Isolation and 

Quarantine

Resource shortages, need for PADs 

and other decisions; public 

information warning

Citizen Evacuation 

and 

Shelter-In-Place

Mass Prophylaxis

Capability Activity Process Flow

Emergency Operations Center 

Linked Relationship Management Capability

Capabilities

Provide situational 

awareness

Request resources

Provide support

Provide resources

Provide information 

support

Resources provided for requestor

Response to incident complete

Request for support

Decision to activate – partial or full

Provide EOC/

MACC/IOF 

Connectivity

All Respond 

Capabilities

All Recover 

Capabilities

Coordinate logistics, 

decision-making, and 

information sharing
218 Target Capabilities List 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Resource Element Description 

Resource 

Element 

Description 

City EOC Personnel: Consists of basic EOC functional requirements, including: chief executive and key 

officials, command staff, incident commander, EOC Management Support Team (defined in 

NIMS), Operations Section (defined in NIMS), Logistics Section, Planning Section (defined in 

NIMS), Administration/financial Section (defined in NIMS), Information technology (IT), 

safety/security, 15 Emergency Support Functions (ESF) (if required to activate). 

Plans: Emergency operations plans, policies and procedures; continuity of operations/continuity 

of government (COOP/COG) Plans 

Equipment: 

Communications equipment (e.g., telephones, satellites, radio, Video wall/plasma screen, 

Facsimile, Video teleconferencing (VTC), Cable TV, Satellite TV, VHS/UHF/HF 

communications) 

Network (e.g., internet, wired and/or secure wireless local area network , Sensitive-butunclassified network, Common operational picture) 

Computers and software (e.g., a geographic information system (GIS), Geospatial imagery, Level 

1 mobile central processor, interoperable software, EOC operation software, state-of-the-art 

computer blade technology) 

2 Level 1 mobile central processors (CP): 1 to be used to restore “normal” public safety 

communications services to some level during the duration of recovery effort 

Unclassified capability equipment, including the National Alert Warning System (NAWAS) and 

the Washington Area Warning System (WAWAS). 

Other (e.g., special lighting, room acoustics, architectural noise and vibration control, 

environmental acoustics, sound reinforcement systems) 

Training: EOC specific training; FEMA Independent Study Program: IS 700-NIMS, An 

Introduction; FEMA Independent Study Program: IS 800-National Response Plan, An 

Introduction; FEMA Independent Study Program: IS 275-EOC Management and Operations; 

FEMA Independent Study Program: IS 100-Introduction to Incident Command System; FEMA 

Independent Study Program: IS 200-ICS for Single Resources and Initial Action Incidents 

Exercises, Evaluations and Corrective Actions: Exercise program to evaluate the effectiveness 

of emergency operations center (EOC) incident management processes; exercise program for 

emergency operations plans, policies and procedures; exercise program for continuity of 

operations/continuity of government (COOP/COG) Plans 

County EOC Same as City EOC 

State EOC Same as City EOC, except: 

Equipment: Add the following: sensitive compartmented information facilities (SCIF), secret 

capability equipment, including: Homeland Security Information Network (HSIN)/Joint Regional 

Information, Exchange System (JRIES), other classified systems connectivity, secure telephone 

and VTC equipment, Top Secret/Sensitive Compartmented Information (TS/SCI) capable 

equipment, including: Automatic Digital Network (AUTODIN)/Defense Message System 

(DMS), other classified systems, secure telephone equipment (STE), National Secure Telephone 

System (NSTS), Top Secret/Sensitive Compartmented Information (TS/SCI) secure VTC 

equipment, Top Secret/Sensitive Compartmented Information (TS/SCI) secure facsimile 

equipment 
Target Capabilities List 219 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Federal EOC Same as State EOC, except: 

Personnel: Add the following: Emergency Response Team (ERT), National Emergency 

Response Team (ERT-N), Federal Incident Response Support Team (FIRST), Mobile Emergency 

Response Support (MERS) Detachment, Mobilization Center Management Team (MCMT), 

Hurricane Liaison Team (HLT), DHS Science and Technology Advisory and Response Team, 

CDC Incident Support Team 

Equipment: Same as State EOC 

DHS EOC Same as Federal EOC 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Improvised Nuclear Device (IND) scenario. Other 

scenarios were reviewed to identify required adjustments or additions to the planning factors and 

national targets.

 This capability is applicable to all scenarios in which the incident is a large-scale event requiring the 

establishment of a command center away from the incident site. 

 One central and backup EOC for each of 3,142 counties. One central and backup State EOC are 

available for each State and 6 territorial governments (56+). Individual municipalities (19,429) and 

towns and townships (16,504) may need an EOC depending on population, legislation, and identified 

requirements. 

 Type III Incident Management Teams (IMTs) can be maintained at the local level (city, county, and 

State) and staffed by qualified individuals from first-responder agencies (interagency IMTs). Such 

IMTs are readily available for a quick response and rapidly establish incident command on expanding 

incidents. 

 One central and backup EOC are available for each of the signatory departments and agencies listed 

in the National Response Plan (40+). 

 All jurisdictions have identified the need to carry out minimum emergency functions for effective 

control of any emergency through their own EOC or a shared EOC that has been identified under 

National Incident Management System (NIMS) operations. 

 The primary or alternate EOC facility is operational and habitable. 

 Sufficient personnel, ranging from 2 to 3 shifts, 24/7, are available to staff the EOC and manage all 

tasks. 

 Sufficient personnel and equipment are available to conduct EOC operations. 

 Trained personnel are available to perform EOC tasks. Personnel know their assigned roles and 

responsibilities as part of the EOC team. 

 Primary and/or alternate communications capabilities are still functional to coordinate response and 

incident management. 

 Governments within the United States: 

 19,429 municipalities 

 16,504 towns or townships 

 3,142 counties 

 50 State governments 

 6 territorial governments 

 1 Federal government 

 Total of more than 39,000 jurisdictions 
220 Target Capabilities List 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

 Cities with populations greater than 50,000 should identify the need for an EOC. The numbers of 

cities with levels of populations above 50,000 follow: 

 364 cities with populations of 50,000—100,000 

 173 cities with populations of 100,000—200,00 

 36 cities with populations of 250,000—500,000 

 29 cities with populations of 500,000+ 

Scenario-Specific 

 The capability targets for a single incident are based primarily on the “improvised nuclear device” 

(IND) scenario because it was considered the most encompassing for an Emergency Operations 

Center (EOC) standup and response to minimize the impact and to manage the incident. An 

earthquake was considered the next most encompassing. The 15 possible scenarios were rated from 

most to least encompassing. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Improvised Nuclear Device) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of Resources Needed 

Primary City EOC Cities with populations greater than 50,000 

should identify the need for an EOC. 

County EOC One central and backup EOC for each of 

3,142 counties. 

State EOC One central and backup State EOC are 

available for each State and 6 territorial 

governments 

Federal EOC One central and backup EOC are available 

for each of the signatory departments and 

agencies listed in the National Response Plan 

DHS EOC One central and one backup 

Approaches for Large-Scale Events 

During an emergency caused by an improvised nuclear device, when both the local and alternate EOC are 

not operational, it would be beneficial to know neighboring counties’ vital information (e.g., population, 

local hazards, infrastructure complexity, urban versus rural) 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Primary City EOC Non-NIMS 

Resource 

Organization 

1 Per city with 

population > 50k 

Local (City) All performance 

activities
Target Capabilities List 221 

RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

County EOC Non-NIMS 

Resource 

Organization 

2 Per county (primary 

and backup) 

Local (County) All performance 

activities

State EOC Non-NIMS 

Resource 

Organization 

2 Per State/Territory 

(primary and 

backup) 

State All performance 

activities

Federal EOC Non-NIMS 

Resource 

Organization 

2 Per designated 

Federal agency 

(primary and 

backup) 

Federal All performance 

activities

DHS EOC Non-NIMS 

Resource 

Organization 

2 Per DHS/FEMA 

Regional Office 

(Primary and 

backup) 

Federal 

(DHS/FEMA) 

All performance 

activities

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

5. Statement of Requirements for Public Safety Wireless Communications & Interoperability. Version 1.0. U.S. 

Department of Homeland Security, SAFECOM Program. March 2004. 

http://www.safecomprogram.gov/SAFECOM/library/technology/1200_statementof.htm. 

6. Incident Communications Emergency Plan, ICEP–2004. U.S. Department of Homeland Security. 2004. 

7. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa. 

8. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

9. Emergency Management Accreditation Program Standards. September 2003. 

http://www.emaponline.org/index.cfm. 

10. Federal Executive Branch Continuity of Operations. Federal Preparedness Circular (FPC 65). U.S. Department 

of Homeland Security, Federal Emergency Management Agency, Office of National Security Coordination. 

June 2004. http://www.fema.gov/onsc/. 

11. PDD 67: Enduring Constitutional Government and Continuity of Government Operations. October 1998. 

http://www.emergency-management.net/laws_pdd67.htm.
222 Target Capabilities List 

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Target Capabilities List 223 

RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION 

CRITICAL RESOURCE LOGISTICS AND 

DISTRIBUTION 

Capability Definition 

Critical Resource Logistics and Distribution is the capability to identify, inventory, dispatch, mobilize, 

transport, recover, and demobilize and to accurately track and record available human and material 

critical resources throughout all incident management phases. Critical resources are those necessary to 

preserve life, property, safety, and security. 

Outcome 

Critical resources are available to incident managers and emergency responders upon request for proper 

distribution and to aid disaster victims in a cost-effective and timely manner. 

Relationship to National Response Plan Emergency Support Function/Annex 

The capability supports the following Emergency Support Functions (ESFs): 

ESF #1: Transportation 

ESF #2: Communications 

ESF #3: Public Works and Engineering 

ESF #4: Firefighting 

ESF #5: Emergency Management 

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

ESF #7: Resource Support 

ESF #8: Public Health and Medical Services 

ESF #9: Urban Search and Rescue 

ESF #10: Oil and Hazardous Materials Response 

ESF #11: Agriculture and Natural Resources 

ESF #12: Energy 

ESF #13: Public Safety and Security 

ESF #14: Long-Term Community Recovery and Mitigation 

ESF #15: External Affairs 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B1d 1 

Develop plans, procedures, and protocols for resource management in accordance with the 

National Incident Management System (NIMS), and include pre-positioning of resources to 

efficiently and effectively respond to an event 

ResB1d 1.1 Establish plans and systems for resource identification, typing, and inventorying 
224 Target Capabilities List 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

ResB1d 1.2 Establish plans and systems for acquiring and ordering resources 

ResB1d 1.3 Establish plans and systems for mobilizing and allocating resources 

ResB1d 1.5 Establish plans and systems for resource recovery and reimbursement 

Res.B1d 1.6 Establish plans and procedures for coordinating with non-governmental and private sector 

organizations for obtaining resources 

Res.B1d 1.3.2 Develop plans for the establishment of logistic staging areas (LSAs) for internal and external 

response personnel, equipment, and supplies 

ResB1d 1.4.1 Establish a national resources tracking and reporting system that can integrate with state/local 

systems 

Res.B1d. 1.4.2 Establish resource tracking system or resource inventories at the state and local level 

Preparedness Measures Metrics

Plans and procedures address activation of the resource management system Yes/No 

Plans and procedures address management of supplies (e.g., secure and appropriate 

storage, transportation through restricted areas, etc) 

Yes/No 

Plans and procedures include communications requirements (e.g. jurisdiction requests are 

monitored to track inventory, transportation vendors can maintain contact during 

distribution). 

Yes/No 

Tracking and recording systems for resources are developed and tested Yes/No 

Resource and vendor lists are in place Yes/No 

Resource lists are updated as required or every 12 months Yes/No 

Critical resource management plans are supported by standing contracts and/or emergency 

purchase mechanisms such as credit cards or debit cards (e.g. rapid purchasing 

mechanisms are in place for specialized resources such as GIS and cell providers). 

Yes/No 

Pre-negotiated vendor contracts for critical resources and essential services are in place 

and maintained 

Yes/No 

Plans, procedures, and systems to pre-position resources in order to efficiently and 

effectively respond to an event are in place 

Yes/No 

Processes and procedures to ensure that resource providers are reimbursed in a timely 

manner are in place 

Yes/No 

Plans and procedures address unused resources and disposal of waste materials generated 

by logistics operations. 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

ResB1d 2.1 Develop and implement resource logistics and distribution training programs 

ResB1d 2.1.1 Develop and implement training in emergency logistics that incorporates linkages among 

damage/needs assessment, logistics management, and volunteer/donations management 
Target Capabilities List 225 

RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION 

Res.B1d 2.2.1 Validate resource logistics, distribution plans, and training programs using exercises ranging 

from tabletop to full-scale 

Preparedness Measures Metric

Training in emergency logistics that incorporates linkages among damage/needs 

assessment, logistics management, and volunteer/donations management has been 

developed according to established standards for logisticians 

Yes/No 

Frequency with which personnel testing and training on tracking and recording systems is 

verified (including as required or necessary) 

Every 18 months 

Frequency with which resource and logistic tracking and recording systems are exercised 

(including during other exercises) 

Every 12 months 

Performance Tasks and Measures/Metrics 

Activity: Direct Critical Resource Logistics and Distribution Operations 

Definition: In response to an incident or situation that may require outside resource support, 

provide management and coordination for the Critical Resource Logistics and Distribution 

capability, from activation through demobilization

Critical Tasks

Res.B1d 3.1.1 Establish communication between EOC and Incident Management Team to determine resource 

needs to support incident response and operations 

Res.B1d 3.2.2 Identify existing internal, jurisdiction-specific resources available to support response and 

recovery operations 

Res.B1d 3.1.2 Make a determination regarding the need for additional external resources and the 

implementation of a critical resource logistics and distribution plan 

Res.B1c 3.5 Provide logistical support for the operation and requests of the IC/EOC 

Res.C2a 3.1.1 Coordinate distribution of stockpile assets 

Res.B3a 3.5.1 Coordinate the handling and transporting of affected persons requiring assistance 

Rec.C1a 3.2.5 Provide and coordinate the use of emergency power generation services at critical facilities 

Performance Measures Metric

Time in which the multi-agency coordination system is activated following the request for 

critical resources needed for the incident 

Within 2 hours of 

request 

Time in which it is determined that there is a need to supplement internal resources by 

implementing critical resource logistics and distribution operations 

Within 8 hours of 

incident 

Time in which requests for critical resources are processed and approved Within 1 hour of 

receipt of request 

Determination is made regarding whether assistance from outside jurisdictions (i.e. mutual aid, 

Emergency Management Assistance Compact (EMAC)) is needed 

Yes/No 

Assistance from outside jurisdictions is tracked to certify performance Yes/No 
226 Target Capabilities List 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Activity: Activate Critical Resource Logistics and Distribution 

Definition: In response to activation, initiate the resource logistics and distribution process, 

including identifying and establishing a logistics staging area (LSA)

Critical Tasks

Res.B1d 4.1 Initiate resource logistics and distribution support for incident response operations according to 

the Incident Management Team (IMT) assignments in the Incident Action Plan (IAP) 

Res.B1d 4.2 Implement plans and procedures for establishing a logistics staging area (LSA) for internal and 

external response personnel, equipment, and supplies 

Res.B1d 3.2.4 Meet ongoing resource support needs through appropriate procurement sources from the 

EOC/MACC/IOF 

Res.B1d 6.3.2 Provide facilities, transportation, supplies, equipment/equipment maintenance, fueling, food 

service, and communications through the logistics staging area (LSA) 

Res.B1d 4.3 Implement a resource-tracking system 

Res.B1b 8.1.1 Report and document the incident by completing and submitting request forms, reports, 

documentation, and follow-up notation. 

Res.B1d 4.4 Plan and prepare for the demobilization process well in advance in accordance with NIMS in 

order to facilitate accountability and make transportation of resources as efficient as possible 

Performance Measures Metric

Time in which logistics staging area (LSA) is opened Within 8 hours of incident 

Critical resources are accurately tracked and recorded Yes/No 

Activity: Respond to Needs Assessment and Inventory 

Definition: Based on tasking from the EOC/MAC per field needs assessments, determine types of 

resources needed to support response operations.

Critical Tasks

Res.B1d 5.1 Determine additional human and material resources needed to support response 

Res.B1d 5.3 Request needed resources from EOC/MACC/EOC/IOF 

Res.B1d 5.2 Identify and inventory by type and category all resources available to support emergency 

operations, including facilities, equipment, personnel, and systems 

Res.B1d 5.2.2 Determine availability of supplies stocked in distribution facilities, national stockpiles, and 

customer supply centers 

Performance Measures Metric

Time in which logistics staging area (LSA) responds to EOC tasking for resource support Within 1 hour from 

request 
Target Capabilities List 227 

RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION 

Activity: Acquire Resources 

Definition: Request and acquire resources from local, State, Federal, or private providers. 

Critical Tasks

Res.B1d 6.1 Implement plans, procedures, and protocols for resource acquisition and management in 

accordance with NIMS 

Res.B1d 7.4 Provide support from EOC/MACC/IOF to IC with human and material resource needs 

Res.B1d 6.3.4 Track/record resource movement in and out of the logistics staging area (LSA) 

Res.B1d 6.3.3 Obtain supplies stocked in distribution facilities, national stockpiles, and customer supply centers 

Performance Measures Metric

Percent of resource movement tracked/recorded 100% 

Time in which the resource is available for deployment Within 2 hours from arrival 

Time in which critical resources from the State (within the State) are 

delivered 

Within 12 hours from approval of request 

Time in which critical resources from the State (State-to-State)/EMAC 

are delivered 

Within 24 hours from approval of request 

Time in which Federal critical resources are delivered Within 24 hours from approval of request 

Time in which private sector is tasked to inventory and identify 

available assets 

Within 2 hours from determination of need 

for private sector involvement 

Time in which all large-space facility structures within 250 miles of 

the incident venue(s) that could be made available for use as needed 

are inventoried and identified to ESF-7 

Within 6 hours from request 

EOCs and Incident Management Teams follow standard interagency 

mobilization guides at the national, regional, State, tribal, and local 

levels 

Yes/No 

Activity: Transport, Track, and Manage Resources 

Definition: Once a resource request has been filled, deploy the resource to the incident through 

the logistics staging area (LSA) and in coordination with EOC.

Critical Tasks

Res.B1d 7.1.4 Mobilize transportation to distribute resources 

Res.B1d 7.2 Deploy and transport resources to appropriate, pre-determined locations 

Res.B1d 7.3 Track the deployment, movement, and transportation of resources prior to and during an incident 

Res.B1d 7.5 Request State critical resources 

Res.B1d 7.6 Request Federal critical resources 
228 Target Capabilities List 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Performance Measures Metric

Private sector linkages are activated to inventory and identify available transportation 

assets, potential mass shelters facilities and medical facilities, personnel, equipment, and 

supplies 

Yes/No 

Sufficient transportation assets are established to transport critical human and material 

resources throughout incident management phases 

Yes/No 

Time in which resources received at logistics staging area (LSA) are available to support 

response and recovery operations 

Within 8 hours from 

receipt at LSA 

Critical resources are managed and inventoried to ensure sustained operations Yes/No 

All required procedures for acquiring and managing resources, including reconciliation, 

accounting, auditing, and inventorying, are followed 

Yes/No 

Percent of approved resource requests met and filled accurately during the incident 100% 

Time in which actions to deploy Pre-Positioned Disaster Supply (PPDS) containers are 

initiated 

Within 24 hours from 

identification of need 

Time in which actions to deploy additional Pre-Positioned Disaster Supply (PPDS) 

containers are initiated 

Within 48 hours from 

identification of need 

Time in which backfill of Pre-Positioned Disaster Supplies (PPDS) containers is initiated Within 72 hours 

Resource status changes are recorded and reported as they occur Yes/No 

Activity: Maintain and Recover Resources

Definition: Recover all resources deployed for response and recovery support, rehabilitate and resupply all resources, rest and recuperate all personnel, review tracking system, and retrace all 

resources back to original provider. The recovery process involves the final disposition of all 

resources

Critical Tasks

Res.B1d 8.1.1 Cycle personnel to allow for rest and recuperation 

Res.B1d 8.1.2 Cycle resources to allow for rehabilitation and/or re-supply efforts 

Res.B1d 8.2.2 Rehabilitate and/or re-supply all expendable and nonexpendable resources 

Res.B1d 8.2.3 Recover all deployed resources that are salvageable 

Res.B1d 8.2.4 Return resources to issuing location 

Res.B1d 8.4.2 Account for all resource use and expenditure 

Res.B1d 8.3.1 Use established regulations and policies to deal with resources that require special handling and 

disposition, such as biological waste, contaminated supplies, debris, and equipment 

Res.B1d 8.3.2 IC/UC, EOC, and LSA make a joint determination that equipment and resources/supplies are no 

longer needed to support operation 

Performance Measures Metric

Resources and personnel are cycled per the IAP Yes/No 
Target Capabilities List 229 

RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION 

The recovery and disposition of resources is tracked and documented Yes/No 

Resources are returned to original provider Yes/No 

Activity: Demobilize Critical Resource Logistics and Distribution 

Definition: Upon completion of assigned duties or as directed by superiors, shut down the 

logistics staging area and return to pre-incident readiness

Critical Tasks

Res.B1d 9.2 Determine that equipment and unused resources/supplies are no longer needed to support 

operation 

Res.B1d 9.3 Implement demobilization and deactivation procedures 

Performance Measures Metric

Time in which demobilization plan is fully implemented Within 8 hours from 

decision to demobilize 

Time in which deployed resources are recovered following the end of response/recovery 

operations 

Within 72 hours from 

end of operations 

Percent of requests for State and Federal reimbursement processed 100% 

Percent of non-expendable resources fully accounted for at the incident site 100% 

Percent of non-expendable resources fully accounted for upon return to the unit that issued 

them 

100% 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

On-Site Incident Management typically identifies the critical resources required to 

support an incident response 

Emergency Operations 

Center Management 

A resource needs assessment to support incident response will be provided by the 

Incident Commander or Incident Management Team to the EOC, which will coordinate 

the acquisition of the required resources. The EOC will also coordinate with the 

logistical staging area. 
230 Target Capabilities List 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Direct Critical 

Resource 

Logistics and 

Distribution 

Operations

End: Return to pre-incident 

“ready” status

Activate Critical 

Resource 

Logistics and 

Distribution

Start: Identified need 

for resource(s)

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Identify resource shortfall(s)

Respond to Needs 

Assessment and 

Inventory

Ready to conduct assessment

Resource requirements identified

Acquire 

Resources

Transport, Track, 

and Manage 

Resources

On-Site Incident 

Management

Emergency 

Operations 

Center 

Management

Demobilize Critical 

Resource 

Logistics and 

Distribution

Notify of resource status

Resources acquired

Resources ready for distribution

Maintain and 

Recover 

Resources

Resources transported and 

tracked

Report resources transported

Direct resources to 

requesting agency

Resources returned appropriately

Provide finalized tracking report

Resource needs 

identified and provided

Resource needs 

identified and provided

Capability Activity Process Flow

Relationship Linked 

Capabilities

Critical Resource Logistics and 

Distribution Capability

Incident needs assessments

provided

 
Target Capabilities List 231 

RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION 

Resource Element Description 

Resource Elements Components and Description

Logistics Planning Manager Type III or Type IV Planning Manager to create logistics management plans 

for area to assist operations during incident 

National tracking system National system that captures and tracks resource availability; includes locally 

managed tracking systems that feed into the larger system 

Tracking system Resource tracking systems or inventories maintained at the state and/or local 

level that feed into the national tracking system. 

Rapid Needs Assessment Team 

(Type I) 

NIMS Typed Resource. Per NIMS, provides a rapid assessment capability 

immediately following a major disaster or emergency. Team provides and 

collects information to determine requirements for critical resources needed to 

support emergency response activities. 

Logistics response system Per NIMS, part of the ICS logistics branch needed to manage critical resource 

logistics and distribution 

Transportation Coordinator Per NRP ESF#1, coordinates critical resource transportation needs between all 

organizations and among Federal, State, local, and private agencies and 

organizations. 

Cargo Transportation Teams Vehicles and staff necessary to move large amounts of critical resources (e.g. 

personnel and trucks, planes, boats, trains) 

Evacuation Transportation Team Vehicles (e.g. trucks, buses, planes, boats, trains) and staff to provide 

transportation to evacuees 

Federal mobilization base camp Locations at incident site to receive and house Federal assets 

State staging area Locations in base camps to house Federal assets transferred to the State. 

Interagency warehouse Location with appropriate material-handing equipment (e.g., fork lifts, pallet 

jacks) to receive and house critical resources transferred from the State and 

donated by nongovernmental organizations (NGOs) and the public 

Evacuation Terminal Location for affected evacuated personnel 

Warehouse system for stockpiled 

resources 

A system to track and house stockpiled resources. 

Logistic staging area (LSA) This term is used as a convenience to represent the reception area and 

staging/mobilization area defined in NIMS 

Reception area Per NIMS, a location separate from the staging areas where resources report in 

for processing and out-processing. This location also provides accountability, 

security, situational awareness briefings, safety awareness, and distribution of 

IAPs, supplies, equipment, feeding, and bed-down. 

Staging area Per NIMS, a temporary location established where available resources can be 

placed while awaiting a tactical assignment. 

Incident base Per NIMS, the location at which primary support activities are conducted. A 

single incident base is established to house all equipment and personnel support 

operations. The incident base should be designed to be able to support 

operations at multiple incident sites 

Camps Per NIMS, a location that is separate from the incident base and located in 

satellite fashion from the incident base where it can best support incident 

operations. Camps provide certain essential auxiliary forms of support, such as 

food, sleeping areas, and sanitation. It may also provide minor maintenance 
232 Target Capabilities List 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Resource Elements Components and Description

and servicing of equipment. Camps may be relocated to meet changing 

operational requirements. 

Mobilization and staging areas Per NIMS, staging areas will be established by the Operations Section Chief to 

enable positioning of and accounting for resources not immediately assigned. 

A staging area can be any location in which personnel, supplies, and equipment 

can be temporarily housed or parked while awaiting operational assignment. 

Staging areas may include temporary feeding, fueling, and sanitation services. 

Personnel must check-in with the resources unit at the staging area, while 

supplies and equipment are checked in with the supply unit. If neither of these 

functions is activated, resources report to the Staging Area Manager for 

direction. 

Critical Resources Unit Leader Per NIMS, this position tracks and maintains the status and availability of 

critical resources assigned to each incident under the area command 

Planning Assumptions 

General 

 The capability is constant across all 15 National Planning Scenarios; however, hazardous materials 

(HazMat) response incidents will require specialized, already established teams to assist with the 

incident. Regardless, this capability functions across all scenarios, adjusting to the needs of the 

incident. 

 Significant, additional logistical support and coordination and public information systems will be 

required whenever a “shelter in place” or a “quarantine” order is implemented. 

 The U.S. Department of Homeland Security (DHS) will likely raise the Homeland Security Advisory 

System (HSAS) to “red” status immediately following a terrorist attack for designated areas, if not the 

entire Nation. Depending on the location, scope, and magnitude of the event, this elevated status can 

prompt actions limiting the availability of air transportation within the United States. Such travel 

limitations can negatively impact the timely convergence at the disaster-affected area of needed 

personnel and material resources. 

 Jurisdictions will identify where and how to replenish the depleted resources needed to further 

manage the incident. 

 Development of plans, procedures, and protocols for resource management in accordance with the 

National Incident Management System (NIMS) will be outlined within the planning capability. 

 Assistance from private contractors and voluntary agencies will be forthcoming to help the 

community during the incident. Pre-contracted services may be necessary and are encouraged 

through public and private sector organizations and partnerships. 

 Resources are categorized by material or service provided. Per NIMS, resources are defined by the 

following status conditions: 

 Assigned resources -- the status condition where personnel, teams, equipment, or facilities are 

checked in or, in the case of equipment and facilities, receipted for and are assigned to support 

incident operations. 

 Available resources -- the status condition where personnel, teams, equipment, or facilities are 

checked in or, in the case of equipment and facilities, receipted for, assigned to an incident, and 

made ready for a specific work detail or function 

 Out of service resources -- the status condition where personnel, teams, equipment, or facilities 

are assigned to an incident but are unable to function for mechanical, rest, or personal reasons or 

because their condition makes them unusable 
Target Capabilities List 233 

RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION 

 Interstate and intrastate mutual aid agreements will be utilized (State, tribal, and local). 

 Emergency Management Assistance Compact (EMAC) will be implemented based upon Federal 

declarations. 

 Jurisdictions’ emergency response plans should include pre-contracted services with public and 

private entitities. 

 Most capability elements will be needed quickly; they must be available to respond in less than 1 hour 

from the initial incident to manage the scene. However, because this capability deals with critical 

resource logistics and distribution, the timeframe may be slightly longer (1-3 hours, depending on the 

resource) but still required locally. 

 Warehouses will securely store and handle all stockpiled materials under appropriate conditions that 

will maintain their stability, integrity, and effectiveness while providing appropriate levels of physical 

security for all materials and facilities. 

Scenario-Specific 

 Based upon scenario conditions, a 7.2-magnitude earthquake with a subsequent 8.0 earthquake 

following occurs along a fault zone in a major metropolitan area, greatly affecting a 6-county region 

with a population of approximately 10 million people. Approximately 150,000 buildings are 

destroyed and 1 million buildings are damaged. All typed personnel are based on Federal Emergency 

Management Agency (FEMA) Typed Resource Definitions. 

 Assume 300,000 people will need to evacuate area. Of this, 50 percent lack the capability to selfevacuate. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource 

Organization 

Estimated Capacity Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Logistics Planning 

Manager 

1 plan per jurisdiction 

affected 

1 area affected 1 Type III Planning 

Manager 

National tracking 

system 

1 national system can 

find resources to 

support multicounty/region 

earthquake response 

operations 

1 national tracking system 

Tracking system One system is needed 

for each area involved 

One per state and one per 

jurisdiction 

Rapid Needs 

Assessment Team 

1 team (with backup) 

can assess 6-county 

area 

6-county affected area 2 teams (1 in affected 

region; 1 as backup) 

Logistics response 

system 

Incident will require full 

activation of logistics 

branch to manage critical 

resource logistics and 

distribution 

1 logistics response system 

Transportation 1 coordinator per EOC Scenario will require 1coordinator to sit in 
234 Target Capabilities List 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Resource 

Organization 

Estimated Capacity Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Coordinator resources from multiple 

jurisdictions to help 

support the incident, 

requiring the coordinator 

to monitor and 

troubleshoot movement of 

resources 

Emergency Operations 

Center (EOC); (can be 

component Emergency 

Support Function (ESF) #1) 

Cargo transportation 

teams 

Volume capacity of 

vehicles will vary 

Scenario will require at 

least: 550,000 gallons of 

water per day (1 

gallon/person/day) for 

displaced persons; 

2,750,000 pounds of ice 

per day (1 5-pound 

bag/person/day); 

Other critical incidentspecific resources 

Total volume of resources 

divided by the volume 

capacity of vehicle 

multiplied by amount of 

resource needed 

Evacuation 

transportation Team 

Carrying capacity of 

vehicles will vary 

150,000 people will 

require assistance with 

transportation for 

evacuation; transportation 

assets can be recycled and 

used multiple times during 

an evacuation 

Total number of evacuees 

divided by passenger 

capacity of vehicle 

Federal mobilization 

base camp 

Scenario will require large 

amounts of critical 

resources immediately 

2 base camps to receive 

Federal assets 

State staging area Two staging areas per base 

camp 

4 staging areas 

Interagency 

warehouse 

Location capacity will 

vary 

Incident will require one 

location for critical 

resources to be delivered 

1 warehouse 

Evacuation terminal Location capacity will 

vary 

As designated in 

jurisdictional response 

plans 

A number should be 

outlined in emergency 

response plans 

Warehouse system 

for stockpiled 

resources 

Each entity of government 

needs a warehouse system 

to track stockpiled goods 

1 Federal, 1 State, and 1 

Local. 

Approaches for Large-Scale Events 

The capability is not dependent on specification of an incident and will remain constant among the 15 

National Planning Scenarios. 
Target Capabilities List 235 

RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

Supported by 

Element 

Logistics Planning 

Manager 

Personnel 1 Per FEMA Region Federal 

(DHS/FEMA) 

Direct Critical 

Resource Logistics 

and Distribution 

Logistics Planning 

Manager 

Personnel 1 Per State and 

territory 

States Direct Critical 

Resource Logistics 

and Distribution

Type IV Logistics 

Planning Manager 

Personnel 1 Per jurisdiction Local Direct Critical 

Resource Logistics 

and Distribution

National tracking 

system 

Network 1 Nationally Federal Direct Critical 

Resource Logistics 

and Distribution 

Tracking system Network 1 Per state State Direct Critical 

Resource Logistics 

and Distribution 

Tracking system Network or 

data 

1 Per jurisdiction Local Direct Critical 

Resource Logistics 

and Distribution 

Rapid Needs 

Assessment Team 

NIMS typed 

resource 

organization 

1 Per FEMA Region Federal 

(DHS/FEMA) 

Direct Critical 

Resource Logistics 

and Distribution 

Logistics response 

system 

Resource 

Organization 

1 Nationally Federal All Activities 

Transportation 

Coordinator 

Personnel 1 Per EOC Federal/State/ 

Local 

Transport, Track, 

and Manage 

Resources 

Cargo 

Transportation 

Team 

Non-NIMS 

Resource 

Organization 

1 Per jurisdiction Local Transport, Track, 

and Manage 

Resources 

Federal 

mobilization base 

camp 

Non-NIMS 

Resource 

Organization 

 Not pre-established Federal Acquire Resources 

Transport, Track, 

and Manage 

Resources 

State staging area Non-NIMS 

Resource 

Organization 

2 Per State and 

territory 

State Acquire Resources 

Transport, Track, 

and Manage 

Resources 

Interagency 

warehouse 

Non- Resource 

Organization 

1 Per incident Local Acquire Resources 

Transport, Track, 
236 Target Capabilities List 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

Supported by 

Element 

and Manage 

Resources 

Warehouse system 

for stockpiled 

resources 

Non-Resource 

Organization 

1 Nationally Federal Acquire Resources 

Transport, Track, 

and Manage 

Resources 

Warehouse system 

for stockpiled 

resources 

Non-Resource 

Organization 

1 Per State and 

territory 

State Acquire Resources 

Transport, Track, 

and Manage 

Resources 

Warehouse system 

for stockpiled 

resources 

Non-Resource 

Organization 

1 Per organization NGO Acquire Resources 

Transport, Track, 

and Manage 

Resources 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. 

U.S. Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

5. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO–

03–1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d031165t.pdf. 

6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management 

Initiative. U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

7. NFPA 30 ̧Flammable and Combustible Liquids Code. National Fire Protection Association, 2003 Edition. 

http://nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=30 

8. NFPA 58, Liquefied Petroleum Gas Code. National Fire Protection Association, 2004 Edition. 

http://nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=58 
Target Capabilities 237

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

VOLUNTEER MANAGEMENT AND DONATIONS

Capability Definition 

Volunteer Management and Donations is the capability to effectively coordinate the use of volunteers and 

donations in support of domestic incident management. 

Outcome 

 The positive effect of using volunteers and donations is maximized to augment incident operations. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

The capability supports the following Emergency Support Functions (ESFs): 

Volunteer and Donations Management Support Annex 

ESF #6: Mass Care, Housing and Human Services 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B1e 1.1 Develop NIMS-compatible plans, policies, and protocols for coordinating the management of 

volunteers 

Res.B1e 1.3.1 Develop plans, policies, and protocols for coordinating the management of donated goods 

Res.B1e 1.3.2 Develop plans, policies, and protocols for coordinating the referral of undesignated cash 

donations 

Res.B1e 1.1.8 Develop plan to open and staff a donations call center to accept, match and process offers of 

goods and services 

Res.B1e 1.2.1 Develop system/criteria for evaluating and/or vetting voluntary organizations and/or relief 

funds 

Res.B1e 1.2.2 Develop a list of verified and/or vetted voluntary organizations and/or relief funds 

Res.B1e 1.4.1 Develop plans for effective information management communicating with Public Information 

Officers (PIOs) at all levels 

Res.B1e 1.4.2 

Develop plans to coordinate with local/State/tribal/Federal government, nongovernmental 

organizations, and private entities to effectively use volunteers, donated goods and cash 

donations 

Res.B1e 1.4.3 Develop outreach plan designed to educate the preparedness and response community about 

the functions of the volunteers and donations management capability 
238 National Preparedness Guidelines 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Res.B1e 6.2.2 

Develop a strategic facilities management plan to identify, staff and operate all facilities 

including multi-agency warehouse, volunteer and donations coordination center, volunteer 

reception center(s) and emergency distribution centers 

Res.B1e 1.1.5 Research existing liability issues and laws that affect volunteer utilization. 

Res.B1e 1.1.5.1 Encourage agencies receiving volunteers to clarify their limits on liability protection 

Res.B1e 1.1.6 Determine priority needs and roles required from the volunteers for all-hazards 

Res.B1e 1.1.7 Identify potential volunteer opportunities to expedite community involvement 

Res.B1e 1.1.8.1 Assign toll free number for use at call center 

Res.B.1.e 1.1.9 Develop system or process for ensuring credentialing/accreditation of skilled volunteers 

Preparedness Measures Metrics

A Volunteer Management and Donations plan that defines needs for and utilization of 

volunteers is in place 

Yes/No 

Plans specify the criteria for activating the Volunteer Management and Donations 

Emergency operations, including establishing a volunteer and donation coordination 

center (VDCC) 

Yes/No 

Volunteer Management and Donations plan address the management of material and cash 

donations (e.g. maintenance of appropriate documentation, referral of undesignated cash 

donations). 

Yes/No 

Volunteer Management and Donations plan includes communications requirements (e.g. 

provide information via website and toll free number for use at call center, advertise 

points of contact for receiving equipment and technical solutions). 

Yes/No 

Volunteer Management and Donations plan addresses the management of unaffiliated 

volunteers (e.g. identify potential volunteer opportunities, determine priority roles and 

needs for all hazards, research existing liability issues). 

Yes/No 

Volunteer Management and Donations plan addresses long-term recovery (e.g. allocate 

donations, assess need for volunteers, brief major donors on re-direction of donations). 

Yes/No 

Volunteer Management and Donations plan addresses facility management (e.g. identify, 

staff, operate multi-agency warehouses, volunteer and donations coordination centers, 

volunteer reception centers, emergency distribution centers). 

Yes/No 

Volunteer Management and Donations plan addresses the safety, security, and selfsufficiency of facilities and materials 

Yes/No 

National and State Volunteer Organizations Active in Disaster (VOAD) are established 

and coordinated with during disaster planning 

Yes/No 

Cooperative agreements and memoranda of understanding (MOUs) with volunteer 

management organizations are developed as appropriate 

Yes/No 

Norms and standards set regarding appropriate, fair and equal allocation of all donated 

recourses to ensure 501 (c) 3 or other determined qualifiers are used 

Yes/No 

Points of contact for donations are shared with outside jurisdictions, the private sector, Yes/No 
Target Capabilities 239

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

non-government organizations, and the media, as appropriate 

A database is in place to track the status of resources (e.g. when supplies are requested, 

where supplies will be delivered, constant inventory updates.). 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs

Critical Tasks 

Res.B1e 2.2.1 Exercise plans for volunteer management and donations 

Res.B1e 2.1.1 Develop and implement awareness-training programs regarding the use of volunteers and 

donations 

Res.B1e 2.2.1.1 Develop and implement exercise and training for the distribution of public information 

Res.B1e. 2.1.6 Develop just-in-time training program for volunteers to perform required tasks 

Res.B1e 2.1.2 Develop and conduct training to improve all-hazard incident management capability 

Res.B1e 2.2.2 Conduct an after action review to determine strengths and shortfalls and develop a corrective 

plan accordingly 

Res.B1e 2.1.5 Participate in training exercises with government agencies and other nongovernmental 

organizations, as appropriate 

Res.B1e 2.1.3 Complete relevant Incident Command System and/or National Incident Management System 

training for appropriate personnel and volunteers 

Res.B1e 2.1.4 Conduct internal and external training about the activities and responsibilities of volunteers and 

donations capability 

Preparedness Measures Metric 

Plans to coordinate exercise and training with local/State/tribal/Federal government and 

nongovernmental organizations are in place 

Yes/No 

Frequency with which volunteers and donations management plan is exercised Every 12 months 

External awareness training is provided for government and nongovernmental partners Yes/No 

Internal awareness training is provided for staff Yes/No 

Percent of personnel trained to manage required systems, materials and technology per 

their roles and responsibilities 100% 

Percent of donation management team and warehouse personnel trained on distribution 

plan and procedures 100% 
240 National Preparedness Guidelines 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Performance Tasks and Measures/Metrics 

Activity: Coordinate Volunteer Management Operations and the Establishment of 

Warehouses and Materials Handling Equipment 

Definition: In response to citizens, businesses, and corporations spontaneously volunteering 

and or/donating goods or cash, provide program to manage response plans. 

Critical Tasks

Res.B1e 3.1 Review and activate State and local plans for donations and volunteers 

Res.B1e 3.4.1 Coordinate voluntary support/activities with community/tribal leadership and liaise with 

local agencies 

Res.B1e 6.2.1 Locate and establish warehouses and materials handling equipment 

Res.B1e 6.2.2 Develop a strategic facilities management plan (multi-agency warehouse, emergency 

distribution centers) 

Res.B1e 3.3.1 Establish a liaison with media outlets and other stakeholders (e.g., Congress, Federal 

agencies) to provide information about volunteers and donations 

Res.B1e 3.3.2 Work closely with public information officers (PIOs) to disseminate critical information 

about appropriate ways to volunteer and donate 

Res.B1e 6.2.2.1 Implement a strategic facilities management plan (multi-agency warehouse, emergency 

distribution centers) 

Res.B1e 3.4.2 Coordinate and collaborate with State and national Voluntary Organizations Active in 

Disasters (VOAD) and its members 

Res.B1e 3.5.3 Collaborate with other agencies/organizations/businesses regarding volunteers and donations 

Res.B1e 6.1.2 

Designate and advertise points of contact for receiving equipment and technical (i.e., 

communications, logistics, housing, medical) solutions from the private sector, outside 

jurisdictions, nongovernmental organizations, and volunteers 

Res.B1e 4.1.3 Establish a volunteer and donations coordination center (VDCC) 

Res.B1e 3.4 Coordinate with agencies offering and/or accepting donations 

Res.B1e 3.5.4 Gather donations information about collections, distributions and other events concerning 

donations from the field to help manage the effect 

Res.B1e 3.5.5 Manage large numbers of government and nongovernmental volunteers in disaster 

Performance Measures Metric

Time in which volunteer and donations coordination center is activated Within 12 hours from 

incident 

Time in which the media and other agencies are provided precise information about 

volunteer and donation needs and give guidance on appropriate ways to help 

Within 24 hours from the 

end of a disaster or 

incident 

Activity: Activate Volunteer Management and Donations Emergency Plan 

Definition: In response to an incident, mobilize personnel and facilities to begin processing 

offers of assistance.
Target Capabilities 241

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Critical Tasks

Res.B1e 4.1.2 Activate pre-assigned toll-free numbers 

Res.B1e 3.3.2 Work closely with a public information officer to disseminate critical information about 

appropriate ways to volunteer and donate 

Res.B1e 4.2.2 Brief senior leadership and elected officials (government, Federal Coordinating Officer 

[FCO], Congress staff) 

Res.B1e 4.2.3.1 Work with all affected local/State/tribal/Federal governments 

Res.B1e 4.1.1 Activate donations/volunteer coordination teams (DVCT) 

Res.B1e 4.1.3 Establish a volunteer and donations coordination center (VDCC) 

Res.B1e 3.4.2 Coordinate and collaborate with Voluntary Organizations Active in Disaster (VOAD), its 

members and other vetted agencies/organizations/businesses 

Res.B1e 3.1 Review and activate State and local plans for volunteers and donations 

Res.B1e 4.1.4 Activate website for receiving monetary donations, and offers of other donations/volunteers 

Performance Measures Metric

Time in which volunteer/donations coordinators are deployed Within 6 hours from the end of a 

disaster or incident 

Time in which pre-assigned toll-free numbers are activated Within 12 hours from incident 

Points of contact for donations are advertised to outside jurisdictions, the 

private sector, non-governmental organizations, and the media Yes/No 

Senior leadership and elected officials are briefed Within 12 hours from incident 

 

Activity: Organize Volunteers and Assign Them to Disaster Relief Efforts 

Definition: Gather and provide information to efficiently refer volunteers to assigned 

organizations and agencies per developed tactical plans.

Critical Tasks

Res.B1e 5.2.1 Operate call centers and websites to gather information and register if possible, unaffiliated 

spontaneous volunteers 

Res.B1e 5.2.4 Match individual volunteers with requests from agencies 

Res.B1e 5.2.2 Conduct pre-deployment/pre-assignment briefing for volunteers 

Res.B1e 5.3.1 Provide just-in-time training program for volunteers to perform required tasks 

Res.B1e 5.5 Coordinate with voluntary agencies 

Res.B1e 5.5.1 Coordinate solicitation of skilled volunteers and technical capabilities 

Res.B1e 5.2.3 Implement system to check credentialing/accreditation of skilled volunteers if necessary 

Res.B1e 5.6 Support response operations using volunteer resources and volunteered technical capabilities 
242 National Preparedness Guidelines 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Performance Measures Metric

Time in which ability is in place to: receive, register and provide information to 

volunteers (via phone bank, web site virtual call center, etc.) 

Within 24 hours from incident 

Percent of volunteers who receive briefing 100% 

Percent of volunteers who are briefed prior to start of assignment 100% 

Percent of volunteers who are matched with assignments per their capabilities 

and the tactical plan 

100% 

Percent of volunteers who are referred 100% 

Activity: Collect and Manage Material Donations 

Definition: Once activated, receive and manage unsolicited in-kind donations.

Critical Tasks

Res.B1e 6.1.1 Operate call centers and websites to collect information on material donations 

Res.B1e 6.2.1 Locate and establish warehouses and material handling equipment 

Res.B1e 6.3 Gather material donations intelligence from the field 

Performance Measures Metric

Time in which a volunteer and donations staging area, including information 

management technology and communications equipment is established and 

operational 

Within 48 hours from an 

incident 

Time in which a strategic facility management plan is implemented 

Within 24 hours from 

notification of a disaster or 

impending disaster 

Time in which an operational donations management warehouse(s) with 

professional and volunteer staff is established 

Within 24 hours from the 

establishment of the location of a 

warehouse 

Activity: Collect and Manage Cash Donations 

Definition: Once activated, refer cash donations to appropriate voluntary organizations.

Critical Tasks

Res.B1e 7.1 Educate the public through press releases on the benefits of cash donations to voluntary 

agencies 

Res.B1e 7.4 Direct cash donations to voluntary agencies supporting the incident 

Res.B1e 7.3.1 Coordinate with agencies collecting cash donations 

Res.B1e 7.3.2 Collect cash donations 

Res.B1e 7.2 Keep appropriate documentation from all undesignated cash/monetary donations 

Res.B1e 7.3 Coordinate with verified and/or vetted agencies for the transfer of undesignated cash donations 
Target Capabilities 243

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Performance Measures Metric

Accuracy in accountability records is established and maintained Yes/No 

Percent of personnel following policies and procedures concerning undesignated cash 

donations 

100% 

Percent of personnel following policies and procedures concerning referral of cash 

donations to appropriate voluntary agencies 

100% 

Activity: Coordinate Distribution of Donations 

Definition: Process and disburse goods based on established plan.

Critical Tasks

Res.B1e 8.2 Manage surge in unsolicited donations and in-kind materials 

Res.B1e 8.3 Coordinate with local/State/tribal/Federal government, nongovernmental organizations, and 

private entities to effectively use unsolicited goods and undesignated cash donations 

Res.B1e 8.4 Implement proper accounting policies and protocols to handle cash donations 

Performance Measures Metric

Percent of donated goods that are inventoried 100% 

Percent of unneeded and unusable donated goods managed according to developed plans 100% 

Activity: Transition to Long-Term Recovery 

Definition: Period after the incident is determined to be under control and extended care/service 

plan by partner government agencies and NGOs becomes active 

Critical Tasks

Res.B1e 9.2 Allocate undesignated cash donations and in-kind material donations to long-term recovery 

effort 

Res.B1e 9.3 Assess the long-term needs and requirements for volunteers and donations 

Res.B1e 9.4 Coordinate appropriate messages with public information officers and media outlets 

Res.B1e 9.5 Brief major donors on transition and redirection of donations 

Performance Measures Metric

Inventory of donations has been completed Yes/No 

Percent of donations re-designated/re-assigned in accordance with donors’ intent and/or 

the donation management plan 

100% 

Needs and requirements for volunteers and donations for long-term recovery are assessed Yes/No 

Transition is accomplished between the Volunteer/Donations Coordination Center and 

mass care, EOC management and other agencies/organizations/businesses 

Yes/No 
244 National Preparedness Guidelines 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Activity: Deactivate Volunteer Management and Donations 

Definition: Based on need assessments, deactivate components of the plan (i.e. warehouse, phone 

bank) when appropriate

Critical Tasks

Res.B1e 10.3 Conduct appropriate salvage of remaining donated goods once response/recovery phase ends 

Res.B1e 10.1.2 Demobilize deployed volunteers 

Res.B1e 10.1.3 Demobilize volunteered technical capabilities 

Res.B1e 10.1 Close Volunteer/Donations Coordination Center and other facilities such as phone bank and 

warehouses 

Res.B1e 10.2 Conduct a debriefing of Volunteer Management and Donations personnel 

Performance Measures Metric

Percent of donations re-designated/re-assigned in accordance with donors’ intent and/or 

the donation management plan 

100% 

Percent of appropriate personnel debriefed 100% 

Stakeholders are provided with information from lessons learned to improve future events Yes/No 

Linked Capabilities 

Linked Capability Relationship 

Community Preparedness 

and Participation 

Community Preparedness and Participation brings nongovernmental organizations and 

entities together with government emergency planners through Citizen Corps Councils 

to integrate resources from nongovernmental organizations and entities into emergency 

response operations plans through pre-disaster MOAs and MOUs for pro-bono NIMStyped resources and NIMS-credentialed volunteers and to develop processes for 

coordinating unaffiliated volunteers registering into Volunteer Management and 

Donations. 

Community Preparedness and Participation provides all-hazards preparedness 

education and training to develop more resilient community organizations and 

individuals. 

Emergency Operations 

Center Management 

Emergency Operations Center Management provides resources and situation reports to 

Volunteer Management and Donations, which provides situation reports in return. 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Mass Care receives donated goods and individuals referred by Volunteer Management 

and Donations. 

Emergency Public 

Information and Warning 

Volunteer Management and Donations requests public service announcements from 

Emergency Public Information and Warning. 

 
Target Capabilities 245

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Coordinate 

Management for 

Volunteer 

Management 

and Donations 

Operations 

and the 

Establishment 

of Warehouses 

and Materials 

Handling 

Equipment

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Management structure mobilized

Activate 

Volunteers and 

Donations 

Emergency Plan

Start: Offers of 

volunteers and 

donations 

Ready to manage volunteers 

and contributions

Emergency 

Operations Center 

Management

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)

End: Return all personnel to 

pre-incident “ready “ status

Emergency Public 

Information and 

Warning

Community 

Preparedness 

and Participation

Volunteers 

organized 

and assigned

Citizens encouraged to 

volunteer

Coordinate 

Distribution of 

Donations

Deactivate 

Volunteer and 

Donations 

Management

Unaffiliated individuals and undistributed 

resources transition to recovery

Receive deployed 

inidividuals

Individuals and contributions begin to arrive

Resources provided Organize 

Volunteers and 

Assign Them to 

Disaster Relief 

Efforts

Collect and 

Manage Material 

Donations

Collect and 

Manage Cash 

Donations

Provide ongoing 

status reports

Request public 

announcement

Volunteers requested

Linked 

Capabilities

Volunteer Management and Donations 

Capability

Capability Activity Process Flow

Relationship

Transition to LongTerm Recovery

Contributions 

ready for 

distribution

Contributions 

distributed

Cash donation 

collected and 

managed

Provide sitreps
246 National Preparedness Guidelines 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Resource Element Description 

Resource Elements Components and Description

Volunteer and Donations 

Coordinator Center (VDCC) and 

Phone Bank 

Capability established pre-incident and activated as needed to handle calls. 

Personnel: 60 operators (call takers) per shift; 6 supervisors per shift; 1 

manager; 1 donation coordination team of 8–10 people with clerical support; 1 

volunteer coordination team of 8–10 people to qualify offers of services and 

develop links to agencies needing volunteers 

Equipment: networked computer terminals for call takers; access to high-speed 

Internet; phone bank database on secure Web site with logon, passwords, and 

varying levels of access; an 800 telephone number with 20–60 line capability; 

20+ additional lines for coordination teams; and computers for coordination 

teams 

Volunteer/Donations 

Coordinator 

Per NIMS, there are Type I, II, III, and IV donations coordinators, who manage 

the VDCC and media relations. The Volunteer and Donations Coordinator 

possess an operational knowledge of all aspects of donations coordination, 

including management of volunteers, funds, and goods, from concerned 

citizens and private organizations following a catastrophic disaster situation. 

Donation Coordination Team Per NIMS, a Donation Coordination Team consists of persons trained and 

experienced in all aspects of donations management. 

Donations Specialist Per NIMS, an individual who possesses an overall knowledge of all aspects of 

donations management at all levels. Capable of assisting in the physical 

establishment of the Volunteer and Donations Coordination Center (VDCC) 

and the Phone Bank (if required). This includes facility, data management, and 

internal operations. 

Transportation Team Trucks and drivers to pick up and deliver donated goods 

Warehousing Team One warehouse manager, 4 personnel, and associated equipment 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were 

reviewed to identify required adjustments or additions to the planning factors and national targets.

 Volunteer Management and Donations will require significant attention immediately following the 

event. If not promptly and appropriately managed, attention to this activity will demand the diversion 

of resources away from service delivery. 

 Offers of assistance will come from other countries. 

 Seasonal considerations include the dead of winter instead of summer. 

Scenario-Specific 

 Three million are affected, 2.5 million are displaced, 30,000 are killed, and 150,000 are injured. 

 Infrastructure failure is pervasive in communications, energy, and water and sewer sectors. 

 Resources are needed within 12–48 hours, which can be located regionally. The optimal location 

should be 15–20 miles from the event site (ground zero). However, damage to infrastructure may 

dictate otherwise. The Volunteer and Donations Coordination Center and Phone Bank should 
Target Capabilities 247

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

generally be located close to the State’s Emergency Operation Center (EOC) for coordination 

purposes. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Earthquake) 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement Values 

Quantity of 

Resources Needed 

Volunteer and Donations 

Coordination Center and 

Phone Bank 

Handles 5,000 

calls/day 

60 operators for 14 

hours/day 

An average of 2,500 calls 

come in a day resulting 

from media blitz; each call 

averages 10 minutes 

60 operators per shift 

2 shifts = 120 operators 

= 2 Teams 

Volunteer/Donations 

Coordinator 

Manage centers and 

media relations. 

Manage 2,500 calls per day 

and provide support to 

1,000,000 displaced persons 

4 per region 

Transportation 1 26-ft. container 

holds 4 tons 

1,000,000 persons are 

displaced; need 10 pounds 

of clothing and personal 

goods per day = 5000 tons 

per day 

1,250 trucks and drivers 

to pick up and deliver 

goods 

Warehousing Team 1 warehousing 

team (1manager 

and 4 personnel can 

handle 100,000 

tons of material 

1,000,000 persons are 

displaced; need 10 pounds 

of clothing and personal 

goods per day = 5000 tons 

per day 

100,000 tons of material 

for each warehouse 

Approaches for Large-Scale Events 

Due to the possibility of severely damaged roads, alternative methods of transportation (e.g., helicopters) 

will need to be considered. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per 

x) 

Lead Capability Activity 

supported by 

Element 

Volunteer/ 

Donations 

Coordination 

Center (VDCC) 

Resource 

organization 

1 Per State NGO Organize and Assign 

Volunteers 

Collect and Manage 

Material Donations 

Collect and Manage 

Cash Donations 

Volunteer/ 

Donations 

Coordinators 

Personnel 4 Per region NGO All Activities 
248 National Preparedness Guidelines 

RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per 

x) 

Lead Capability Activity 

supported by 

Element 

Transportation Non-NIMS 

Resource 

Organization 

As needed Per incident State/Local/N

GO/Private 

Sector 

Collect and Manage 

Material Donations 

Warehousing Team Non-NIMS 

Resource 

Organization 

1 - 6 Per incident NGO Collect and Manage 

Material Donations 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press 

Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

5. Citizen Corps. U.S. Department of Homeland Security. 2004. http://www.citizencorps.gov. 

6. National Voluntary Organizations Active in Disaster. 2004. http://www.nvoad.org. 
Target Capabilities 249

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

RESPONDER SAFETY AND HEALTH

Capability Definition 

Responder Safety and Health is the capability that ensures adequate trained and equipped personnel and 

resources are available at the time of an incident to protect the safety and health of on scene first 

responders, hospital/medical facility personnel (first receivers), and skilled support personnel through the 

creation and maintenance of an effective safety and health program. This program needs to comply with 

the Occupational Safety and Health Administration’s (OSHA) “HAZWOPER” standard (29 CFR 

1910.120, as implemented by EPA or State authorities) and any other applicable Federal and State 

regulations. The program also needs to be integrated into the Incident Command System (ICS) and 

include training, exposure monitoring, personal protective equipment, health and safety planning, risk 

management practices, medical care, decontamination procedures, infection control, vaccinations for 

preventable diseases, adequate work-schedule relief, psychological support, and follow-up assessments. 

This capability identifies the critical personnel, equipment, training, and other resources needed to ensure 

that all workers are protected from all hazards, including fire (heat and products of combustion), CBRNE 

(chemical, biological, radiological, nuclear, or explosive) materials, electrical hazards, collapsed 

structures, debris, acts of violence, and others. 

The Responder Safety and Health capability is a critical component of safe overall emergency 

management. First responders include police, fire, emergency medical services (EMS), and other 

emergency personnel, as well as emergency management, public health, clinical care, public works, and 

other skilled support personnel (such as equipment operators). This extended definition includes a very 

broad set of workers and a wide range of likely response-related activities, resulting in an increased 

number of potential hazards and exposures. Building the ability to protect all responders from all hazards 

is a substantial undertaking that involves prevention, preparedness, response, and recovery efforts. 

This capability supports both the Safety Officer position identified in the National Incident Management 

System (NIMS)/incident command system (ICS) and the Worker Safety and Health Support Annex to the 

National Response Plan (NRP). The Type 1 Safety Officer described in this capability has yet to be fully 

defined (to include managing all of the hazards that first responders are likely to face), but the concept 

used is the same as the “Disaster Safety Manager” described in Protecting Emergency Responders: Safety 

Management in Disaster and Terrorism Response (NIOSH, 2004). In addition, the list of services that are 

critical for this capability is consistent with the actions specified under the Worker Safety and Health 

Support Annex and in the Guidelines for hazmat/WMD Response, Planning and Prevention Training

(FEMA, 2003). 

During the response to any incident, employers are responsible primarily for the safety and health of their 

employees. However, the ICS creates a unified safety and health organization under the Safety Officer. In 

large-scale incidents, because of the number and varieties of hazards and workers, the Safety Officer 

would be used more as a Safety Manager. This technical capability therefore does not prescribe a certain 

level of preparedness for any particular organization; rather, it specifies the need for personal protective 

equipment (PPE), Safety Officers, and so forth and allows local entities to determine the best way to 

obtain the needed resources (e.g., through mutual aid, State resources, or Federal resources) for the first 

72 hours from the “initial response” operations. 

Outcome 

No illnesses or injury to any first responder, first receiver, medical facility staff member, or other skilled 

support personnel as a result of preventable exposure to secondary trauma, chemical/radiological release, 
250 National Preparedness Guidelines 

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

infectious disease, or physical and emotional stress after the initial incident or during decontamination 

and incident follow-up. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs) and Annex: 

ESF #3: Public Works and Engineering 

ESF #5: Emergency Management 

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

ESF #8: Public Health and Medical Services 

ESF #9: Urban Search and Rescue 

ESF #10: Oil and Hazardous Materials Response 

ESF #11: Agricultural and Natural Resources 

ESF #12: Energy 

ESF #13: Public Safety and Security 

Worker Safety and Health Support Annex 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B1b 1.1 Develop and adopt agency/jurisdiction safety and health program(s) 

Res.B1b 1.2 Conduct a detailed analysis of 15 planning scenarios to ensure that all workers are protected in 

performing the tasks from all hazards 

Res.B1b 1.3 Establish plans and procedures for identifying sources of additional equipment and expertise if 

the safety and health program is overwhelmed 

Preparedness Measures Metrics

Safety and health program that includes a personal protective equipment (PPE) 

component that adequately addresses respiratory protection and exposure protection for 

initial response is in place 

Yes/No 

Safety and health program addresses acquisition of additional respiratory protection items 

for reinforced response or long term incidents 

Yes/No 

Safety and health program that ensures initial responders are equipped with properly 

maintained PPE in adequate supply is in place 

Yes/No 

Safety and health program ensures access to backup/cache equipment, when necessary for 

reinforced on long term incidents 

Yes/No 

An agency/jurisdiction safety and health program(s) is in place which includes procedures 

to identify and assess hazards

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes 

detection/exposure monitoring

Yes/No
Target Capabilities 251

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

An agency/jurisdiction safety and health program(s) is in place which includes 

selection/distribution of PPE

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes health and 

safety planning

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes risk 

management practices

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes medical 

care

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes 

decontamination procedures

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes infection 

control

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes 

vaccinations for preventable diseases

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes adequate 

work-schedule relief

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes 

psychological support

Yes/No

An agency/jurisdiction safety and health program(s) is in place which includes medical 

follow-up assessments

Yes/No

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B1b 2.1.1 

Provide all required health and safety training, including pre-incident training , site/incident 

specific training, and exercises to develop and maintain appropriate knowledge and expertise for 

responders 

ResB1b 2.2.1 Conduct health and safety exercises to develop and maintain appropriate knowledge and 

expertise for responders 

Preparedness Measures Metric

Percent of responders trained to respond to anticipated emergencies (e.g. 15 planning 

scenarios) 

100% 

Safety Officer(s) have the training and experience necessary to manage hazards associated 

with all 15 planning scenarios 

Yes/No 

Percent of responders capable of using PPE (e.g., responders are fitted and medically 

cleared to use necessary PPE) so that they have the necessary health and safety training to 

perform their anticipated tasks (e.g. awareness level, technician level, etc.) in response to 

an incident 

100% 

The pre-incident safety and health training program is evaluated through emergency 

response exercises (e.g., did each responder have the necessary health and safety training 

to perform his or her task in the exercise?) 

Yes/No 

An Incident Specific Health and Safety Plan is developed during exercises as a way to 

measure responder safety and health readiness. [These plans can include identifying and 

Yes/No 
252 National Preparedness Guidelines 

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

assessing hazards, detection/exposure monitoring, selection/distribution of PPE, 

communication of hazards/protection among response organization, maximum exposure 

limits, applied engineering controls, incident specific training, medical 

surveillance/monitoring (including psychological first aid), etc.] 

Performance Tasks and Measures/Metrics 

Activity: Direct Responder Safety and Health Tactical Operations

Definition: Upon dispatch of responders, provide management and coordination of Responder 

Safety and Health capability, through demobilization.

Critical Tasks

Res.B1b 3.3.1 Monitor routine and emergency communications within the incident command structure at all 

times 

Res.B1b 3.3.2 Maintain routine and emergency communications within the incident command structure at all 

times during the incident 

Res.B1b 3.1 Maintain coordination and communication on safety and health issues between agencies and 

departments 

Res.B1b 3.7 Contribute to development of the incident action plan (IAP) to establish priorities, procedures, 

and actions to be accomplished to meet the incident objectives 

Res.B1b 3.7.1 Develop and review components (e.g., safety analysis, site safety and control plan, medical plan, 

safety message, etc.) of the IAP 

Res.B1b 3.2.2 Contact and work with subject matter experts (SME) from the public/private agencies and 

academia who may be able to assist with safety issues at the incident 

Res.B1b 3.4.2 Assess the availability of resources/assets provided by public, private, and volunteer 

organizations 

Res.B1b 3.4.3 Request additional safety and health resources through mutual aid 

Res.B1b 3.6 Coordinate and support decontamination activities 

Res.B1b 3.4.5 Utilize ordering systems to obtain additional needed resources 

Performance Measures Metric 

Percent of responders injured or falling ill in response to the incident 0% 

Activity: Activate Responder Safety and Health

Definition: In response to Incident Command (IC) recognition of the complexity of hazards in the 

incident, mobilize and designate Safety Officer to begin operations or continue IC-initiated 

operations

Critical Tasks

Res.B1b 4.1 Designate Safety Officer within the Incident Command System 

Res.B1b 4.1.1 Assume responsibility for supervision and management of the Assistant Safety Officer(s) based 
Target Capabilities 253

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

on severity and complexity of the incident 

ResB1b 4.2 Deploy specialized response teams to provide technical assistance to Safety Officer 

Res.B1b 4.3 Ensure ongoing safety and health assessments of response operations 

Performance Measures Metric

Time in which Safety Officer is designated within the ICS structure (separate from IC, 

who may hold this role for a period of time) 

Within 1 hour from 

arrival of responders 

Time in which deployment actions are initiated for Assistant Safety Officers or Safety 

SMEs to provide technical assistance to incident safety official 

Within 1-3 hours from 

arrival of responders 

Activity: Identify Safety/PPE Needs and Distribute PPE

Definition: Upon appointment as Safety Officer, assess safety and heath hazards, inform IC of 

needs, and develop site-specific safety and health plan

Critical Tasks

Res.B1b 5.1.2 Observe the scene and review/evaluate hazard and response information as it pertains to the 

safety of all persons at the location 

Res.B1b 5.4.1 Identify responder safety and health resources required 

Res.B1b 5.4.2 Provide command structure with observation-based recommendations for the safety of on-site 

personnel 

Res.B1b 5.1 Perform an incident safety analysis 

Res.B1b 5.1.1 Identify and prioritize the operations, hazards, and exposures of greatest risk to site personnel 

and coordinate with the IC to develop specific actions to address them and protect site personnel 

Res.B1b 5.2 

Assist the incident commander (IC) in developing an incident safety and control plan to respond 

within the capabilities of available response personnel, taking into account available resources 

such as PPE, monitoring equipment, and control equipment 

Performance Measures Metric

Percent of hazards detected/identified and characterized 100% 

Time in which an initial incident safety analysis is completed Within 1 hour from responder 

arrival 

Activity: Site/Incident Specific Safety and Health Training

Definition: Site/Incident specific training provides necessary understanding of the hazards 

identified and assessed in the incident, and the necessary precautions. Site/Incident specific 

training builds upon pre-incident training, but tailors curriculum to the tasks/hazards of the 

incident. Site/Incident specific training should reflect policies and procedures specified in the 

incident specific health and safety plan. Site/Incident specific training needs to have a flexible 

approach (training may need to be conducted outside of a classroom setting) and should be 

conducted prior to commencing response activities.

Critical Tasks

Res.B1b 6.1 Ensure the availability of incident/site-specific training 
254 National Preparedness Guidelines 

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

Res.B1b 6.2 Implement site-specific incident health and safety plan, including after-action care as needed for 

on-scene personnel 

Res.B1b 6.3 Ensure the provision of appropriate safety and health equipment 

Performance Measures Metric

Percent of emergency workers responding to an incident who are provided on-site training 

prior to assignment to work at incident 

100% 

Activity: Ongoing Monitoring of Responder Safety and Health

Definition: Upon assignment of responders to the incident, maintain continuous monitoring of 

responder safety and health, proper functioning of PPE and equipment, and awareness of on-site 

hazards; oversee decontamination; document all actions and injuries/illnesses; and provide for 

emergency and psychological medical care

Critical Tasks 

Res.B1b 7.1.1 Ensure the availability of incident/site-specific training 

Res.B1b 7.4.3 Implement site-specific incident health and safety plan, including after-action care as needed for 

on-scene personnel 

Res.B1b 7.4.4 Ensure the provision of appropriate safety and health equipment 

Res.B1b 7.5.2 Assist the IC and ICS staff in implementing exposure monitoring and enforcing safety 

considerations 

Res.B1b 7.5 Identify and implement all corrective actions necessary to ensure the safety and health of all site 

personnel 

Res.B1b 7.3 Coordinate with Incident Management/Emergency Operations Center (EOC) to ensure that 

medical unit is established on site 

Res.B1b 7.5.5 Make recommendation to alter, suspend, or terminate any activity judged to be an imminent 

danger or immediately dangerous to life and health 

Res.B1b 7.4.1 Monitor hazardous site operations and ensure that personnel perform their tasks in a safe manner 

and follow the safety-related requirements identified in the IAP 

Res.B1b 7.6 Ensure recording and reporting of any and all injuries and illnesses 

Performance Measures Metric

Time in which the medical unit is opened and operating within an ICS structure Within 30 minutes 

from initial responder’s 

arrival on-site 

Percent of personnel wearing the required PPE for site entry and work 100% 

Percent of workers who have their representative exposure to hazardous substances 

quantified and recorded 

100% 

Percent of personnel who have been decontaminated 100% 

Percent of affected personnel treated for injuries and illnesses through a medical unit 100% 
Target Capabilities 255

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

Activity: Demobilize Responder Safety and Health

Definition: Upon completion of assigned mission, evaluate responder safety and health status 

before demobilization and conduct follow-up analysis of health after responder returns to normal 

duty

Critical Tasks

Res.B1b 8.1 Conduct post-incident analysis of responder health and safety 

Res.B1b 8.2 Monitor psychological and medical status of exposed persons 

Res.B1b 8.3 

Coordinate with long-term health care to provide comprehensive stress management strategies, 

programs, worker crisis counseling, substance abuse services, and mental and behavioral health 

support 

Res.B1b 8.1.4 Provide critical incident stress management (CISM) strategies, programs, and teams 

Res.B1b 8.1.2 Debrief hazardous materials branch/group and all other exposed personnel on site-specific 

occupational safety and health issues involving hazardous materials/WMD releases 

Res.B1b 8.1.3 Participate in the incident critique process and identify critical safety and health-related 

observations of incident activities 

Performance Measures Metric

Percent of emergency workers who develop physical symptoms or illness secondary to the 

incident 

0% 

Percent of workers with mental health or stress-related symptoms secondary to the 

incident who are treated 

100% 

Percent of behavioral hazards identified and mitigated (e.g., human/animal remains are 

covered) 

100% 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

The Incident Commander will be responsible for protecting the safety and health of onsite responders until the Safety Officer is appointed, at which time, the Incident 

Commander will receive guidance from the Safety Officer. 

Emergency Operations 

Center Management 

The EOC may house an Assistant Safety Officer or Safety Manager and serve to 

coordinate Responder Safety and Health among different entities both on-site and offsite. 

Environmental Health Environmental Health provides awareness training for safety and health hazards through 

a range of response activities and may also be exposed to on-site safety and health 

hazards. 

Critical Resource 

Logistics and 

Distribution 

Critical Resource Logistics and Distribution provides supply caches and/or 

agreements/contracts for the timely delivery of supplies, such as PPE, equipment, and 

trained personnel. 

Emergency Public Safety 

and Security Response 

Emergency Public Safety and Security Response provides protection for responders, but 

may also be exposed to on-site safety and health hazards. 
256 National Preparedness Guidelines 

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

Linked Capability Relationship 

Fire Incident Response 

Support 

Firefighters and support personnel will be exposed to safety and health hazards posed by 

the fires, as well as other on-site safety and health hazards. 

Emergency Triage and 

Pre-Hospital Treatment 

Responders performing triage and providing treatment will be exposed to safety and 

health hazards on-site. 

Explosive Device 

Response Operations 

Explosive Device Response Operations personnel will need protection from the safety 

and health hazards posed by the device, as well as from secondary safety and health 

hazards on-site. 

Search and Rescue 

(Land-Based) 

Search and Rescue personnel will be exposed to on-site safety and health hazards. 

WMD and Hazardous 

Materials Response and 

Decontamination 

Personnel responding to hazardous materials or WMD events and providing 

decontamination services will be exposed to on-site safety and health hazards. 
Target Capabilities 257

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

Direct 

Responder 

Safety and 

Health Tactical 

Operations

End: Return to normal 

duties

Activate 

Responder Safety 

and Health

Start: 

Indication of 

need for 

responders

On-Site Incident 

Management

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Need to protect responder safety and health

Identify Safety/

PPE Needs and 

Distribute PPE

Safety officer 

established

Request resources

Demobilize 

Responder Safety 

and Health

Conduct post-incident analysis of responder 

safety and health

Explosive Device 

Response 

Operations

Emergency 

Operations Center 

Management

Search and Rescue 

(Land-Based)

WMD/Hazardous 

Materials 

Response and 

Decontamination

Site/Incidnet 

Specific Safety 

and Health 

Training

Ongoing 

Monitoring of 

Responder Safety 

and Health

Provide results of environmental health assessment

Provider responder medical condition information

Environmental 

Health

Responders safety and 

health monitored

Provide identified safety and health resources 

Safety/PPE issues identified 

and appropriate PPE 

distributed

Provide site/incident 

specific training

Ensure responders’ safety

Area monitored for 

hazards

Inform of needs 

and safety issues

Provide information on safety conditions

Inform of needs and 

safety issues

Responders 

decontaminated

Decontaminate responders

Responder Safety and 

Health Capability Linked 

Capabilities Relationship

Capability Activity Process Flow

Provide sitreps

Provide safety 

inputs for IAP

Provide sitreps

Ensure 

responders’ safety

Critical Resource 

Logistics and 

Distribution

Resources provided

Emergency 

Public Safety and 

Security Response

Fire Incident 

Response Support

Emergency 

Triage and PreHospital 

Treatment
258 National Preparedness Guidelines 

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

Resource Element Description 

Resource Elements Components and Description

Type I Safety Officer As defined in the NIMS document, a member of the command staff responsible for 

monitoring and assessing safety hazards or unsafe conditions, and for developing 

measures for ensuring personnel safety. The Safety Officer monitors incident 

operations and advises the IC on all matters related to operational safety, including 

the health and safety of emergency responder personnel. May appoint Assistant 

Safety Officers as needed. 

Specialized Safety Officer Specialization needs determined by each Urban Area Security Initiative (UASI) 

region and county based on their own specialized hazards and risks (e.g., 

jurisdictions with nuclear reactors may need specialized Safety Officers trained in 

radiation/nuclear hazards.) 

Specialized subject matter 

experts 

To include Certified Industrial Hygienist, Public Health Service, radiological 

expert, biological expert, engineer, etc. 

Analytical laboratories Laboratory capability to analyze samples of any CBRNE agent per day and to 

provide supplemental field instruments for hazard detection/characterization 

Equipment caches To include PPE, monitoring/detection equipment 

Respiratory Fit-test Mobile 

Units 

Manufacturer approved mobile fit test units to allow for needed fit testing in the 

field 

Medical Unit See NIMS/FIRESCOPE for definitions 

Training centers Locations (including mobile units) to train (and maintain proficiency of) all 

responders up to minimum training requirements prior to an incident 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability factors were 

developed from an in-depth analysis of the aerosolized anthrax scenario. Other scenarios were 

reviewed to identify required adjustments or additions to the planning factors and national targets. 

 The jurisdiction may have limited Safety Officers with high-level expertise and experience in a 

specialized subject area, such as radiation, hazardous materials (HazMat), building/structure collapse, 

biohazard, and so forth. 

 Mental health services will be sought by victims and responders in and near the affected area, as well 

as (on a lesser scale) throughout the Nation. 

 Standards, training, and certification are limited for high-level (national-State) Safety Officers. 

 Various Federal and State safety and health laws and regulations and related national consensus 

standards may overlap with one another, conflict in their requirements, and have gaps in their 

requirements or coverage. This program assumes compliance with the Occupational Safety and 

Health Administration’s (OSHA) “HAZWOPER” standard (29 CFR 1910.120, as implemented by 

EPA or State authorities) and any other applicable Federal and State regulations. 

 The larger and/or more complex the incident, the more likely that the local initial first responders’ 

safety and health programs will be unable to cope effectively and will need outside assistance from 

regions, State and Federal agencies. 

 The more unusual or out of the ordinary the incident, the more likely the local initial first response 

safety and health programs will be less able to cope effectively and will need outside assistance from 

regions, State and Federal agencies. 
Target Capabilities 259

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

 Limited funding, staffing and levels of equipment will negatively impact an agency/jurisdiction’s 

ability to train and sustain appropriate levels of training. 

 The larger and/or more complex the incident, the more likely that the designation of a Safety Officer 

and Assistant Safety Officers will be needed. 

 The more unusual or out of the ordinary the incident, the more likely that the Safety Officer will need 

assistance Safety Officers and Safety SMEs and that outside assistance from private sector, academia, 

regions, State and Federal agencies will be needed. 

 The larger and/or more complex the incident, the more likely there will be a significant need for 

safety and health management at the incident scene(s). 

 With insufficient training or PPE, responders may become injured or ill. Responders cannot work 

due to lack of PPE or training. 

 Additional training and/or PPE may be needed to address new hazards/new employees. 

 The larger and/or more complex the incident, the more likely that there will be a significant need for 

safety and health management during demobilization. 

 The more unusual or out of the ordinary the incident, the more likely the demobilization plan will 

need outside assistance from the private sector, academia, regions, State and Federal agencies. 

 The affected jurisdiction may have limited, inappropriate, expired, or unserviceable PPE and training. 

 Respirator-fit test documentation, fit tests with the variety of equipment available at the time of the 

incident, and the capability to conduct fit testing during a disaster will be limited. Even if persons are 

fit tested at their home agency, proof may not be available onsite at a disaster requiring additional fit 

testing. 

 Cross-training in the use of dissimilar PPE is limited. Responders may not have appropriate training 

for the additional equipment available at the time of and issued at the scene of a major disaster to 

supplement their initial response cache; it may differ from their home agency equipment. 

 Immediate response organizations will be required to support the incident in its entirety until FederalState safety assets become available. 

 Local, regional, and State response agencies will have access to specialized resources from publicand private-sector agencies and academia. 

 Data enabling the recognition/characterization of hazards associated with the incident may not be 

immediately available. Field instrumentation and laboratory analysis may be necessary to fully 

characterize hazards. 

 All safety and health plans should be in place and enforced for day-to-day operations. Catastrophic 

incidents will cause the readdressing of day-to-day safety and health policies and plans caused by the 

scope, complexity, or uniqueness of the incident(s). 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Aerosol Anthrax) 

Resource Organization Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of 

Resources 

Needed 

Type I Safety Officer 1 per shift 3 shifts per day 3 per day 

Specialized Safety Officer(s)) 1 per team 

deployed 

20 teams deployed 20 
260 National Preparedness Guidelines 

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

Resource Organization Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of 

Resources 

Needed 

Specialized Subject Matter 

Experts 

i.e., 1 biological 

expert 

As required by 

incident 

Analytical laboratories 100 samples per 

day per laboratory 

500 samples per day 5 analytical labs 

Equipment caches 1 SCBA, PAPR or 

P100 respirator per 

shift per responders 

3 shifts/day 

3 days 

50 Responders @SCBA 

500 Responders @PAPR 

450 Responders @P100 

450 SCBAs 

4,500 PAPRs 

4,050 P100s 

Respiratory fit-test mobile units 1 per team 

deployed 

20 teams deployed 20 respiratory 

mobile fit test units 

Medical Unit 1 medical unit per 

5 teams deployed 

20 teams deployed 4 medical units 

Approaches for Large-Scale Events 

All response organizations would need to be included in a single incident command system (ICS). A 

single “all-hazards” Safety Officer is designated by the IC to manage all safety operations associated with 

the incident. Assistants (e.g. specialized Safety Officers, SMEs, employer representatives, employee 

representatives) to the Safety Officer are designated and made part of response teams. All employers 

whose personnel are involved in the response are represented in the safety management structure. 

Equipment caches are based on local quantities, regional quantities (through mutual aid), State caches 

(interstate mutual aid), and national caches (e.g., pre-positioned equipment program). Sources of 

equipment and notification/transportation of equipment have been addressed in advance. All responders 

need the specified training (e.g., technicians, operations, and specialists) prior to the incident. Federal 

responders would follow the National Response Plan (NRP), including the Worker Safety and Health 

Support Annex. State and local response plans include worker safety and health coordination that is 

consistent with the actions specified under the Worker Safety and Health Support Annex. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Type I Safety 

Officer 

NIMS 

Personnel 

300 Nationally Federal/State/ 

Local 

Activate Responder 

Health and Safety 

Identify 

Safety/PPE Needs 

and Distribute PPE 

to responders 

Ongoing 

monitoring of 
Target Capabilities 261

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Responder Health 

and Safety 

Demobilize

Specialized Safety 

Officer 

Non-NIMS 

Personnel 

400 Nationally Federal/State/ 

Local 

Identify 

Safety/PPE Needs 

and Distribute PPE 

to responders 

Ongoing 

monitoring of 

responder health 

and safety

Specialized Subject 

Matter Experts 

Non-NIMS 

Personnel 

800 Nationally Federal/State/ 

Local 

Identify 

Safety/PPE Needs 

and Distribute PPE 

to responders 

Ongoing 

Monitoring of 

Responder Health 

and Safety

Analytical 

laboratories 

Non- NIMS 

Resource 

Organization 

 150 Nationally Federal/State/ 

Local/Private 

Sector/ 

Academia 

Identify 

Safety/PPE Needs 

and Distribute PPE 

to responders 

Ongoing 

Monitoring of 

Responder Health 

and Safety 

Equipment caches Equipment Federal/State/ 

Local/Private 

Sector/ 

Academia 

Identify 

Safety/PPE Needs 

and Distribute PPE 

to responders 

Medical Unit NIMS 

Resource 

Organization 

1 One per incident, 

increased by scope, 

complexity and 

uniqueness 

Federal/State/ 

Local/Private 

Sector 

Ongoing 

Monitoring of 

Responder Health 

and Safety 

Training Centers Training 25 per State Federal/State/ 

Local/Private 

Sector/ 

Academia 

Develop and 

Maintain Training 

and Exercise 

Programs

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press 

Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. Worker Safety and Health Support Annex. U.S. Department of Homeland Security. 

December 2004 
262 National Preparedness Guidelines 

RESPOND MISSION: RESPONDER SAFETY AND HEALTH 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

5. OSHA Best Practices for Hospital-Based First Receivers of Victims from Mass Casualty Incidents Involving 

the Release of Hazardous Substances. Occupational Safety and Health Administration. January 2005 

http://www.osha.gov/dts/osta/bestpractices/firstreceivers_hospital.html. 

6. Crisis Counseling and Assistance Training Program Guidance. Substance Abuse and Mental Health Services 

Administration, National Mental Health Information Center. 2004. 

http://www.mentalhealth.samhsa.gov/cmhs/EmergencyServices/progguide.asp. 

7. Protecting Emergency Responders, Volume 3: Safety Management in Disaster and Terrorism Response. 

National Institute for Occupational Safety and Health/RAND. NIOSH Publication Number 2004–144. May 

2004. http://www.cdc.gov/niosh/docs/2004-144. 

8. NFPA 1500: Standard on Fire Department Occupational Safety and Health Program. National Fire Protection 

Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500. 

9. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents. National 

Fire Protection Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500. 

10. NFPA 1521, Standard for Fire Department Safety Officer. National Fire Protection Association, 2002 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1521 

11. NFPA 1581, Standard on Fire Department Infection Control Program. National Fire Protection Association, 

2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1581 

12. NFPA 1582, Standard on Comprehensive Occupational Medical Program for Fire Departments. National Fire 

Protection Association, 2003 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1582 

13. NFPA 1583, Standard on Health-Related Fitness Programs for Fire Fighters. National Fire Protection 

Association, 2000 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1582 

14. NFPA 1584, Recommended Practice on the Rehabilitation of Members Operating at Incident Scene Operations 

and Training Exercises. National Fire Protection Association, 2003 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1584 

15. Guidelines for HazMat/WMD Response, Planning and Prevention Training. Federal Emergency Management 

Agency. April 2003. http://www.wetp.org/Wetp/public/dwloads/HASL_1465dnlfile.PDF. 

16. DHS, Office for Domestic Preparedness. Metropolitan Medical Response System (MMRS) Program. 

http://fema.mmrs.gov. 
Target Capabilities List 263 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE 

EMERGENCY PUBLIC SAFETY AND SECURITY 

RESPONSE

Capability Definition 

Emergency Public Safety and Security Response is the capability to reduce the impact and consequences 

of an incident or major event by securing the affected area, including crime/incident scene preservation 

issues as appropriate, safely diverting the public from hazards, providing security support to other 

response operations and properties, and sustaining operations from response through recovery. Public 

Safety and Security Response requires coordination among officials from law enforcement, fire, and 

emergency medical services (EMS). 

Outcome 

The incident scene is assessed and secured; access is controlled; security support is provided to other 

response operations (and related critical locations, facilities, and resources); emergency public 

information is provided while protecting first responders and mitigating any further public risks; and any 

crime/incident scene preservation issues are addressed. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports Emergency Support Function (ESF) #13: Public Safety and Security. 

Preparedness Tasks and Measures/Metrics 

Activity: Plan for Public Safety and Security Response During Large-Scale, All-Hazards 

Events 

Definition: Review existing and/or develop new strategies, plans, procedures, programs, or 

systems to respond to large-scale, all-hazards events

Critical Tasks

Res.B3d 1.2 Review, revise, and develop public safety policies, protocols, and procedures to be implemented 

to effect a command and control structure, consistent with NIMS 

Res.B3d 1.2.2 Develop plans and procedures to ensure interoperable communications during public safety and 

security response 

Res.B3d 1.2.3.1 

Enter into interagency agreements and memoranda of understanding with appropriate 

surrounding agencies and jurisdictions, with the legal authority of the jurisdiction, to ensure 

adequate response and access to supplemental personnel 

Res.B3d 1.2.3.2 

Identify required resources and enter into contracts, as appropriate, to access and provide 

required resources during a crisis response to shelter, feed, and maintain a significant cadre of 

public safety and other related first responders 

Res.B3d 1.2.1 Review and improve, as appropriate, standard operating procedures for the notification and 

mobilization of public safety resources during a crisis response 
264 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE 

Res.B.3d 1.2.4 Review and improve, as appropriate, standard operating procedures for information sharing to 

the public, to the media, and to support agencies 

Res.B3d 1.4.1 

Review and improve existing planned evacuation routes and staging areas to determine sufficient 

public safety resources required to establish and maintain perimeters, safety zones, and public 

order as well as facilitate evacuations and/or sheltering-in-place activities 

Res.B3d 1.4.2 Review plans for decontamination sites and access to decontamination equipment, including 

personal protective equipment for responders 

Res.B3d 1.4.3 

Ensure hospital and medical supply resources, as well as other key infrastructure, have been 

identified, and agreements exist or are drafted regarding the maintenance of security at these 

facilities during a crisis response 

Res.B3d 1.4.4 

Review and develop as appropriate, in coordination with legal counsel, such as the city/county 

attorney’s and/or State Attorney General Office, policies regarding public safety enforcement 

actions required to maintain the public order during a crisis response, to include teams of 

enforcement officers for handling of persons disrupting the public order, violating laws, requiring 

quarantine, and so forth 

Res.B3d 1.4.1.1 Develop and document, in conjunction with correctional and jail officials, coordination strategies 

for managing and possibly relocating incarcerated persons during a crisis response 

Res.B3d 1.4.4.1 Identify and enter into agreements to secure the resources needed for the processing and 

temporary detention of law violators 

Res.B3d 1.4.2.1 Review existing and develop protocols as appropriate for the operation of decontamination sites, 

and out-processing areas 

Res.B3d 1.4.5 Establish a recovery strategy to access reimbursable opportunities, replenish supplies and 

equipment, re-assign personnel, and return to normal operation 

Preparedness Measures Metrics

Multi-disciplinary law enforcement and public safety agency planning teams have been 

established, per NIMS compliance. 

Yes/No 

Interoperable communications plans with all necessary parties are in place Yes/No 

Plans for providing security for the public and properties on and around an incident site are in 

place 

Yes/No 

Plans incorporate the anticipated security demands of government, non-government, and private 

sector stakeholders 

Yes/No 

Plans for supporting public safety in and around an incident site are in place Yes/No 

Plans include establishment of staging areas for law enforcement prior to entering site Yes/No 

Systems are in place or available to maintain accountability of personnel, track hot zone 

locations, and track resources 

Yes/No 

Plans for sheltering, housing, and feeding law enforcement personnel are in place Yes/No 

Plans for the post-incident provision of temporary prisoner holding facilities and arrest 

processing documentation are in place 

Yes/No 

Plans identify and provide for the resources necessary to maintain operations in an “all hazards” 

environment (e.g., electrical generators, personal protective equipment, communications 

equipment, etc.) 

Yes/No 

Plans address demobilization of public safety operations (replenishing supplies, re-assigning 

personnel) 

Yes/No 
Target Capabilities List 265 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE 

Activity: Determine appropriate training and exercises necessary to address gaps 

Definition: Review existing training programs. Compare needs and gaps against available 

training assets. 

Critical Tasks 

Res.B3d 2.1.1 

Identify gaps in personnel training at the awareness and first response operational level, to 

include familiarity with the expectations of and demands on the public safety responders as set 

forth in agency plans, protocols, and procedures for a crisis response 

Res.B3d 2.1.2 Identify existing training resources and opportunities available at the Federal, State, and local 

level 

Res.B3d 2.1.3 Develop a training strategy for all personnel 

Res.B3d 2.2.1 

Develop a strategy, in coordination with area jurisdictions, to participate in and/or conduct 

exercises which incorporate all existing response requirements, identify gaps, develop 

improvement plans, and implement preparedness enhancements 

Preparedness Measures Metric

Percent of public safety and security personnel trained at the awareness level 100% 

Percent of public safety and security personnel identified in the training strategy as 

requiring training at the operational level are trained 

100% 

Frequency with which exercises to test public safety and security operations are 

conducted 

Every 12 months 

Performance Tasks and Measures/Metrics 

Activity: Command and Control Public Safety and Security Response Operations 

Definition: In response to a notification for security assets, establish the management and 

coordination of the Public Safety and Security Response, from activation through to 

demobilization

Critical Tasks

Res.B3d 3.1.1 Identify personnel needed to maintain security support and response 

Res.B3d 3.1.3 Establish staging areas for law enforcement to conduct deputization, personnel assignment, and 

briefing prior to entering the impacted area. 

Res.B3d 3.5 Communicate with other response agencies regarding public safety response 

Res.B3d 3.1.2 Deploy appropriate personnel for public safety and security 

Res.B3d 3.1.2 Deploy appropriate relief personnel for public safety and security 

Res.B3d 3.2 Coordinate public safety and security operations with Incident Command/Unified Command 

Res.B3d 3.3.3 Arrange for shelter, housing, and feeding for law enforcement responders 

Res.B3d 3.3.2 Arrange for proper sheltering, care, and feeding of detainees 

Res.B3d 3.3.4 Utilize available technologies to maintain accountability of personnel, track hot zone locations, 

and track resources 
266 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE 

Performance Measures Metric

Time in which safety and security plans and procedures are implemented Within 1 hour from incident 

Percent of first responders at the incident receiving communication about the sitesafety plan 100% 

Time in which sufficient relief personnel are deployed to maintain public safety 

throughout a long-term incident (relief needed is estimated at 50 percent of total 

uniformed (patrol) staffing of a jurisdiction having primary responsibility for the 

incident) 

Within 12 to 15 hours from 

initial deployment 

Accountability is maintained, hot zone locations are track, and resources are 

tracked 

Yes/No 

Activity: Activate Public Safety and Security Response 

Definition: Upon notification, mobilize and deploy to begin operations

Critical Tasks

Res.B3d 4.1 Conduct a public safety and security response 

Res.B3d 4.1.3 Establish or integrate into Incident Command/Unified Command (IC/UC) 

Res.B3d 4.1.1 Coordinate and receive instructions from tactical operations 

Res.B3d 4.1.2 Ensure that responders have the appropriate equipment to perform assigned tasks 

Performance Measures Metric

Time in which sufficient personnel to perform public safety and security duties are 

deployed 

Small local incidents: use on-duty and mutual aid personnel 

Large-scale incidents: Target should be equal to 50 percent of total uniformed (patrol) 

staffing of jurisdiction having primary responsibility for the incident 

Within 12 hours from 

initial deployment 

Percent of responding public safety personnel who are self-sufficient (bring their own 

sleeping/eating/ restocking supplies) for a period up to 7 days 

100% 

Activity: Assess the Incident Scene and Secure the Area 

Definition: Upon arriving on scene, assess for immediate rescue needs, for remaining safety and 

security threats, and initiate security operations. Identify and implement protective actions for 

high priority key facilities or resources that may require heightened security.

Critical Tasks

Res.B3d 5.1 Secure the incident site 

Res.B3d 5.2.2 Determine the appropriate emergency medical personnel to respond on-site for injuries and 

fatalities 

Res.B3d 5.1.1 Identify and establish inner most incident/crime scene perimeters 
Target Capabilities List 267 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE 

Res.B3d 5.1.2 Document observations regarding the affected area 

Res.B3d 5.1.3 Report findings to IC/UC upon deployment of specialized LE teams 

Res.B3d 5.2.3 Develop and maintain a rapid intervention group to respond to unexpected occurrences 

Performance Measures Metric

Time in which the incident site is secured Within 30 minutes from initial 

units arrival on scene 

Hot, warm, and cold zones are identified and segregated Yes/No 

On scene personnel accountability system is implemented Yes/No 

Activity: Control Traffic, Crowd, and Scene 

Definition: Direct/redirect traffic and pedestrians out of the affected area(s). Assess, coordinate, 

and establish force protection and perimeter zones, maintain a visible and effective security 

presence to deter criminal conduct and maintain law and order 

Critical Tasks

Res.B3d 6.1 Identify and establish an incident perimeter and zones 

Res.B3d 6.1.1 Identify security zone requirements 

Res.B3d 6.2 Establish force protection capacity integrated within incident command system (ICS) 

Res.B3d 6.2.1 Provide force protection for emergency response personnel to allow them to operate safely 

Res.B3d 6.1.3 Provide and plan for access to the site for skilled support personnel 

Res.B3d 3.4 Implement and maintain an on-scene personnel identity management system 

Res.B3d 6.2.5 Secure animals during an animal health emergency 

Res.B3d 6.1.2 Identify and secure critical sites, including hospital, shelters, points of distribution (PODs) etc. 

Res.B3d 6.2.2 Plan and provide protection and security for unoccupied/evacuated properties within and around 

the incident site 

Res.B3d 6.3 Control traffic and crowds 

Performance Measures Metric

Percent of incident site control zones/points that are clearly identified and staffed 100% 

Perimeter zones are coordinated jointly by hazardous materials personnel, 

fire/rescue, and law enforcement 

Yes/No 

Time in which all traffic control and alternative ingress/egress routes are identified 

and staffed 

Within 30 minutes from 

initial units arrival on scene 

Percent of new or secondary injuries to the public and first responders at or around 

the incident site 

0% 

Percent of damaged buildings and debris blocking emergency response 100% 
268 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE 

ingress/egress removed 

Time in which stoppage of all non-critical cargo and passenger rail, maritime, and 

highway transportation into incident area is coordinated 

Within 1 hour from incident 

Activity: Maintain Public Order

Definition: Provide a visible law enforcement presence at key locations within the affected area. 

Protect people and property, and deter criminal activity 

Critical Tasks

Res.B3d 7.1 Assess situation for public order related concerns 

Res.B3d 7.3 Implement plans for Emergency proclamations, martial law, curfew declarations, and other legal 

issues 

Res.B3d 7.1.1 Conduct an initial reconnaissance of the area 

Res.B3d 7.2 Coordinate with appropriate unit and develop a plan of action 

Res.B3d 7.4.1 Conduct tactical deployment 

Res.B3d 7.4.2 Use tactical operations teams to conduct searches of high priority unsecured sites to establish 

security and detain lawbreakers as necessary 

Res.B3d 7.5 Maintain security operations 

Res.B3d 7.1.2 Request assets required to provide security 

Res.B3d 7.5.1 Provide security for public officials and investigation teams 

Res.B3d 7.5.2 Institute and conduct security operations controlling personnel who are allowed to enter damaged 

and condemned buildings and the contents that they are allowed to remove 

Performance Measures Metric

Time in which search and/or apprehension procedures are initiated and conducted Within 30 minutes from the 

notification or witnessing of 

suspected criminal activity 

Activity: Conduct Law Enforcement Operations

Definition: Upon notification or suspicion of criminal activity, identify, and take appropriate 

enforcement action with lawbreakers at or around the incident site

Critical Tasks

Res.B3d 8.1 Coordinate with investigators to interview witnesses/bystanders in order to identify suspects 

Res.B3d 7.4.2 Use tactical operations teams to conduct searches of high-priority unsecured sites to establish 

security and detain lawbreakers as necessary 

Res.B3d 8.3 Make arrests as necessary 

Performance Measures Metric
Target Capabilities List 269 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE 

Appropriate and timely enforcement action are taken Yes/No 

 

Activity: Manage Criminal Justice Population

Definition: Manage criminal justice population to include incarcerated persons, those under 

criminal justice supervision, and tactically arrested individuals in the affected area

Critical Tasks

Res.B3d 9.1 Establish mobile arrest and processing sites for arrestees 

Res.B3d 9.1.1 

Provide space in mobile arrest and processing site/area for: finger printing and photos, desk 

space, interview area, property storage, secure storage for valuables and/or evidence, isolation 

area for violent detainees, and secure area for vehicles 

Res.B3d 9.2.1 Process those arrested (photos, fingerprinting) and document arrests 

Res.B3d 9.2.2 Set up improvised holding cells to manage detainees 

Res.B3d 9.2.3 Detain those arrested (in improvised holding cells) 

Res.B3d 9.2.3.1 Provide detainee supervision 24/7 for the length of the incident 

Res.B3d 9.2.3.2 Ensure holding facilities have provisions for food, access to drinking water and toilet facilities, 

and trash removal 

Res.B3d 9.2.3.3 Establish system for documenting, securing, storing, transporting, and releasing detainee 

property 

Res.B3d 9.2.3.4 Establish system to track detainee movement – in-coming, transfers, and releases 

Res.B3d 9.2.3.5 Distribute notification of the destination holding facility 

Res.B3d 9.2.3.6 Provide space for Prosecutors/Public Defenders to meet with operations staff and/or detainees 

Res.B3d 9.2.4 Transport detainees to secure lock-up facility 

Res.B3d 9.2.5 Ensure that established procedures for transfer of detainees during major emergencies are 

followed 

Res.B3d 9.3.1 Designate alternate facilities to ensure continued operations by local, tribal, State, and Federal 

prosecutors/public defenders 

Res.B3d 9.3.2 Set up improvised court facilities to ensure local, tribal, State, and Federal court services 

continue 

Res.B3d 9.3.3 Implement protocols for contacting appropriate parole/probation agencies of any changes in 

residency status 

Res.B3d 9.3.4 Establish protocols for alternate housing facilities for local, State, and Federally incarcerated 

prisoners 

Res.B3d 9.3.5 Establish equipment lists and mobile booking kits and store at strategic locations 

Res.B3d 9.3.5.1 Inventory mobile booking kits on a regular basis to ensure that equipment and materials have not 

been removed or damaged and remain in working order 

Res.B3d 9.3.6 Ensure the capacity to run records checks for warrants, holds on detainees, and terrorist lists 
270 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE 

Performance Measures Metric

Time in which an arrest processing team is identified and equipped to 

intake, process, and document a large number of arrests 

Within 1 hour from initial 

deployment 

Time in which temporary holding cells for those arrested are coordinated 

and established 

Within 2 hours from initial 

deployment 

Time in which prisoner transport is coordinated and established Within 2-4 hours from initial 

deployment 

Time in which alternate facilities for prosecutor/public defenders are 

coordinated and established 

Within 2 hours from initial 

deployment 

Time in which alternate facilities for court services are coordinated and 

established 

Within 2 hours from initial 

deployment 

Time in which alternate housing facilities for local, State, Federally 

incarcerated prisoners are coordinated and established 

Within 1 hour from initial 

deployment 

 

Activity: Demobilize Public Safety and Security Response Operations 

Definition: Return to normal operations

Critical Tasks

Res.B3d 10.1.1 Clear the incident scene upon completion of assigned temporary duties, or as directed by 

superiors 

Res.B3d 10.1.2 Return local forces to regular service 

Res.B3d 10.1.3 Recall temporary assistance resources to staging areas for out processing 

Res.B3d 10.3 Conduct decontamination of all out processing personnel and equipment 

Res.B3d 10.3.1 Identify public safety and security assets required for decontamination activities 

Res.B3d 10.3.2 Coordinate with hazmat personnel to establish decontamination sites 

Res.B3d 10.3.3 Coordinate with hazmat personnel to decontaminate affected public safety facilities and 

equipment 

Res.B3d 10.2.1 Debrief all out processing personnel 

Res.B3d 10.4.1 Activate reimbursement process for public safety and security resources 

Res.B3d 10.4.2 Receive and process reimbursement requests 

Res.B3d 10.4.3 Process compensation claims and related administrative activities 

Res.B3d 10.5.1 Rehabilitate and replenish public safety and security resources 

Res.B3d 10.5 Reconstitute personnel and equipment 

Res.B3d 10.2.2 Participate in incident debriefing 

Res.B3d 10.1.4 Identify staff needs dependant upon their upon their level of involvement and/or hours 

committed to the incident 
Target Capabilities List 271 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE 

Res.B3d 10.2 Decontaminate, debrief, and out-process law enforcement personnel prior to leaving the 

impacted area 

Performance Measures Metric

Time in which public safety personnel are restored to normal or original operations Within 12 hours from start of 

demobilization 

Percent of public safety and security response personnel debriefed 100% 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

Emergency Public Safety and Security Response provides the notification of the need 

for other capabilities to On-Site Incident Management, and they both provide 

situation reports to each other 

Fire Incident Response 

Support 

Emergency Public Safety and Security Response provides force protection to Fire 

Incident Response Support, while Fire Incident Response Support reports security 

issues to Emergency Public Safety and Security Response 

WMD and Hazardous 

Materials Response and 

Decontamination 

Emergency Public Safety and Security Response provides force protection to WMD 

and Hazardous Materials Response and Decontamination, while WMD and 

Hazardous Materials Response and Decontamination reports security issues to 

Emergency Public Safety and Security Response 

Explosive Device Response 

Operations 

Emergency Public Safety and Security Response provides force protection to 

Explosive Device Response Operations, while Explosive Device Response 

Operations reports security issues to Emergency Public Safety and Security Response 

Emergency Triage and PreHospital Treatment Emergency Public Safety and Security Response provides force protection to 

Emergency Triage and Pre-Hospital Treatment, while Emergency Triage and PreHospital Treatment reports security issues to Emergency Public Safety and Security 

Response. 

Search and Rescue (LandBased) Emergency Public Safety and Security Response provides force protection to Search 

and Rescue (Land-Based), while Search and Rescue (Land-Based) reports security 

issues to Emergency Public Safety and Security Response. 

Counter-Terror 

Investigation and Law 

Enforcement 

Emergency Public Safety and Security Response provides information on suspected 

terrorist activity to Counter-Terror Investigation and Law Enforcement 

Isolation and Quarantine Emergency Public Safety and Security Response provides perimeter security to 

Isolation and Quarantine 

Emergency Operations 

Center Management 

Emergency Public Safety and Security Response provides perimeter security to EOC 

Management 

Mass Prophylaxis Emergency Public Safety and Security Response provides perimeter security to Mass 

Prophylaxis 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Emergency Public Safety and Security Response provides perimeter security to Mass 

Care 

Fatality Management Emergency Public Safety and Security Response provides perimeter security to 
272 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE 

Linked Capability Relationship 

Fatality Management 

Citizen Evacuation and 

Shelter-In-Place 

Emergency Public Safety and Security Response provides traffic control to Citizen 

Evacuation and Shelter-In-Place, and coordinates the evacuation of incarcerated 

populations 
Target Capabilities List 273 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE 

Command and 

Control Public 

Safety and 

Security 

Response 

Operations

End: Tour ended or 

returned to service

Activate Public 

Safety and 

Security Response

Start: Indication 

of incident or 

major event

Citizen 

Evacuation and 

Shelter-in-Place

Planning

Logistics

Comm.

Coordinate

Supervise

Safety

Resource 

Requests

Isolation and 

Quarantine

Unit(s) dispatched

Assess the 

Incident Scene 

and Secure the 

Area

Control Traffic, 

Crowd, and Scene

Conduct Law 

Enforcement 

Operations 

Manage Criminal 

Justice Population

Demobilize Public 

Safety and 

Security Response 

Operations

Emergency 

Operations 

Center 

Management

Search and 

Rescue (LandBased)

Explosive Device 

Response 

Operations

Mass 

Prophylaxis

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)

Fatality 

Management

WMD/Hazardous 

Materials 

Response and 

Decontamination

On-Site Incident 

Management

Yes

No

Send initial report and resource requests

Provide situation report

Initial perimeter 

established

Scene declared safe 

for general use

Suspect(s) 

apprehended

Transport to 

secure lockup 

facility

Request appropriate 

transport unit(s)

Officers released from scene

Provide traffic control

Provide 

perimeter security

Provide force protection

Security issues reported

Ready to secure area

Provide sitreps

Is criminal 

activity 

suspected?

Notify of need for other 

capabilities

Inform of suspected

terrorist activity

Emergency Public Safety and 

Security Response

Capability Activity Process Flow

Relationship Linked 

Capabilities

Maintain Public 

Order

Law enforcement 

presence established

Fire Incident 

Response Support

Emergency 

Triage and PreHospital 

Treatment

Counter-Terror 

Investigation and 

Law Enforcement
274 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE 

Resource Element Description 

Resource Elements Components and Description 

Law Enforcement officers for 

crowd control 

Uniformed/sworn, reserve, volunteer, and in-training officers to control a 

large crowd in a high-density area 

Law Enforcement officers for 

traffic control 

Uniformed/sworn, reserve, volunteer, and in-training officers to control 

traffic from entering and leaving the affected areas. 

National Guard To augment crowd control, traffic control, and hard target security. 

Private security company personnel Supplement personnel to allow local law enforcement to perform law 

enforcement duties 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Radiological Dispersal Device scenario. Other 

scenarios were reviewed to identify required adjustments or additions to the planning factors and 

national targets.

 This capability applies to a wide range of incidents and emergencies, including accidental or 

deliberate disease outbreaks, natural disasters, and nuclear and conventional events. 

 If the catastrophic incident results from terrorism, the Homeland Security Advisory System (HSAS) 

level will likely be raised regionally, and perhaps nationally. Elevation of the HSAS level requires 

additional local, State, and Federal security enhancements that may affect the availability of certain 

response resources. 

 Police will be needed to direct traffic away from the contaminated area, prevent access to the 

contaminated area, and support movement of the population out of the contaminated area. 

 Looting and/or damaging to unattended properties, especially shops and stores by armed hooligans 

and criminals should be considered. 

 Public safety personnel will need to support the evacuation, sheltering, and protection of downwind 

populations. 

 Public safety personnel will support the movement of approximately 35,000 people to shelters. 

Temporary housing will be needed. 

 A decontamination process must be set up. Public safety personnel will be needed to support 

movement of the population in and out of the decontamination area. 

Scenario-Specific 

 The use of a radiological dispersion device (RDD) would have local implications on the public safety 

and security response teams. The assumption is that an RDD would be dispersed within a downtown 

or highly populated areas. With Washington, D.C., as an example, there are approximately 200–250 

people in a single block. If this RDD were to affect an area of 36 blocks or more, 7,500–9,000 people 

would be affected. It is likely that local, State, and Federal law enforcement agencies would share 

resources to help contain the area and aid in crowd control for a high population such as this. Yet the 

States would have to balance the resources between preventing affected personnel from entering into 

other portions of the State by leaving the site. 
Target Capabilities List 275 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Law enforcement 

officers for crowd 

control 

Capacity to control a 

large crowd within a 

downtown area 

Sufficient numbers to regulate 

approximately 200 people per 

36 blocks 

Sufficient uniformed/sworn, 

reserve, volunteer, and intraining officers to accomplish 

the task 

80% of officers will come from 

local sources and 20% will 

come from State sources. 

Law enforcement 

officers for traffic 

control 

Capacity to control 

traffic from both 

entering and leaving 

the affected areas 

Sufficient numbers to regulate 

approximately 7,000 people, 

depending on automobile 

traffic or mass transit numbers 

Sufficient uniformed/sworn, 

reserve, volunteer, and intraining officers to accomplish 

the task 

National Guard Capacity to 

supplement local and 

regional law 

enforcement agencies 

Sufficient to allow local law 

enforcement to perform law 

enforcement duties 

Appropriate guards to augment 

law enforcement personnel for 

crowd control, traffic control, 

and hard target security (at the 

World Trade Center, 8,500 

were deployed within 24 hours 

from the attacks) 

Private security 

company personnel 

Capacity to 

supplement local and 

regional law 

enforcement agencies 

Sufficient to allow local law 

enforcement to perform law 

enforcement duties 

Appropriate numbers to 

supplement law enforcement 

personnel for limited traffic 

control and provide target 

security for private sector sites 

Approaches for Large-Scale Events 

To avoid duplication of resources, chemical, biological, radiological, nuclear, or explosive (CBRNE) and 

law enforcement resource organizations should cross-train with other capabilities and foster cross-border 

cooperation. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Law Enforcement 

Officers for Crowd 

Control 

Personnel As Needed Per Incident State/Local Secure Area 

Control traffic, 

crowd and scene
276 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Law enforcement 

officers for traffic 

control 

Personnel As Needed Per Incident State/Local/ 

NGO 

Secure Area 

Control traffic, 

crowd and scene

National Guard Federal 

Resource 

Organization 

As Needed Per State State Secure Area 

Control traffic, 

crowd and scene

Private security 

company personnel 

Personnel As Needed Per Incident State/Local Control traffic, 

crowd and scene 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press 

Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. June 2003. 

http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf. 

5. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

6. Compendium of Federal Terrorism Training for State and Local Audiences. Federal Emergency Management 

Agency and U.S. Department of Homeland Security. 2004. 

http://www.fema.gov/compendium/index.jsp. 

7. 2004 Emergency Response Guidebook: A Guidebook for First Responders during the Initial Phase of a 

Dangerous Goods/Hazardous Materials Incident. U.S. Department of Transportation. 

http://HazMat.dot.gov/pubs/erg/erg2004.pdf. 

8. Catalog of Training Programs, 2005–2006. U.S. Department of Homeland Security, Federal Law Enforcement 

Training Center (FLETC). 2003–2004. http://www.fletc.gov/cotp.pdf. 

9. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

10. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program, 

http://mmrs.fema.gov.
Target Capabilities List 277 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

ANIMAL DISEASE EMERGENCY SUPPORT 

Capability Definition 

Animal Disease Emergency Support is the capability to protect, prevent, detect, respond to, and recover 

from threats and incidents that would result in the disruption of industries related to U.S. livestock, other 

domestic animals (including companion animals) and wildlife and/or endanger the food supply, public 

health, and domestic and international trade. It includes the ability to respond to large-scale national and 

regional emergencies as well as to smaller-scale incidents through rapid determination of the nature of the 

event, initiation of the appropriate response, containment of the disrupting effects, and facilitation of 

recovery. 

Outcome 

Foreign animal disease is prevented from entering the United States by protecting the related critical 

infrastructure and key assets. In the event of an incident, animal disease is detected as early as possible, 

exposure of livestock to foreign diseases is reduced, immediate and humane actions to eradicate the 

outbreak are implemented, public and animal health and the environment are protected, continuity of 

agriculture and related business is safely maintained and/or restored, and economic damage is minimized. 

Trade in agricultural products and domestic and international confidence in the U.S. food supply are 

safely maintained or restored. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs) and Annexes: 

ESF #1: Transportation (movement of supplies, equipment and carcasses) 

ESF #2: Communications 

ESF #3: Public Works (debris removal) 

ESF #5: Emergency Management 

ESF #6: Mass Care (animal housing) 

ESF #7: Resource Support 

ESF #8: Public Health and Medical Services 

ESF #10: Oil and Hazardous Materials Response (Environmental Protection) 

ESF #11: Agriculture and Natural Resources 

ESF #13: Public Safety and Security 

ESF #14: Long-Term Community Recovery and Mitigation 

ESF #15: External Affairs 

Biological Incident Annex 

Terrorism Incident Law Enforcement and Investigation Annex 

Interim/Draft: Food and Agriculture Incident Annex 
278 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems

Critical Tasks

Res.B2d 1.1 Plan and prepare to safeguard animal health 

Res.B2d 1.1.1 Develop animal safety and security plans, programs, and agreements 

Res.B2d 1.5 Develop plans, procedures, protocols, and systems for control of large scale animal disease 

events 

Res.B2d 1.6 Develop plans, procedures, and protocols for long-term animal health care 

Res.B2d 1.5.7 Develop protocols for disposing of infectious agricultural waste 

Res.B2d 1.5.5 Develop plans to collect and dispose of infected material to reduce the spread of animal disease 

Res.B2d 6.1 Implement programs to safeguard animal health 

Res.B2d 1.3 Develop plans, procedures, and policies for coordinating, managing, and disseminating public 

information 

Pre.B2c 1.1 Facilitate the development of processes to improve security at key points and at access points of 

critical infrastructure 

Pre.B2a 1.2 Facilitate the development of processes to improve cargo security and screening capabilities 

Rec.A2b 3.2 Manage community assistance programs 

Rec.C3b 1.1 Develop community recovery, mitigation, and economic stabilization plans, programs, and 

procedures 

Pre.A1a 5.4 Collect information about threats to the Nation’s food supply 

Pro.A1a 5.3.2 Conduct vulnerability assessments to assess vulnerability of potential targets to identified threats 

Pro.B1b 4 Conduct surveillance for food and agriculture safety and defense 

Pre.A1a 3.5.7 Evaluate intelligence and surveillance activities 

Pre.A2a 5.2 Prioritize threats 

Pre.A1a 3.5.6 Conduct surveillance and information collection and produce intelligence 

Pre.B3a 4 Conduct border control operations 

Pre.A1e 3.2.1.4 Inspect materials for potential Chemical, Biological, Radiological, Nuclear, and Explosive 

(CBRNE) weapons or precursors 

Pre.B3a 3.1 

Use advanced information, targeting and technology on the ground, on the water, and in the air to 

prevent the entry of terrorists, terrorist weapons, and other high-risk people and goods between 

and among States, Tribes, and international trade partners 

Pro.A1a 4 Identify critical infrastructure and key assets within the Nation, region, State, or local area 

Pro.A1a 5.5.2 Map threat analysis against critical infrastructure to identify and analyze infrastructure asset 

vulnerabilities and critical risk 
Target Capabilities List 279 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Pro.A1a 5.2 Conduct consequence analysis of critical assets and key resources 

Pro.A2a 4.7 Implement deterrence and defense protection measures 

Pro.A3a 4.1.1 Implement detection measures such as inspection surveillance, employee monitoring, and 

security counterintelligence 

Preparedness Measures Metrics

Animal disease emergency support plans include a formal process for activating support 

resources 

Yes/No 

Animal welfare organizations (e.g. ASPCA, Humane Society) and other related 

stakeholders are involved in animal disease emergency planning process. 

Yes/No 

Animal disease emergency plans include provisions for animal welfare Yes/No 

Animal disease emergency plans address transportation of live animals, carcasses, people, 

pharmaceuticals, and equipment while ensuring bio-security. 

Yes/No 

Animal disease emergency plans address procedures for the reduction of the spread of 

animal diseases (e.g. disposal of contaminated waste, euthanasia of infected animals). 

Yes/No 

State Veterinary Service is capable of and authorized to record biological, physical, and 

chemical agents that can adversely affect animals and their related products 

Yes/No

State Veterinary Service is capable of and authorized to rapidly respond to unexpected 

pest or disease incursion or other situations that put at immediate risk the sanitary status 

of the animal populations 

Yes/No

State Veterinary Service is capable of and authorized to prevent the entrance and spread 

of unwanted pests and diseases in the State 

Yes/No

State Veterinary Service is capable of and authorized to determine, monitor, and verify 

the sanitary status of the populations covered under its mandate 

Yes/No

State Veterinary Service is capable of and authorized to identify in advance those sanitary 

problems covered under its mandate, including animal and public health, the environment, 

or the trade of animals or their related products 

Yes/No

State Veterinary Service is capable of and authorized to update overall service in 

accordance with the latest scientific advances and based on the sanitary norms and 

measures of USDA-APHIS, OIE, Codex Alimentarius and the WTO/SPS agreement 

Yes/No

State Veterinary Service is capable of and authorized to inform, in an effective and timely 

fashion, its users of activities, programs, and sanitary developments 

Yes/No

State Veterinary Service is capable of and authorized to ensure that users are in 

compliance with the regulatory norms covered under its mandate 

Yes/No

State Veterinary Service is capable of and authorized to formulate and adopt regulatory 

norms for processes and products covered under its mandate 

Yes/No

State Veterinary Service is capable of and authorized to ensure national regulatory norms 

covered under its mandate in line with national and international norms, guidelines, and 

recommendations 

Yes/No

State Veterinary Service is capable of and authorized to negotiate, implement, and 

maintain equivalency agreements with other States and USDA on veterinary norms and 

processes under its mandate 

Yes/No

State Veterinary Service is capable of and authorized to track history, location, and 

distribution of animals and their related products covered under its mandate 

Yes/No
280 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

State Veterinary Service is capable of and authorized to notify USDA of its State 

regulations and sanitary status, in accordance with the procedures established by USDA 

Yes/No

National Veterinary Services Laboratory (NVSL), all National Animal Health Laboratory 

Network (NAHLN) laboratories, and all State veterinary diagnostic laboratories have 

capacity to process diagnostic samples 

Yes/No

Plans address the processes for investigating animal disease emergency threats (e.g. 

tracing affected animals to determine source, destination, and disposition,: obtaining 

samples for lab testing) 

Yes/No 

Mechanisms for ensuring an early report on suspicious cases (as economic incentives) are 

in place 

Yes/No

National animal, plant, and health surveillance plan is in place Yes/No 

Animal disease emergency plans address the dissemination of accurate, timely, accessible 

information to public, media, support agencies and vendors 

Yes/No 

Communications messages and methods and a plan for dissemination were developed 

before the outbreak 

Yes/No 

Processes are in place to obtain information for tracking the history, location, distribution 

of animals and their related products. 

Yes/No 

Animal disease emergency plans address demobilization (e.g. return personnel and 

equipment to normal operations, complete documentation, coordinate long-term support). 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B2d 2.1.4 Conduct training and exercise programs for distribution of prophylaxis for animal health 

Res.B2d 2.1.2 

Develop and implement training and procedures to enable local veterinary communities to 

recognize exposure to CBRNE materials, and to use tools and equipment to detect the presence 

of CBRNE materials 

ComF 3.2.1 Train the public to be aware and to report suspicious items and behavior 

Preparedness Measures Metric

Personnel are proficient in delivering just-in-time training at the Federal, State, and local 

levels 

Yes/No 

Plan has been developed for supplies and/or equipment to be available for an FMD 

outbreak in order to enter, store, and retrieve information from the field and at the 

coordination center 

Yes/No 

Plan has been developed for supplies and/or equipment to be available for an FMD 

outbreak in order to euthanize animals while meeting optimal humane standards to level 

described in performance objectives 

Yes/No 

Plan has been developed for supplies and/or equipment to be available for an FMD 

outbreak in order to move live animals, carcasses, people, pharmaceuticals, and 

equipment within, between, and among quarantine zones while ensuring biosecurity 

Yes/No 

Supplies distribution plan is developed before an incident Yes/No 

HSEEP-compliant exercises to test animal disease emergency support operations have 

been conducted 

Yes/No 
Target Capabilities List 281 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Performance Tasks and Measures/Metrics 

Activity: Direct Animal Disease Emergency Support Tactical Operations 

Definition: In response to a notification of an animal disease, provide the overall management and 

coordination of the epidemiological investigations and animal control measures to eradicate the 

disease

Critical Tasks

Res.B2d 3.2 Implement plans and procedures for animal health response 

Res.B2d 3.3.1 Coordinate animal-health emergency response operations 

Res.B2d 3.3.3 Coordinate and provide regional and State resources and procedures for the response to an 

outbreak of highly contagious animal and plant diseases 

Res.B2d 3.5.1 Conduct internal communications for animal health response 

Res.B2d 3.3.2 Coordinate animal safety and biosecurity response 

Res.B2d 3.3 Provide coordination and support for animal health care through the Incident Command System 

(ICS) 

Res.B2d 3.3.4 Coordinate animal health disease outbreak assessment activities 

Res.B2d 3.6 Provide coordination and support for implementation of a local, regional, or national distribution 

system for mass animal therapeutics and vaccination program 

Res.B2d 3.5.3 Coordinate emergency public information regarding animal health issues through the Joint 

Information System (JIS) 

Res.B2d 3.5.2 Exchange and disseminate data as necessary for appropriate animal treatment 

Res.B2d 3.5.5 Coordinate site clean-up 

Res.B2d 3.8 Provide personal protective equipment (PPE) to personnel involved in animal health response 

site operations and clean-up 

Res.B2d 3.3.4.1 Coordinate epidemiological investigations and lab testing for disease outbreaks 

Res.B2d 3.5 Establish and maintain information systems across animal-health related response entities 

Pro.B1b 3.4.1 Coordinate food and agriculture emergency management plans at the local, State, and national 

levels 

Pro.B1b 3 Direct and coordinate food and agricultural safety and defense operations 

Res.B1c 8.4 Coordinate transportation response 

Res.B2d 3.6.1 Allocate, mobilize, and manage resources for animal health operations 

Res.B2d 3.6.2 Track and report resources for animal health operations 

Performance Measures Metric

Time in which cleaning and disinfection is carried out on premises on which 

FMD is presumed or confirmed to exist 

Within 48 hours from being so 

identified 
282 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Time in which wildlife management plan is developed Within 48 hours from the 

identification of the first presumptive 

positive premises 

Time in which a dedicated communications network outside the incident 

command system (ICS) is established 

Within 7 days from the outbreak 

Time in which an assessment of the risk wildlife poses to the transmission 

of a foreign animal disease is conducted 

Within 7 days from confirmation of 

the first positive premises 

Time in which research into alternative disease control strategies is initiated Within 7 days from confirmed 

diagnosis 

Time in which a fair market value indemnity is provided to owners of 

destroyed animals and materials 

Within 72 hours from destruction 

Activity: Activate Animal Disease Emergency Support

Definition: In response to a notification of animal disease, respond, mobilize, and arrive on scene 

to begin emergency veterinary operations

Critical Tasks 

Res.B2d 4.1 Activate animal health operations 

Res.B2d 4.2 Establish and maintain animal health response communication systems across responsible 

entities 

Res.B2d 4.3 Monitor and coordinate response team’s possessions and deliveries of needed supplies 

Performance Measures Metric 

Time in which plans are implemented in accordance with the National 

Response Plan (NRP/NIMS) 

Within 24 hours from establishing 

an incident command 

Time in which communications plan is implemented Within 24 hours from presumptive 

diagnosis 

Time in which sufficient veterinary medical field staff and other resources 

(veterinarians, animal health technicians, disease specialists, and veterinary 

diagnostic labs) are deployed for 3 weeks at a time 

Within 24 hours from confirmed 

diagnosis 

Time in which need for logistical support to aid the operation is identified Within 48 hours from presumptive 

diagnosis 

Activity: Conduct Animal Health Epidemiological Investigation & Surveillance

Definition: Conduct investigations and surveillance of animal populations to determine the 

sources of an animal disease outbreak, the potentially infected animal populations, and verify the 

elimination of the disease. 

Critical Tasks 

Res.B2d 5.2 Conduct ongoing monitoring and surveillance of agricultural and animal health safety and 

security 

Res.B2d 5.1 Conduct epidemiological investigation as surveillance reports warrant and coordinate Federal, 
Target Capabilities List 283 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

State, and local veterinary assets/services 

Res.B2d 5.3 Coordinate Federal, State, and local veterinary assets/services 

Res.B2d 5.1.7 Determine whether foreign animal disease agent is intentional or accidental 

Res.B2d 5.1.6 Conduct animal tracing to determine source, destination, and disposition of affected animals 

Res.B2d 5.1.3 Determine whether an emerging infectious animal disease agent or a biological threat agent 

consists of single or multiple strains 

Res.B2d 5.2.3 Coordinate with vector control experts to conduct surveillance and monitoring of animal 

infections until population densities and infection rates return to pre-event levels 

Res.B2d 5.1.2.1 Obtain samples for lab testing 

Pre.C.2a 5 Search for materials 

Pre.C.2a 5.2.1 Dispose of materials suspected of being, or known to be, dangerous 

Performance Measures Metric 

Time in which status and priority of investigation is assigned to 

premises 

Within 6 hours from identifying them 

through traces 

Time in which a foreign animal disease investigation, as verified by 

the veterinarian in charge (AVIC), is initiated 

Within 8 hours from receiving the initial 

report 

Single laboratory samples are analyzed within 12–72 hours 

(depending on type of analysis) 

Yes/No 

Number of laboratory samples processed by 90 people and 30 highthroughput PCR machines per day 10,000 

Number of serum samples processed by 15 people with 1 liquid 

handling robotic system per day 

15,000 

Number of laboratory serology samples processed by one technician 

(nonrobotics) per day 

450 

Time in which logistical support is delivered to aid the operation Within 72 hours from arriving at the 

laboratory 

Time in which case definition using effective epidemiology is 

completed 

Within 24 hours from presumptive or 

confirmed diagnosis 

Time in which an investigation of suspected wildlife cases is initiated 

by a qualified veterinarian 

Within 24 hours from confirmed diagnosis 

Time in which joint USDA-DOJ investigation into source of 

introduction is initiated 

Within 24 hours from confirmed diagnosis 

Time in which a surveillance plan is implemented to define the 

present extent of outbreak and detect new cases 

Within 48 hours from confirmed diagnosis 

Inspection for surveillance of susceptible animals at contact premises 

and suspect premises is conducted a minimum of three times per 

average incubation period of Foot and Mouth Disease (FMD) 

Yes/No 

Inspection for surveillance of susceptible animals at at-risk premises 

is conducted a minimum two times per average incubation period 

Yes/No 
284 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Time in which trace-forwards and trace-backs to determine primary 

and secondary animal exposure to disease and additional contact 

premises are conducted 

Within 48 hours from time of confirmed 

diagnosis in laboratory 

Trace-back analysis is conducted for a minimum of two average 

incubation periods before the onset of clinical signs of infected 

animals 

Yes/No 

Trace-forward analysis is conducted up to the time that quarantine is 

imposed 

Yes/No 

Number of herds per day at which surveys for trace-out and 

epidemiology reporting can be conducted at potentially affected 

premises (assuming 670 animals per herd) 

400 

Time in which the disease is characterized, risk factors are identified, 

and mitigation strategies are developed 

Within 96 hours from confirmed diagnosis 

Time in which disease-free zones are identified using a surveillance 

plan 

Within 7 days from confirmed diagnosis 

Time in which absence of diseases is confirmed through monitoring 

and surveillance 

Within 6 months from last diagnosis 

All responders were monitored for exposure to hazardous materials Yes/No 

Screening of affected personnel was conducted Yes/No 

Activity: Implement Disease Containment Measures

Definition: Establish isolation and quarantine zones, issue stop movement orders, and initiate 

animal vaccination and treatment programs, euthanasia efforts, or other protective measures 

designed to control the spread of the disease

Critical Tasks 

Res.B2d 6.2 Implement plans, procedures, protocols, and systems for distribution of mass prophylaxis from 

the National Veterinary Stockpile (NVS) 

Res.B2d 6.3.6 Implement animal control measures, i.e. for infected animals threatening the public’s health (also 

includes stray pets/domestic animals and communal wild animals) 

Res.B2d 6.1.1 Coordinate and support implementation of protective actions to stop the spread of disease 

Res.B2d 6.2.2 Provide human vaccination during animal health emergency if needed 

Res.B2d 6.2.1 Conduct strategic vaccinations or treatments of animals 

Res.B2d 6.4 Implement plans to collect and dispose of infected material to reduce the spread of animal 

disease 

Pro.B1b 3.5.2.1 Coordinate cleaning and decontamination of affected food facilities 

Res.B2d 5.2.5 Determine wildlife exposure and disposition 

Res.B2d 6.6 Conduct hazardous materials response for disinfectants used in animal health response 

Res.B2d 6.5 Coordinate and conduct environmental decontamination for animal health response 

Res.B2d 8.2.1 Implement protocols for disposing of infectious agricultural waste 
Target Capabilities List 285 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Performance Measures Metric 

Time in which a control area is established to ensure effective 

implementation of quarantine and movement control (Federal 

quarantine is maintained until the disease is either eradicated or a 

smaller control area is implemented) 

Within 12 hours from a presumptive 

positive or confirmed positive premises 

Time in which bio-security measures are implemented Within 24 hours from the identification of 

the first presumptive positive premise 

Time in which security is implemented at processing facilities Within 24 hours from confirmation of 

diagnosis 

Time in which zoning plan is implemented Within 7 days from the outbreak 

All entities shared and acted upon intelligence information to protective 

measures 

Yes/No 

Time in which an emergency ring-vaccination program (assuming 

vaccination is the selected strategy) is completed 

Within 7 days from confirmation of 

diagnosis 

Time in which a foreign animal disease is eradicated during the event 

or exercise (assuming a single-point introduction, and optimal response 

conditions) 

Within 100 days from first diagnosis 

Time in which a foreign animal disease is eradicated during the event 

or exercise (assuming a multiple-point introduction, and optimal 

response conditions) 

Within 12 months from first diagnosis 

Last case is diagnosed within 3-12 months depending on circumstances 

and methods used (Office International des Epizooties (OIE) standards) 

until trade restrictions no longer apply 

Yes/No 

Percent of exposed individuals who contract the disease during the 

epidemic 

0% 

On-site education for producers, farmers, and responders is provided at 

the time of diagnosis and/or euthanasia 

Yes/No 

Percent of remaining animals affected by the foreign animal disease 

upon resumption of normal trade 

0% 

Market demand for commodities remains stable throughout outbreak Yes/No 

Percent of appropriate personnel who are issued personal protective 

equipment (PPE) 

100% 

Percent of responders who are monitored for exposure to hazardous 

materials 

100% 

Contamination source and affected areas are secured Yes/No 

Decontamination sites are established Yes/No 

Decontamination is conducted in accordance with local protocol for all 

contaminated personnel, equipment, and animals 

Yes/No 

Percent of affected personnel screened 100% 

Number of herds vaccinated per day for disease control (assuming 670 

cloven-hoofed animals per herd) 

400 
286 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Activity: Provide Animal Welfare

Definition: Provide affected animals with veterinarian care, husbandry services, food, and 

sheltering to minimize suffering while being isolated, quarantined, or undergoing treatment

Critical Tasks 

Res.B2d 7.1 Conduct an animal safety and biosecurity response 

Res.B2d 7.2 Provide husbandry services 

Performance Measures Metric 

Number of animals provided with water, feed, protection from the 

elements daily 

268,000 

Activity: Conduct Euthanasia/Disposal

Definition: Provide humane methods to euthanize affected animals to stop the spread of the 

disease or alleviate suffering and properly dispose of animal remains

Critical Tasks 

Res.B2d 8.1 Euthanize animals to prevent spread of disease 

Res.B2d 8.2 Collect and dispose of animal-health response materials 

Res.B2d 8.2.1 Coordinate with appropriate agencies to implement disposal methods for agricultural waste, 

including carcasses, that reduce the spread of animal disease 

Performance Measures Metric 

Number of herds per day euthanized and disposed of for disease control using a 10-

person team (assuming 670 animals per herd) 

1 

Number of herds per day at which appraisal, euthanasia, and/or disposal are carried 

out at affected locations for 100 days (assuming 670 animals per herd) 

20 

Time in which a plan for euthanasia and disposal of infected and susceptible animals 

is implemented 

Within 24 hours from a 

premises being classified as 

an infected or contact 

remises 

Time in which infected animals are disposed of Within 24 hours from 

destruction (whenever 

possible) 

Activity: Demobilize Animal Disease Emergency Support Operations

Definition: Account for all assets utilized and safely return them to their original location and 

functions

Critical Tasks 

Res.B2d 9.1 Develop an animal health response operation demobilization plan 
Target Capabilities List 287 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Res.B2d 9.2 Implement the animal health response operation demobilization plan 

Res.B2d 9.2.1 Restore animal health response personnel and equipment to normal operations 

Res.B2d 9.2.3 Complete appropriate documentation for demobilization of animal health operations 

Rec.C2a 3.1 Coordinate recovery operations 

Rec.B3a 3.2 Coordinate establishment of long-term monitoring of the environment 

Rec.B.3a 5.1 Conduct long-term environmental impact assessments 

Rec.C3a 6.1.3 Provide engineering and other support for structures, public works, and infrastructure systems 

Rec.C3a 6.2 Provide economic stabilization, community recovery, and mitigation support and/or financial 

restitution to key service sectors (e.g., medical, financial, public health and safety) 

Rec.C4a 7.1.1.1 Provide financial management and reimbursement to affected agriculture entities 

Rec.C4a 3.3 Coordinate economic stabilization 

Performance Measures Metric 

Quarantine is lifted following diagnosis of last case within 3-6 months depending on 

circumstances and methods used 

Yes/No 

Percent of personnel and equipment returned to normal operations 100% 

Percent of appropriate documentation completed 100% 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations 

Center Management 

Animal Disease Emergency Support requests resources from Emergency Operations 

Center Management, who then in turn provides the requested resources. Emergency 

Operations Center Management and Animal Disease Emergency Support both provide 

situational reports to each other. 

Food and Agriculture 

Safety and Defense 

Animal Disease Emergency Support provides information on potential food 

contamination to Food and Agriculture Safety and Defense. Food and Agriculture 

Safety and Defense provide control measure guidance to Animal Disease Emergency 

Support. 

Emergency Public Safety 

and Security Response 

Emergency Public Safety and Security Response provides perimeter security to Animal 

Disease Emergency Support 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Mass Care provides bulk distribution items upon request to Animal Disease Emergency 

Support 

Laboratory Testing Animal Disease Emergency Support provides samples for testing to Laboratory Testing. 

Laboratory Testing provides test results to Animal Disease Emergency Support 

Mass Prophylaxis Animal Disease Emergency Support identifies individuals needing prophylaxis from 

zoonotic disease 

Emergency Public 

Information and Warning 

Animal Disease Emergency Support provides protective action decisions and 

recommendations to Emergency Public Information and Warning. 
288 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Linked Capability Relationship 

Isolation and Quarantine Animal Disease Emergency Support provides an indication of zoonotic disease(s) to 

Isolation and Quarantine. 

WMD and Hazardous 

Materials Response and 

Decontamination 

WMD and Hazardous Materials Response and Decontamination provides technical 

decontamination to Animal Disease Emergency Support 

Volunteer Management 

and Donations 

Volunteer Management and Donations provides volunteers to Animal Disease 

Emergency Support 

Economic and 

Community Recovery 

Animal Disease Emergency Support identifies the need for grants and loans to 

Economic and Community Recovery 

Responder Safety and 

Health 

Responder Safety and Health assures the safety of Animal Disease Emergency 

Support’s personnel 

Environmental Health Environmental Health provides Animal Disease Emergency Support with updates on 

environmental hazards 
Target Capabilities List 289 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Direct Animal 

Health 

Emergency 

Support Tactical 

Operations

End: Animal disease 

eradicated

Activate Animal 

Health Emergency 

Support

Start: Indication 

of animal 

disease

Emergency 

Operations 

Center 

Management

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Food and 

Agriculture 

Safety and 

Defense

Medical 

Surge

Provide containment decisions

Conduct Animal 

Health 

Epidemiological 

Investigations & 

Surveillance

Provide Animal 

Welfare 

Conduct 

Euthanasia/

Disposal

Demobilize Animal 

Health Emergency 

Support 

Operations

Ready to implement 

immediate containment

Provide lab results

Euthanasia 

warranted

Animal remains 

disposed

Provide appropriate 

treatment

Ready to begin 

epidemiological 

investigation and 

tailored surveillance

Activate appropriate staff and 

resources

Disease 

eradicated

Perimeter security 

provided

Provide sitreps

Bulk food and goods 

distributed

Results provided

Provide samples

Mass 

Prophylaxis

Identify exposed 

(zoonotic disease)

Provide patients 

(zoonotic disease)

Emergency 

Public 

Information 

and Warning

Provide PAD/PAR

Resources provided

Request resources

Isolation and 

Quarantine

Indication of

zoonotic disease

Information of 

potential food 

contamination

Control measure 

guidance provided

WMD/

Hazardous 

Materials 

Response and 

Decontamination

Decontamination

provided

Volunteer 

Management 

and Donations Volunteers provided

Economic 

and 

Community 

Recovery

Need for grants and 

loans

Implement 

Disease 

Containment 

Measures

Capability Activity Process Flow

Animal Health Emergency Support Capability Linked 

Capabilities Relationship

Emergency 

Public Safety and 

Security Response

Laboratory 

Testing

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)
290 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource Element Description 

Resource Elements Components and Description

USDA Headquarters 

Emergency Operations Center 

(EOC) 

Fully staffed Federal EOCs to support vaccination and/or euthanasia process. 

Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per 

24-hour period). 

USDA Regional Emergency 

Operations Center (EOC) 

Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per 

24-hour period). 

APHIS Headquarters 

Emergency Operations Center 

Fully staffed Federal EOCs to support vaccination and/or euthanasia process. 

Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per 

24-hour period). 

APHIS Regional Emergency 

Operations Center (EOC) 

Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per 

24-hour period). 

Homeland Security Operations 

Center (HSOC) 

State and County EOCs Fully staffed State and county EOCs to support vaccination and/or euthanasia 

process. 

Agriculture EOC Consists of 2 policy administrators, 2 State animal health SMEs, 1 USDA 

cooperative extension specialist, 3 industry representatives, 1 market 

representative, 1 grain industry representative, 1 crop representative, 2 support 

personnel 

Incident Command Post Fully expanded incident command posts (ICPs) to support vaccination and/or 

euthanasia process. 

National Response 

Coordination Center (NRCC) 

Personnel: 3 staff per shift; 3 shifts per 24-hour period per center. 

Regional Response 

Coordination Center (RRCC) 

Personnel: 3 staff per shift; 3 shifts per 24-hour period per center. 

Emergency Response Teams 

(ERT-A) 

Personnel: 3 staff per shift; 3 shifts per 24-hour period per center. 

Multiple Area Command Personnel: 3 staff per shift; 3 shifts per 24-hour period per center. 

Multi-agency coordinating 

group 

Technical specialist position Federal, State, tribal, local, or private resources assigned as needed based on their 

area of expertise 

Veterinary Medical Assistance 

Team 

Per NIMS, volunteer teams of 60+ veterinarians, technicians, and support 

personnel who can be dispatched for 2-week assignments 

Animal Health Technician Personnel to perform a variety of animal healthcare duties to assist veterinarians 

in settings 

Veterinary Epidemiologist Specialized personnel (requires Doctor of Veterinary Medicine) to analyze 

factors influencing the existence and spread of diseases among humans and 

animals, particularly those diseases transmissible from animals to humans. 

Personnel hold the degree of Doctor of Veterinary Medicine 
Target Capabilities List 291 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource Elements Components and Description

Communications Technicians Interoperable communications coordinated among local, State, national, private, 

and international stakeholders 

Trade support personnel Reporting to Office International des Épizooties (OIE) and information trade 

partners 

Quarantine personnel Personnel to implement quarantine and restriction of movement of animals and 

related products 

Biosecurity personnel Personnel to limit the introduction and spread of diseases 

Decontamination personnel Personnel to render an environment free of diseases and with no adverse impact 

on the environment. 1 supervisor needed per 10 staff. 

Euthanasia personnel Personnel to euthanize livestock 

Euthanasia personnel 

supervisors 

Personnel to supervise euthanasia process 

Animal Welfare Specialist Personnel to oversee animal welfare during quarantine, housing, euthanasia, and 

treatment of animals 

Disposal personnel Personnel to dispose of euthanized livestock. 1 supervisor needed per 10 staff. 

Livestock appraisal personnel Personnel to appraise livestock prior to euthanasia 

Surveillance personnel Personnel to conduct surveillance activities to find exposed and susceptible 

animals; consists of numerators (phone contact) and examiners (ranch visitors) 

CBRNE personnel Specialized personnel (including public health veterinarians and technicians) to 

assess and address zoonotic and chemical, biological, radiological, nuclear, or 

explosive (CBRNE) issues, with the capacity to identify risk factors for the 

spread and prevent the spread of zoonotic disease 

Foreign animal disease 

personnel 

Personnel (animal disease diagnosticians and accredited veterinarians) with the 

training to identify and diagnose relevant foreign animal diseases 

Specialty Laboratory 

Technicians 

Personnel to process samples located in National Animal Health Laboratory 

Network (NAHLN) laboratories and State animal diagnostic laboratories 

Highly Skilled Laboratory 

Technicians 

located in National Animal Health Laboratory Network (NAHLN) laboratories 

and State animal diagnostic laboratories 

Administrative Laboratory 

Support Personnel 

Administrative and laboratory support personnel located in National Animal 

Health Laboratory Network (NAHLN) laboratories and State animal diagnostic 

laboratories 

Personnel trained in risk 

communication 

Personnel to communicate risk options 

Data entry supervisor 1 per 3 staff for data entry into Emergency Management Reporting System 

(EMRS); 

Data entry For date entry into Emergency Management Reporting System (EMRS) 

Equipment for trace-back 

investigations 

Equipment in which to enter, store, and retrieve information from field and 

coordination center; includes cellular phones, barcoding, and global positioning 

system (GPS)/geospatial information system (GIS) 
292 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource Elements Components and Description

Animal Identification systems Systems to identify infected, susceptible, exposed, and at-risk herds and animals; 

includes tags and/or microchips, paint sticks, brandings, and associated 

equipment 

Identification officer (recorder) Personnel to document and record infected, susceptible, exposed, and at-risk 

herds and animals 

Euthanasia systems Equipment (e.g., euthanasia solution base, tranquilizers) that enables animal 

euthanization while meeting optimal humane standards 

Therapeutics Equipment used to treat animals under quarantine 

Dispensing personnel 

supervisors 

Supervisors for personnel dispensing therapeutics 

Vaccines Equipment (medicine) needed to vaccinate animals at risk 

Vaccinators Personnel (supervisors and staff) to vaccinate animals; 1 supervisor per 20 

vaccinators 

Warehousing and distribution 

systems 

Location to store and distribute pharmaceuticals and related supplies 

Trucks/busses/minivans 

(Transportation systems and 

methods) 

Equipment and staff to move live animals, carcasses, people, pharmaceuticals, 

and equipment within, between, and among quarantine zones while ensuring 

biosecurity 

Law enforcement agent FBI agent 

Law enforcement officers Personnel to enforce quarantine, incident security, and personal safety for field 

personnel 

Wildlife specialists Trained personnel with the ability and equipment to survey, identify, diagnose, 

and control disease in wildlife 

Wildlife specialist supervisors Supervisors for wildlife specialists 

Wildlife specialists (sample 

collectors) 

Trained personnel with the ability and equipment to collect samples to identify, 

diagnose, and control disease in wildlife 

Veterinary Response Team—

livestock 

State-credentialed personnel with the ability and equipment to respond to the 

needs of livestock in all-hazards incidents 

Veterinary Response Team—

companion animals 

State-credentialed personnel with the ability and equipment to respond to the 

needs of companion animals in response to all-hazards incidents 

Information technology support 

staff 

Personnel, equipment, and supplies to support ICPs 

Administrative support 

personnel 

Personnel to provide procurement, contracts, logistics, etc. 

Trainers 
Target Capabilities List 293 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the “foreign animal disease” scenario. Other scenarios 

were reviewed to identify required adjustments or additions to the planning factors and national 

targets. 

 This capability applies to a wide range of incidents and emergencies, including accidental or 

deliberate disease outbreaks, natural disasters, and nuclear and conventional events. 

 Any event that would adversely affect the supply of electric utilities, access to water and feed, or 

access to premises such as large scale natural disasters (hurricanes, floods, blizzards) would impede 

communications, surveillance, operations, humane care of animals and delivery of services. If the 

roads are non-passable due to a natural disaster, this will affect our ability to get to the affected area, 

conduct operations, surveillance and other activities. 

Scenario-Specific 

 Herd size, rate of spread, and risk factors for an epidemic are based on a median herd size of 670 

susceptible animals, derived from research models of the spread of FMD. 

 In the event of a single point of introduction and immediate response, 2,000 herds are expected to be 

infected over a 100-day period. 

 In the event of three points of intentional introduction, up to 60 percent of States may be affected 

within 10 days of the attack. This would result in most of the States being quarantined within 2 

weeks. 

 Forty-five percent of the cattle inventory (beef and dairy) is affected = 45 million animals. 

 Fifty percent of the swine population is affected = 60 million animals. 

 Twenty percent of small ruminants are affected = 1.8 million animals. 

 A decision whether to vaccinate will be made and implemented at the beginning of the outbreak. 

 Quarantine/movement control strategies will have a negative impact on the marketability of 

nonsusceptible species (e.g., poultry). 

 Annual losses will include $20 billion in meat exports and $20 billion in domestic meat production, 

plus a 50 percent decline in milk production, with a prolonged period of depression due to lack of 

replacement stock and the time it takes to reach lactation age. Income will be lost from hunting 

restrictions and concerns over the disease in wildlife. 

 Wildlife: All cloven-hoofed wildlife species, including zoological collections, are at risk of exposure, 

infection, and spread of disease, including deer, feral swine, wild sheep, and goats. This includes 

200,000 farmed elk, 65,000 deer, and 350,000 farmed bison. 

 Distribution will be widespread due to extensive livestock transportation. 

 Extensive labor costs for surveillance, monitoring, euthanasia, vaccination, animal removal and 

husbandry will accrue. 

 Increased human morbidity and mortality would occur, including adverse impacts on mental health. 

 High unemployment will occur due to both direct and indirect economic losses of the outbreak, as 

well as lost opportunity costs, leading to a prolonged economic depression and loss of global market 

share. 

 Consumer confidence in meat and meat products will plummet and will take time to be restored. 
294 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Foreign Animal Disease) 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

USDA Emergency 

Operations Center 

(EOC) 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

1 USDA EOC 

APHIS Emergency 

Operations Center 

(EOC) 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

1 APHIS Headquarters 

Operations Center 

2 regional APHIS emergency 

operations centers (EOCs) 

Homeland Security 

Operations Center 

(HSOC) 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

1 Homeland Security 

Operations Center (HSOC) 

State Emergency 

Operations Center 

(EOC) 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

50 State emergency 

operations centers (EOCs) 

County emergency operations 

centers (EOCs) as needed 

Agriculture Emergency 

Operations Center 

(EOC) 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

100 agriculture emergency 

operations centers (EOCs) 

nationally 

Incident Command 

Post 

1 command post for 

every 100 herds to be 

euthanized and/or 

vaccinated 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

Geographic distribution of 

herds will determine the 

number of incident command 

posts (ICPs) 

20 incident command posts 

(ICPs) for herds to be 

euthanized 

400 incident command posts 

(ICPs) for herds to be 

vaccinated 

National Response 

Coordination Center 

(NRCC) 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

1 National Response 

Coordination Centers 

(NRCCs) 

Regional Response 

Coordination Center 

(RRCC) 

2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

2 Regional Response 

Coordination Centers 

(RRCCs) 

ERT-A Team 2,000 herds to be euthanized 

and 40,000 herds to be 

vaccinated over a 100-day 

period 

50 Emergency Response 

Teams (ERT-A) 

Multiple Area 2,000 herds to be euthanized 50 Multiple Area Commands 
Target Capabilities List 295 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Command and 40,000 herds to be 

vaccinated over a 100-day 

period 

(MACs) 

Technical specialist 

position 

Estimates for a single incident 

are based on requirements for 

a 3-month period 

Technical specialists could be 

assigned in their areas of 

expertise on an as-needed 

basis and could be tasked for 

the entire duration of the 

incident 

Veterinary Medical 

Assistance Team 

One Team per 2-week 

assignments 

Estimates for a single incident 

are based on requirements for 

a 3-month period 

3 teams deployed for 2 weeks 

on and 4 weeks off 

Animal Health 

Technician 

Estimates for a single incident 

are based on requirements for 

a 3-month period 

Animal health technicians 

could be assigned in their 

areas of expertise on an asneeded basis and could be 

tasked for the entire duration 

of the incident 

The number required depends 

on required tasks (see below) 

Veterinary 

Epidemiologist 

Estimates for a single incident 

are based on requirements for 

a 3-month period 

500 veterinary 

epidemiologists could be 

assigned in their areas of 

expertise on an as-needed 

basis and could be tasked for 

the entire duration of the 

incident 

Communications 

Technicians 

Estimates for a single incident 

are based on requirements for 

a 3-month period 

100 people to manage 

communications for 3-week 

periods 

Trade support 

personnel 

 Single incident APHIS Veterinary Services 

and International Services; 

U.S. Department of State will 

be available as needed 

Quarantine personnel Estimates for a single incident 

are based on requirements for 

a 3-month period 

APHIS and State personnel 

required for issues related to 

quarantine will be available 

on an as-needed basis 

To enforce quarantine, 6,000 

people are needed 

Biosecurity personnel Estimates for a single incident 

are based on requirements for 

a 3-month period 

Biosecurity specialists could 

be assigned in their areas of 

expertise on an as-needed 

basis and could be tasked for 

the entire duration of the 

incident: 
296 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

500 on-farm personnel 

50 outreach personnel 

Decontamination 

personnel 

2,000 herds during a 100-day 

period 

120 supervisors 

1,200 staff 

Euthanasia personnel 

supervisors 

2,000 herds during a 100-day 

period 

60 supervisors for animal 

care 

Euthanasia personnel 2,000 herds during a 100-day 

period 

600 animal handlers 

Animal Welfare 

Specialist 

1 animal welfare 

specialist per ICP 

42,000 herds during a 100-day 

period; 420 ICPs 

420 specialists 

Disposal personnel 2,000 herds during a 100-day 

period 

60 supervisors 

600 staff 

Livestock appraisal 

personnel 

2,000-herds during a 100-day 

period 

840 persons 

Surveillance personnel 40,000 herds during a 100-day 

period 

500 persons 

CBRNE Personnel 2,000 herds during a 100-day 

period 

50 specialists, including State 

public health veterinarians 

100 technicians 

Foreign animal disease 

personnel 

40,000 herds during a 100-day 

period 

500 foreign animal disease 

diagnosticians 

500 accredited veterinarians 

Specialty Laboratory 

Technicians 

40,000 herds during a 100-day 

period; up to 82,000 serum 

samples and 24,000 PCR 

samples per day 

300 specialty technicians 

Highly Skilled 

Laboratory Technicians 

40,000 herds during a 100-day 

period; up to 82,000 serum 

samples and 24,000 PCR 

samples per day 

300 highly skilled technicians 

Administrative 

Laboratory support 

personnel 

40,000 herds during a 100-day 

period; up to 82,000 serum 

samples and 24,000 PCR 

samples per day 

200 administrative and 

laboratory support 

Personnel trained in 

risk communication 

42,000 herds during a 100-day 

period 

100 persons nationwide or 2 

per State 

Data entry supervisors 1 per 3 data entry staff 42,000 herds during a 100-day 

period 

50 supervisors nationally 
Target Capabilities List 297 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Data entry staff 42,000 herds during a 100-day 

period 

500 data entry staff 

Equipment for traceback investigations 42,000 herds during a 100-day 

period 

5,000 personal digital 

assistant (PDAs) 

Computer and internet 

capability 

Animal Identification 

systems 

42,000 herds during a 100-day 

period 

27,000,000 systems 

Identification officer 

(recorder) 

 42,000 herds during a 100-

day period 

600 officers 

Euthanasia systems 2,000 herds during a 100-day 

period 

Therapeutics 40,000 herds during a 100-day 

period 

Dispensing personnel 

supervisors 

2,000 herds during a 100-day 

period 

10 supervisors 

Vaccines 40,000 herds during a 100-

day period 

27 million doses of vaccine 

Vaccinators 40,000 herds during a 100-

day period 

100 supervisors 

2,000 vaccinators 

Warehousing and 

distribution systems 

 42,000 herds during a 100-

day period 

Trucks/buses/ 

minivans 

 2,000 herds during a 100-day 

period 

200 trucks 

100 buses 

100 minivans 

Law enforcement 

officer 

 2,000 herds during a 100-day 

period 

600 persons 

Wildlife specialists 2,000 herds and their 

surrounding environs during a 

100-day period 

500 survey designers 

Wildlife specialists 

(sample collectors) 

 2,000 herds and their 

surrounding environs during a 

100-day period 

3,000 sample collectors 

Veterinary Response 

Team—livestock 

 2,000 herds during a 100-day 

period 

60 persons 

Veterinary Response 

Team—companion 

animals 

 2,000 herds during a 100-day 

period 

60 persons 
298 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Information technology 

support staff 

1 person per Incident 

Command Post 

420 Command posts 420 persons 

Administrative support 

personnel 

 

Trainers 

Approaches for Large-Scale Events 

 To avoid duplication of resources, CBRNE weapons or devices and hazardous materials (hazmat) 

resource organizations should cross-train with other capabilities 

 To increase throughput in handling samples, laboratory resource organizations should develop new 

diagnostic technologies and pursue technology enhancements 

 For efficient use of national resources in emergencies with finite geographic distribution, animal 

treatment teams (livestock) should pursue cross-State border cooperation 

 For efficient use of personal and economic support to affected communities, personal resource 

organizations should use on-farm labor and develop just-in-time training 

 To simplify the indemnity process and provide a cost-effective alternative to euthanasia and disposal, 

indemnity plan resource organizations should pursue the final indemnity rule and consider the sale of 

vaccinated animals for slaughter 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

USDA 

Headquarters EOC 

Federal 

Resource 

Organization 

1 Nationally Federal (USDA) Direct Tactical 

Operations 

USDA Regional 

EOC 

Federal 

Resource 

Organization 

100 Nationally Federal (USDA) Direct Tactical 

Operations 

APHIS 

Headquarters EOC 

Federal 

Resource 

Organization 

1 Nationally Federal (APHIS) Direct Tactical 

Operations 

APHIS Regional 

EOC 

Federal 

Resource 

Organization 

2 Nationally Federal (APHIS) Direct Tactical 

Operations 

APHIS Regional 

EOC 

Federal 

Resource 

Organization 

2 Nationally Federal (APHIS) Direct Tactical 

Operations 

State EOC Resource 

Organization 

1 Per State State Direct Tactical 

Operations 

Agriculture EOC Resource 2 Per State State Direct Tactical 
Target Capabilities List 299 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Organization Operations 

Incident Command 

Post (ICP) 

Resource 

Organization 

420 Nationally Federal/State/ 

Local 

Direct Tactical 

Operations 

National Response 

Coordination 

Center 

Federal 

Resource 

Organization 

3 Nationally Federal (USDA) Direct Tactical 

Operations 

Regional Response 

Coordination 

Center 

Federal 

Resource 

Organization 

6 Nationally Federal (USDA) Direct Tactical 

Operations 

Emergency 

Response Team 

(ERT–A) 

Resource 

Organization 

1 Per State State Direct Tactical 

Operations 

Multiple Area 

Command (MAC) 

Resource 

Organization 

15 Nationally Federal/State/ 

Local 

Direct Tactical 

Operations 

Multi-agency 

coordinating group 

Resource 

Organization 

9 Per State State Direct Tactical 

Operations 

Technical specialist 

position 

Personnel As needed Per incident Federal 

(USDA/APHIS)/

State 

Direct Tactical 

Operations 

Veterinary medical 

assistance team 

NIMS typed 

Resource 

Organization 

12 Nationally Federal 

(DHS/FEMA) 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Veterinary 

epidemiologist 

Personnel 750 Nationally Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Veterinary 

epidemiologist 

Personnel 15 Per State 

(average) 

State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Communications 

technicians 

Personnel 200 Nationally Federal 

(USDA/APHIS)/ 

Federal 

(DHS/FEMA) 

All Activities 

Communications 

technicians 

Personnel 4 Per State 

(average) 

State All Activities 

Communications 

technicians 

Personnel 4 Per State 

(average) 

Private Sector All Activities 

Trade support 

personnel 

Personnel As needed Per incident Federal 

(USDA/APHIS) 

Implement Disease 

Containment 
300 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Quarantine 

personnel 

Personnel 1 Per Incident 

Command Post 

Federal 

(USDA/APHIS) 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Quarantine 

personnel

Personnel 3 Per Incident 

Command Post 

State Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Quarantine 

personnel

Personnel 12,270 Nationally Local/Private 

Sector 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Biosecurity 

personnel 

Personnel 2 Per State Federal 

(USDA/APHIS, 

DOJ) 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Biosecurity 

personnel 

Personnel 4 Per State State Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Biosecurity 

personnel 

Personnel 30 Per State Local/Private 

Sector 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Decontamination 

personnel 

Personnel 1 Per Euthanasia 

Incident 

Command Post 

Federal 

(USDA/APHIS) 

Conduct 

Euthanasia/Disposal 

Decontamination 

personnel 

Personnel 60 Per State State Conduct 

Euthanasia/Disposal 
Target Capabilities List 301 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Decontamination 

personnel 

Personnel 7,200 Nationally, 

through just-intime training 

Local/Private 

Sector 

Conduct 

Euthanasia/Disposal 

Euthanasia 

personnel 

supervisors 

Personnel 3 Per State 

(average) 

State Conduct 

Euthanasia/Disposal 

Euthanasia 

personnel 

Personnel 1,800 Nationally, 

through just-intime training 

Local/Private 

Sector 

Conduct 

Euthanasia/Disposal 

Animal welfare 

specialist 

Personnel 1 Per Incident 

Command Post 

Federal 

(USDA/APHIS) 

Provide Animal 

Welfare 

Disposal personnel Personnel 1 Per State Federal 

(USDA/APHIS) 

Conduct 

Euthanasia/Disposal 

Disposal personnel Personnel 2 Per State State Conduct 

Euthanasia/Disposal 

Disposal personnel Personnel 90 Per State Local/Private 

Sector 

Conduct 

Euthanasia/Disposal 

Livestock appraisal 

personnel 

Personnel 3 Per State Federal 

(USDA/APHIS) 

Implement Disease 

Containment 

Measures 

Livestock appraisal 

personnel 

Personnel 9 Per State State Implement Disease 

Containment 

Measures 

Surveillance 

personnel 

Personnel 1 Per Incident 

Command Post 

Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Surveillance 

personnel 

Personnel 25 Per State State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

CBRNE Personnel Personnel 1 Per State Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

CBRNE Personnel Personnel 2 Per State State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance
302 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

CBRNE Personnel Personnel 12 Per State Local/Private 

Sector 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Foreign animal 

disease personnel 

Personnel 30 Per State Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Foreign animal 

disease personnel 

Personnel 30 Per State State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Foreign animal 

disease personnel 

Personnel 60 Per State Local/Private 

Sector 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Specialty 

Laboratory 

Technicians 

Personnel 25 Nationally Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Specialty 

Laboratory 

Technicians 

Personnel 18 Per State 

(average) 

State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Highly Skilled 

Laboratory 

Technicians 

Personnel 50 Nationally Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Highly Skilled 

Laboratory 

Technicians 

Personnel 18 Per State 

(average) 

State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Admin Laboratory 

Support 

Personnel 25 Nationally Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Admin Laboratory 

Support 

Personnel 12 Per State 

(average) 

State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 
Target Capabilities List 303 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Risk 

Communication 

Personnel 

Personnel 2 Per State Federal 

(USDA/APHIS) 

Implement Disease 

Containment 

Measures 

Risk 

Communication 

Personnel 

Personnel 5 Per State State Implement Disease 

Containment 

Measures 

Risk 

Communication 

personnel 

Personnel 5 Per State Local/Private 

Sector 

Implement Disease 

Containment 

Measures 

Data Entry 

supervisor 

Personnel 1 Per State Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Data Entry 

Supervisor 

Personnel 1 Per State State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Data Entry 

Technicians 

Personnel 3 Per State Federal 

(USDA/APHIS) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Data entry 

Technicians 

Personnel 3 Per State State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Data Entry 

Technicians 

Personnel 43 Per State Local/Private 

Sector 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Equipment for 

trace-back and 

trace-forward 

investigations 

Equipment 30,000 Nationally Federal 

(USDA/APHIS, 

DHS/FEMA)/ 

State/ Local 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Animal 

identification 

system (individual 

tagging element) 

Equipment 85 million Federal 

(USDA/APHIS)/

State/ Local 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance

Identification 

Officer 

Personnel 1 Per State Federal 

(USDA/APHIS) 

Implement Disease 

Containment 
304 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Measures 

Provide Animal 

Welfare 

Conduct Euthanasia/ 

Disposal 

Identification 

Officer 

Personnel 1 Per Incident 

Command Post 

State Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct Euthanasia/ 

Disposal 

Identification 

Officer 

Personnel 47 Per State Local/Private 

Sector 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct Euthanasia/ 

Disposal 

Euthanasia systems Equipment As needed Federal 

(USDA/APHIS)/

State/ Local 

Conduct 

Euthanasia/Disposal 

Therapeutics Equipment As needed Federal 

(USDA/APHIS)/

State/ Local 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Dispensing 

personnel 

supervisors 

Personnel 60 Nationally Federal (USDA) Conduct 

Euthanasia/Disposal 

Vaccine dosages Equipment Up to 85 

million 

 Nationally Federal (USDA) Implement Disease 

Containment 

Measures 

Vaccinators Personnel 1 Per State Federal (USDA) Implement Disease 

Containment 

Measures 

Vaccinators Personnel 1 Per Incident 

Command Post 

State Implement Disease 

Containment 

Measures 

Vaccinators Personnel 720 Per State Local/Private 

Sector 

Implement Disease 

Containment 

Measures 
Target Capabilities List 305 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Warehousing and 

distribution 

systems 

Resource 

Organization 

 As needed Per incident Federal 

(USDA/APHIS, 

DHS/FEMA)/ 

State/ Local 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Trucks/buses/ 

minivans 

Transportation 

Equipment 

 2400 Nationally Federal 

(DHS/FEMA, 

DOT)/ 

State/Local 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Law 

Enforcement Agent 

Personnel 1 Per State Federal 

(DOJ/FBI) 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Law Enforcement 

Officer 

Personnel 1 Per Incident 

Command Post 

State Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Law Enforcement 

Officer 

Personnel 45 Per State Local Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Wildlife Specialist Personnel 4 Per State Federal (USDA, 

DOI) 

Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Wildlife Specialist 

Supervisors 

Personnel 4 Per State State Conduct Animal 

Health 

Epidemiological 

Investigations and 

Surveillance 

Wildlife Specialist 

(sample collectors) 

Personnel 180 Per State Local/Private 

Sector 

Conduct Animal 

Health 
306 Target Capabilities List 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Epidemiological 

Investigations and 

Surveillance 

Veterinary 

Response Team—

livestock 

Resource 

Organization 

6 Per State 

affected (1 inState and 5 out 

of State) 

State Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Veterinary 

Response Team—

livestock 

Resource 

Organization 

6 Per county 

affected (1 

county team and 

5 out-of-county 

teams) 

Local Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Veterinary 

Response Team—

companion animals 

Resource 

Organization 

6 Per State 

affected (1 inState and 5 out 

of State) 

State Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Veterinary 

Response Team—

companion animals 

Resource 

Organization 

1 Per county 

affected (1 

county team and 

5 out-of-county 

teams) 

Local Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Information 

technology support 

Personnel 50 Nationally Federal 

(USDA/APHIS, 

DHS/FEMA) 

All Activities 

Information 

technology support 

Personnel 4 Per State State All Activities 

Information 

technology support 

Personnel 20 Per State Local/Private 

Sector 

All Activities 

Administrative 

support personnel 

Personnel 4 Per State Federal 

(DHS/FEMA) 

All Activities 

Administrative 

support personnel 

Personnel 20 Per State State All Activities 

Administrative 

support personnel 

Personnel 50 Per State Local/Private 

Sector 

All Activities 

Trainers Personnel 1 Per State Federal 

(USDA/APHIS) 

Implement Disease 

Containment 
Target Capabilities List 307 

RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x)

Lead Capability Activity 

supported by 

Element 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Trainers Personnel 4 Per State State Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

Trainers Personnel 20 Per State Local/Private 

Sector 

Implement Disease 

Containment 

Measures 

Provide Animal 

Welfare 

Conduct 

Euthanasia/Disposal 

References 

1. Administrative Procedures Guidelines: Resource Typing, Qualifications, Training and Certification Systems, 

United States Department of Agriculture, Animal and Plant Health Inspection Service, 2005. 

2. Farm Bill 2002. Title 10, Subtitle E: Animal Health Protection Act. CFR42. PL 107-293 

3. American Veterinary Medical Association (AVMA) Guidelines for Euthanasia of Animals. AVMA, 

Schaumberg, Illinois. 2000. 

4. Catastrophic Incident Supplement to the NRP; Department of Homeland Security, 2005. 

5. National Mutual Aid Resource Aid and Resource Management. Federal Emergency Management Agency 

(FEMA), 2004. 

6. National Agriculture Statistics Service (NASS). United States Department of Agriculture, 2005. 

http://www.usda.gov/nass/. 

7. Schoenbaum, M.A. & Disney, W.T. “Modeling alternative mitigation strategies for a hypothetical outbreak of 

foot-and-mouth disease in the United States.” Preventative Veterinary Medicine. 58, 25–52. 2003. 

8. Universal Task List, Department of Homeland Security, 2005. 

9. Interim Final Rule: Foot and Mouth Disease: Payment of Indemnity (Reg. Plan Seq.No.4) [RIN: 057-AB34]. 

United States Department of Agriculture, Animal and Plant Health Inspection Service, 2005. 

10. Veterinary Services Memo 580.4: Procedures for Investigating a Suspected Foreign Animal Disease / Emerging 

Disease Incident. United States Department of Agriculture, Animal and Plant Health Inspection Service, 

Veterinary Services, 2004. 
308 Target Capabilities List 

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Target Capabilities List 309 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

ENVIRONMENTAL HEALTH 

Capability Definition 

Environmental Health is the capability to protect the public from environmental hazards and manage the 

health effects of an environmental health emergency on the public. The capability minimizes human 

exposures to environmental public health hazards (e.g., contaminated food, air, water, solid waste/debris, 

hazardous waste, vegetation, sediments, and vectors). The capability provides the expertise to run fate and 

transport models; design, implement, and interpret the results of environmental field surveys and 

laboratory sample analyses; develop protective guidance where none exists; and use available data and 

judgment to recommend appropriate actions for protecting the public and environment. Environmental 

Health identifies environmental hazards in the affected area through rapid needs assessments and 

comprehensive environmental health and risk assessments. It works closely with the health community 

and environmental agencies to link exposures with predicted disease outcomes, provides input in the 

development of Crisis and Emergency Risk Communication (CERC) messages, provides guidance on 

personal protective measures, and advises on environmental health guidelines. 

Outcome 

After the primary event, disease and injury are prevented through the quick identification of associated 

environmental hazards, including exposure to infectious diseases that are secondary to the primary event 

as well as secondary transmission modes. The at-risk population (i.e., exposed or potentially exposed) 

receives the appropriate countermeasures, including treatment or protection, in a timely manner. The 

rebuilding of the public health infrastructure, removal of environmental hazards, and appropriate 

decontamination of the environment enable the safe re-entry and re-occupancy of the impacted area. 

Continued monitoring occurs throughout the recovery process in order to identify hazards and reduce 

exposure. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports: 

ESF #1: Transportation 

ESF #3: Public Works and Engineering 

ESF #5: Information and Planning 

ESF #6: Mass Care, Housing and Human Services 

ESF #8: Public Health and Medical Services 

ESF #10: Oil and Hazardous Materials Response 

ESF #11: Agriculture and Natural Resources 

ESF #14: Long Term Community Recovery and Mitigation 

Worker Safety and Health Support Annex 

Nuclear/Radiological Incident Annex 

Catastrophic Incident Annex 

Oil and Hazardous Materials Incident Annex 
310 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

General Environmental Health 

Res.B3c 1.1.1 Provide environmental health input to the development of plans or the jurisdictional planning 

process (evaluation and revision) 

Res.B3c 1.1.1.1 Develop plans and protocols for coordinating the environmental health function into 

response activities (evaluation and revision) 

Res.B3c 1.1.2 Identify the appropriate environmental health official and insure their inclusion in the 

incident command staff 

Res.B3c 1.1.2.1 Identify an ‘Environmental Health Coordination Unit’ and develop a mechanism for their 

inclusion in the appropriate coordination organization (e.g., ICP, EOC, JFO) 

Res.B3c 1.1.3 Integrate and supervise a plan for environmental monitoring 

Res.B3c 1.1.4.1 

Develop capacity for the personnel and resources necessary to create and maintain geo-coded 

databases of key environmental health infrastructure and to effectively share information 

during emergency response 

Res.B3c 1.1.6 Develop a plan to coordinate the various elements of environmental health among Federal, 

State, and local response

Res.B3c 1.1.5 Identify appropriate expertise needed for all aspects of environmental health response 

Res.B3c 1.1.7 Develop inputs into the Crisis and Emergency Risk Communication (CERC) plan

Res.B3c 1.1.4 Coordinate to insure interoperable and redundant communication equipment 

Res.B3c 1.1.3.1 Coordinate environmental health efforts (e.g., response work, database management of 

environmental sample results, interpretation of results, and risk communication)

Res.B3c 1.1.3.2 Coordinate with the appropriate agencies for the analysis and database management of 

environmental samples and for the interpretation of results and risk communication

Res.B3c 1.1.3.3 Coordinate with public and private laboratories to ensure redundancies of capability 

Res.B3c 1.1.3.4 Resolve confidentiality issues for sharing of information from laboratory results 

Potable Water Supplies

Res.B3c 1.2.2 

Develop and maintain all-hazards emergency response procedures and protocols for 

assessment of Public Water Utility, Alternative Water Supplies (Hauled Water, Bulk Water, 

Bottled Water), Unregulated systems (individual wells), and Temporary or mobile treatment 

systems (Reverse Osmosis Purification Unit, Portable onsite treatment) 

Res.B3c 1.2.3 Develop standard operating procedures (SOPs) for prioritizing the provision of potable water 

to affected populations and key facilities. 

Res.B3c 1.2.4 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 

safety and integrity of potable water supply and delivery system 

Res.B3c 1.2.1.1 

Develop emergency guidelines and operation criteria for limited operations (boil water or do 

not drink order) and plan for dissemination to public and policyholders in cooperation with 

water utilities 
Target Capabilities List 311 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 1.2.4.1 

Develop and maintain intrastate mutual aid agreements with water providers and relevant 

health and environment entities for assistance in disaster response/emergency events 

(WARN, mutual aid) 

Res.B3c 1.2.4.2 Develop and maintain interstate agreements with water providers and relevant health and 

environment entities for assistance in disaster response/emergency events (EMAC) 

Res.B3c 1.2.5 Develop and maintain a geo-coded database of all Safe Drinking Water Act (SDWA) 

drinking water facilities 

Food Supplies

Res.B3c 1.3.1 Develop capacity for the personnel and resources necessary to create and maintain a geocoded database of the food supply and delivery system 

Res.B3c 1.3.2 Ensure the existence of MOUs or other contractual agreements needed to share resources 

such as food inspection personnel, equipment, and databases 

Res.B3c 1.3.3 Address mechanisms to recommend the closing of facilities or operations, and address noncompliance with recommendations in environmental health plans 

Res.B3c 1.3.4 Address mechanisms to re-open food supply and delivery operations and facilities in 

environmental health plans 

Res.B3c 1.3.2.1 Conduct hazard needs assessment and staffing surge requirements in the area of food supply 

and delivery 

Res.B3c 1.3.2.2 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 

safety and integrity of food supply and delivery system 

Res.B3c 1.3.2.3 Develop materials and personnel to conduct just-in-time training for food protection 

Res.B3c 1.3.2.4 Coordinate with public and private laboratories to develop plans for the lab testing necessary 

to ensure safety of the food supply and delivery system 

Res.B3c 1.3.5 

Ensure that environmental COOP planning addresses personnel and resources necessary to 

ensure the safety of the food supply and delivery system and mechanisms to prioritize 

response actions 

Res.B3c 1.3.6 Develop capacity for rapid communications and data sharing (including geo-coded data) 

during emergency response 

Wastewater Management

Res.B3c 1.4.1 Develop and maintain all-hazard emergency response plans, procedures, and programs for 

the collection, treatment, and disposal of waste water (liquid waste and sewage) during 

emergency events to include Public Waste Water Utility, Alternative Waste Water (portable 

toilets, temporary lagoons, waste hauling), Unregulated systems (individual septic tanks), 

and Land applications 

Res.B3c 1.4.2 

Develop and maintain all-hazards emergency response procedures and protocols for 

assessment of the following types of facilities: Public Waste Water Utility, Alternative 

Waste Water, (portable toilets, temporary lagoons, waste hauling), Unregulated systems 

(individual septic tanks) and Land applications 

Res.B3c 1.4.1.1 

Develop standard operating procedures (SOPs) for the prioritization of the collection, 

treatment, and disposal of waste water (liquid waste and sewage) for affected populations 

and priority facilities (e.g., shelters, hospitals, etc). 

Res.B3c 1.4.3.1 

Develop and maintain intrastate mutual aid agreements with waste water collection, 

treatment, and disposal organizations and relevant health and environment entities for 

assistance in disaster response/emergency events (WARN, mutual aid) 
312 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 1.4.3.3 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 

safety and integrity of wastewater systems 

Res.B3c 1.4.3.2 

Develop and maintain interstate agreements with waste water collection, treatment, and 

disposal organizations and relevant health and environment entities for assistance in disaster 

response/emergency events (EMAC) 

Res.B3c 1.4.4 Develop and maintain a geo-coded database of all waste water facilities (e.g., treatment 

plants, lift stations, etc.) 

Vector Surveillance

Res.B3c 1.5.1 Develop plans, procedures, and programs for vector control 

Res.B3c 1.5.2 Develop plan for assessing local vector control infrastructure prior to event and how it has 

been damaged during the event 

Res.B3c 1.5.3 Develop plan to assist local vector control while they rebuild capabilities 

Res.B3c 1.5.1.1 Develop disease specific emergency response plan for vector control including; insect, 

arthropod and rodent vectors 

Res.B3c 1.5.1.2 Compile and review existing emergency vector control guidelines to include surveillance and 

control of insect, arthropod and rodent vectors. 

Res.B3c 1.5.1.3 Develop new emergency vector control guidelines where none currently exist that include 

surveillance and control of insect, arthropod and rodent vectors. 

Res.B3c 1.5.1.4 Develop communications plan for vector control to include control measures for the public 

and public agencies 

Res.B3c 1.5.4 

Develop, at the local level, the capability to create a geo-coded data base of all geographic 

locations assessed for vectors including locations that were treated, e.g., larvicides, spraying, 

etc. 

Res.B3c 1.5.3.1 Develop Environmental Health Strike Team of appropriately trained personnel to perform 

vector control operations 

Res.B3c 1.5.2.1 Assemble an assessment and inventory of current capacity, both public and private, to 

perform vector control 

Building Environment

Res.B3c 1.6.1 Develop plans, procedures, and protocols for providing environmental health support during 

re-entry operations 

Res.B3c 1.6.1.1 Develop procedures and guidelines for building re-entry 

Res.B3c 1.6.2 Assess power supply and generators for priority structures and identify alternative power 

sources 

Res.B3c 1.6.1.2 

Develop a plan with checklist for evaluating re-entry and re-occupancy of facilities (e.g., 

homes, educational, institution and health care facilities) that establishes evaluation process, 

assessment criteria, and indicators of safe re-occupation 

Res.B3c 1.6.3 Develop communications plan for safety and environmental related hazards associated with 

re-entry and re-occupation of homes and facilities 

Res.B3c 1.6.4 Develop and implement a monitoring system to determine status of rehabilitation efforts and 

health and safety issues associated with re-entry and re-occupancy 

Res.B3c 1.6.4.1 Develop capacity to assess community structures and determine safe operations 

Res.B3c 1.6.5 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 
Target Capabilities List 313 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

safety of building environments 

Outdoor Environment

Res.B3c 1.7.1 Conduct research and establish health-risk based tolerance thresholds for key contaminants; 

including updating existing methods and developing new ones where none exist 

Res.B3c 1.7.2.1 Identify susceptible and vulnerable populations 

Res.B3c 1.7.3 Develop and maintain a geo-coded database of potential hazards (e.g., refineries, chemical 

plants, mines, medical waste depositories, etc.) 

Res.B3c 1.7.4 Inventory monitoring and sampling capabilities 

Res.B3c 1.7.5 Develop an all-hazards communications plan 

Res.B3c 1.7.6.1 Develop MOUs between and among public and private laboratories to provide redundant 

capabilities 

Res.B3c 1.7.3.1 Conduct geo-coded baseline monitoring for all environmental media 

Res.B3c 1.7.2 Conduct environmental vulnerability assessments 

Res.B3c 1.7.6.2 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 

safety of outdoor environments 

Res.B3c 1.7.7 Coordinate with appropriate remediation teams for all contingencies 

Support for Mass Care

Res.B3c 1.8.1 Develop plans, procedures, and programs for environmental health support of mass care and 

sheltering facilities 

Res.B3c 1.8.1.1 

Develop mass care and sheltering guidelines that include safety/ food/air/water/wastewater 

sanitation/solid and biomedical waste requirements for all mass care facilities to include: 

shelters, housing, ice/food distribution, feeding sites, and other care facilities 

Res.B3c 1.8.1.2 Develop mass care and sheltering guidelines that include food safety and sanitation 

requirements 

Res.B3c 1.8.2 Develop shelter guidelines that include requirements for provision of safe drinking water 

from all sources and that include recommendations for alternate sources 

Res.B3c 1.8.3 Develop shelter guidelines that include requirements for sanitation and number of portable 

toilets (e.g., toilets, porta-potties, and hand washing facilities) 

Res.B3c 1.8.3.1 Identify sources and pre-arrange for delivery and emptying of toilets, porta-potties, and hand 

washing facilities 

Res.B3c 1.8.4 

Provide input into plans, procedures, and protocols to ensure individual/gross 

decontamination of persons and pets prior to admittance to shelters and other mass care 

facilities, medical and alternate care facilities, reception centers, animal shelters and other 

places as needed 

Res.B3c 1.8.3.2 

Conduct building/facility inspections in advance to identify food/sanitation capability and 

suitability of structures identified as mass care and shelter facilities (e.g., housing, shelters, 

feeding and care facilities) 

Res.B3c 1.8.5 Develop a geo-coded database of all pre-designated mass care and shelter operations 

Res.B3c 1.8.5.1 Update geo-coded database of all mass care and shelter operations 

Res.B3c 1.8.6 In coordination with Mass Care and shelter operations, ensure that field communication plan 

includes environmental health personnel 
314 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 1.8.7 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 

environmental health support to mass care and shelter response 

Support for Solid Waste/Debris Disposal

Res.B3c 1.9.1 Develop plans, procedures, programs, and guidance for environmental health support of 

waste management and debris removal 

Res.B3c 1.9.2 Develop and provide technical inputs for waste management and debris removal guidelines 

Res.B3c 1.9.2.1 Participate in the emergency response planning process for managing the type and quantities 

of waste generated by the incident and cleanup efforts 

Res.B3c 1.9.2.2 Participate in the emergency response planning process for the safe removal and disposition 

of waste and debris 

Res.B3c 1.9.3 Participate in the development of communications plans, procedures, and guidance for waste 

management and debris removal 

Res.B3c 1.9.4 Develop a geo-coded database of all waste management facilities 

Res.B3c 1.9.5 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 

safety of solid waste/debris disposal 

Support for Hazardous Waste Response

Res.B3c 1.10.3 Participate in the communications planning process for hazardous materials incidents 

Res.B3c 1.10.1 Provide technical assistance, consultation, and support in the development of plans for 

transporting hazardous materials 

Res.B3c 1.10.1.1 Participate in the identification of facilities for the management of hazardous materials 

Res.B3c 1.10.1.2 Participate in the determination of environmental health issues and concerns for transporting 

hazardous materials 

Res.B3c 1.10.2 Participate in the development of a geo-coded database of hazardous materials facilities 

Res.B3c 1.10.4 Develop Environmental Health Strike Team of appropriately trained personnel to ensure 

safety of hazardous materials management and decontamination 

Preparedness Measures Metrics

Drinking water safety is addressed in the comprehensive environmental health emergency 

response plan 

Yes/No 

Emergency plans to assess emergency water supply for impacted populations and key 

facilities are place to ensure: 

 Two liters per person per day 

 Bathing/washing/cooking 20 liters per person per day 

Yes/No 

Waste water disposal is addressed in the comprehensive environmental health emergency 

response plan 

Yes/No 

Emergency plans to assess emergency waste water disposal for impacted populations and 

key facilities are in place to ensure: 

 One portable toilet per 25 people 

 Gray water disposal 

Yes/No 

Food safety is addressed in the comprehensive environmental health emergency response 

plan 

Yes/No 
Target Capabilities List 315 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Environmental health aspects of waste management and debris removal are addressed in the 

comprehensive emergency response plan 

Yes/No 

Vector control is addressed in the comprehensive environmental health emergency response 

plan 

Yes/No 

Environmental health issues and concerns during hazardous materials incidents are 

addressed in the comprehensive emergency response plan 

Yes/No 

Safe solid waste disposal/debris management is addressed in the comprehensive 

environmental health emergency response plan 

Yes/No 

Safe re-entry and re-occupation is addressed in the comprehensive environmental health 

emergency response plan 

Yes/No 

Sanitation/hygiene/safety issues for mass care facilities are addressed in the comprehensive 

environmental health emergency response plan 

Yes/No 

Risk communication is addressed in the comprehensive environmental health emergency 

response plan and pre-event messages are developed 

Yes/No 

Priority structures have been identified and assessed Yes/No 

Percent of Safe Drinking Water Act (SDWA) drinking facilities included in geo-coded 

database 

100% 

Geo-coded database includes non- Safe Drinking Water Act (SDWA) systems Yes/No 

Geo-coded database includes community wastewater facilities Yes/No 

Geo-coded database includes food operations Yes/No 

Percent of waste water facilities (e.g., treatment plants lift stations, etc.) included in geocoded database 

100% 

Geo-coded database includes mass care and shelter operations Yes/No 

Geo-coded database includes vector control Yes/No 

Geo-coded database includes educational and institutional facilities (including associated 

chemical, biological, and radiological hazards) 

Yes/No 

Geo-coded database includes hazardous materials facilities (including associated chemical, 

biological, and radiological hazards) 

Yes/No 

Percent of waste management facilities included in geo-coded database 100% 

Geo-coded database includes environmental laboratories Yes/No 

Geo-coded database is distributed to State and local emergency operations Yes/No 

Geo-coded environmental samples database is capable of cataloging results by collection 

medium (such as water, drinking water, soil, air, animal vectors) 

Yes/No 

Frequency with which geo-coded database of potential hazards is updated Every 12 months 

Frequency with which baseline monitoring database is updated Every 12 months 

Frequency with which environmental vulnerability assessments are updated Every 3 months 

Frequency with which plans, procedures, programs, and guidance for environmental health 

support of waste management and debris removal are reviewed, exercised, and updated 

Every 12 months 
316 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Contamination survey instrumentation is available Yes/No 

Comprehensive environmental health assessment is completed for pre-selected facilities and 

structures 

Yes/No 

Percent of States that include emergency vector control training in their public health 

pesticide certification program 

100% 

Percent of local vector control programs, both public and private, able to provide geo-coded 

data 

50% 

Frequency with which geo-coded vector control database is updated Every month 

Frequency with which vector control geo-coded database and updates are distributed to State 

and local emergency operations 

Every month 

Geo-coded environmental samples database is capable of cataloging results by collection 

medium (e.g., water, drinking water, soil, air, animal vectors) 

Yes/No 

Comprehensive environmental health assessment is completed for pre-selected facilities and 

structures 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B3c 2.1 Develop training programs for providing environmental health support 

Res.B3c 2.5 Identify and train personnel to develop and maintain geo-coded environmental health databases 

Res.B3c 2.3 Ensure that environmental health emergency planning is fully integrated and exercised with the 

jurisdictional emergency plan 

Res.B3c 2.2.10 Provide training to ensure environmental health support to hazardous materials responders 

Res.B3c 2.2.2 

Develop and conduct emergency response training relevant to environmental health in drinking 

water systems to field staff and managers of State/local drinking water programs and drinking 

water utilities 

Res.B3c 2.2.4 

Develop and conduct emergency response training relevant to all waste water systems including 

field staff and managers of State/local waste water programs, waste water utilities, public 

health, and emergency management 

Res.B3c 2.2.5 

Include emergency vector control response training to field staff and managers of State/local 

programs having responsibility for vector control in public health pesticide applicators’ 

certification 

Res.B3c 2.2.3 Develop and deliver environmental health emergency food safety response training to field staff 

and managers of food programs 

Res.B3c 2.2.8 

Develop and conduct emergency response training to field staff and managers of State/local 

programs having responsibility for safety/food/air/water/wastewater sanitation assessments of 

mass care operations 

Res.B3c 2.2.8.1 Develop and conduct environmental health training to pre-designated managers, responders and 

volunteers of mass care operations 

Res.B3c 2.2.10.1 Provide appropriate hazardous materials response training to field staff and managers of 

State/local programs having involvement in hazardous materials response 

Res.B3c 2.2.3.1 Identify and train volunteers in emergency food safety 

Res.B3c 2.2.3.2 Provide training to regulated entities within the food delivery system 
Target Capabilities List 317 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 2.2.3.4 Develop materials and personnel to conduct just-in-time training for food protection 

Res.B3c 2.2.2.1 

Develop and conduct emergency response training relevant to all drinking water systems 

including field staff and managers of State/local drinking water programs, drinking water 

utilities, public health, and emergency management 

Res.B3c 2.4 Develop exercise programs for providing environmental health support 

Preparedness Measures Metric

Frequency with which emergency response training is provided to field staff and managers 

of State and local environmental health programs 

Every 12 months 

Training addresses the range of environmental health issues Yes/No 

Training has been provided to ensure environmental health support to hazardous materials 

responders 

Yes/No 

Training on food safety is provided to responders and volunteers Yes/No 

Training on environmental health is provided to pre-designated managers, responders, and 

volunteers of mass-care operations 

Yes/No 

Percent of solid waste and debris and disposal workers adequately trained and protected 

(PPE) 

100% 

Performance Tasks and Measures/Metrics 

Activity: Direct Environmental Health Operations (Command and Control) 

Definition: In response to notification of environmental hazards, provide overall mobilization, 

management of assessment, and coordination and support of Environmental Health activities 

through demobilization

Critical Tasks

Res.B3c 3.1 Coordinate the environmental health function into response activities 

Res.B3c 3.1.1 Develop an incident-specific plan to coordinate the various elements of environmental health 

among Federal, State, and local response 

Res.B3c 3.1.3 

Determine and ensure the coordination for the analysis and database management of 

environmental samples, including those for which other agencies are responsible for the 

interpretation of results and risk communication 

Res.B3c 3.1.4 Provide environmental health support and coordination for Crisis and Emergency Risk 

Communication 

Res.B3c 3.1.4.1 Develop Crisis and Emergency Risk Communication information for dissemination through the 

Joint Information Center to media, public, partners and stakeholders 

Res.B3c 3.1.4.2 Identify and communicate environmental health risk issues to the affected population 

Res.Bc3 3.1.5 Provide input on forecasting and planning aspects as part of the Incident Command System (ICS) 

for environmental health needs in the subsequent operation period 

Res.Bc3 3.2 Provide support and coordinate environmental health resources to address potable water supply 

issues 

Res.Bc3 3.3 Provide support and coordinate environmental health resources to address waste water issues

Res.Bc3 3.4 Provide support and coordinate environmental health resources to address mass care issues 
318 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.Bc3 3.5 Provide support and coordinate environmental health resources to address debris and waste 

management issues

Res.Bc3 3.6 Provide support and coordinate environmental health resources to address responder safety and 

health (link to capability) 

Res.Bc3 3.7 Provide support and coordinate environmental health resources to address hazardous materials 

(CBRNE) issues 

Res.Bc3 3.8 Provide support and coordinate environmental health resources to address vector control 

response issues 

Res.Bc3 3.10 

Provide support and coordinate environmental health resources to address medical care issues to 

include exposure assessment, toxicological consultation, dose assessment, secondary exposure, 

medical waste management 

Res.Bc3 3.11 Provide support and coordinate environmental health resources to address food and agricultural 

safety and defense 

Res.Bc3 3.12 Provide support and coordinate environmental health resources to address animal-health 

emergency support issues 

Res.Bc3 3.13 Provide support and coordinate environmental health resources to address food supply issues 

Res.Bc3 3.14 Provide support and coordinate environmental health resources to address safe re-entry and reoccupancy of community, homes, and facilities 

Res.Bc3 3.15 Provide support and coordinate environmental health resources to address outdoor environmental 

issues 

Performance Measures Metric

Time in which technical information, support and consultation is provided for the creation 

of Crisis and Emergency Risk Communication messages 

Within 60 minutes 

from request 

Percent of time that environmental health technical information, support and coordination 

is provided in response to a request or an identified need 

100% 

Percent of time that environmental health resources are deployed in response to a request 

or an identified need 

100% 

Time in which environmental health input is provided for the forecasting and planning 

aspects of the Incident Action Plan (IAP) 

Within 60 minutes 

from request 

Activity: Activate Environment Health 

Definition: Identify required experts and mobilizes personnel to begin environmental health 

assessments and response activities

Critical Tasks 

Res.B3c 4.1 Identify environmental health specialties required to assess and support response 

Res.B3c 4.2 Mobilize environmental health personnel 

Res.B3c 4.3 Mobilize environment health resources 

Performance Measures Metric 
Target Capabilities List 319 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Appropriate environmental health specialties have been identified or put on standby Yes/No 

Time in which environmental health personnel are mobilized Within 24 hours from incident 

Activity: Ensure Safety of Potable Water Supplies 

Definition: Conduct health assessments and take actions necessary to ensure that the public has 

sufficient access to safe potable water for drinking, washing, and ice 

Critical Tasks 

Res.B3c 5.1 Provide initial damage assessment of drinking water infrastructure 

Res.B3c 5.2 Request needs for equipment and personnel through emergency operations, Emergency 

Management Assistance Compact, federal assistance, or mutual aid agreements 

Res.B3c 5.2.1 Deploy personnel and equipment to repair, conduct assessments, provide technical assistance and 

conduct monitoring of drinking water supplies and systems 

Res.B3c 5.1.1 Develop prioritization list of activities to provide potable water to affected populations and key 

facilities 

Res.B3c 5.1.2 Conduct ongoing and follow-up assessment of systems to include facility assessments, equipment 

needs assessments, water sampling, and laboratory analysis and personnel needs 

Res.B3c 5.3 Conduct ongoing repairs, technical assistance, and monitoring for all water systems 

Res.B3c 5.4 Disseminate water communication messages to appropriate groups considering population and 

cultural differences 

Performance Measures Metric 

Time in which initial assessments for water system needs for affected populations 

and priority facilities are conducted 

Within 12 hours from 

establishment of 

communications 

Time in which all public water facilities are assessed Within 14 days from incident 

Percent of time that State and local drinking water regulations are met for drinking 

water at point of use or entry into the distribution system to include the following 

systems: (1) Public Water Utility; (2) Alternative Water Supplies (Hauled Water, 

Bulk Water, Bottled Water); (3) Unregulated systems (individual wells); (4) 

Temporary or mobile treatment systems (ROPU, Portable onsite treatment) 

100% 

Activity: Ensure Safety of Food Supplies

Definition: Conduct health assessments and take actions necessary to ensure that the food 

supply meets the health and safety codes of local jurisdiction

Critical Tasks 

Res.B3c 6.1 Identify high risk foods, food supplies and systems, facilities, and transport mechanism 

(temporary providers) that may pose hygiene or safety issues because of the event 

Res.B3c 6.2 Conduct initial assessments of food facilities using Emergency Guidelines and Operation Criteria 

or applicable code 

Res.B3c 6.2.1 Conduct field surveys to assess damage to food facilities 
320 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 6.2.2 Assess safety and integrity of food supply delivery and transport mechanisms 

Res.B3c 6.2.3 Ensure that the safety and integrity of food supply and delivery is considered when conducting 

community infrastructure assessments 

Res.B3c 6.2.4 Record and report assessments through automated systems (e.g., scanned forms or handhelds) to 

develop reports for follow-ups and tracking of common and related issues 

Res.B3c 6.3 Determine safety of response activities 

Res.B3c 6.4 Establish priorities for response activities 

Res.B3c 6.5 Activate COOP/COG plans 

Res.B3c 6.6 Address compromised safety and integrity issues of the food supply an delivery system 

Res.B3c 6.7.1 Provide just-in-time training for volunteers 

Res.B3c 6.7 Activate volunteers 

Res.B3c 6.8 Ensure proper food handling in non-traditional operations activated during emergency response, 

and ensure best practices 

Res.B3c 6.8.1 Ensure proper food salvage of at risk foods and beverages or potentially exposed food products 

Res.B3c 6.8.2 Recommend the closing of facilities or operations when appropriate and address non-compliance 

with recommendations 

Res.B3c 6.9 

Provide Crisis and Emergency Risk Communication to public entities on topics such as the safe 

disposal of damaged or contaminated food in coordination with Emergency Public Information 

and Warning 

Res.B3c 6.9.1 Ensure Crisis and Emergency Risk Communication to regulated entities 

Res.B3c 6.10 

Conduct environmental investigations of disease outbreaks possibly related to food-borne 

exposure supported by information systems that comply with the Public Health Information 

Network Functional Area Outbreak Management 

Res.B3c 6.10.1 Clear facilities or operations for resumption of services when appropriate 

Performance Measures Metric 

Time in which assessment of priority food facilities is initiated using emergency 

guidelines and operation criteria applicable to the affected area 

Within 24 hours from 

incident 

Food safety personnel participate in infrastructure assessment Yes/No 

Activity: Ensure Safety of Wastewater Management

Definition: Conduct health assessments and take actions necessary to ensure that waste water is 

properly managed and disposed 

Critical Tasks 

Res.B3c 7.1 Provide initial damage assessment of waste water collection, treatment and disposal facilities 

Res.B3c 7.2 Request needed equipment and personnel through emergency operations, Emergency 

Management Assistance Compact, Federal assistance, or mutual aid agreements 

Res.B3c 7.2.1 Deploy personnel and equipment to repair, conduct assessments, provide technical assistance and 

conduct monitoring of waste water systems 
Target Capabilities List 321 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 7.1.1 Develop prioritization list of activities to provide waste water collection, treatment and disposal 

facilities to affected populations and priority facilities (e.g., shelters, hospitals, etc.) 

Res.B3c 7.1.2 

Conduct ongoing and follow-up assessment of systems to include facility assessments, 

equipment needs assessments, waste water sampling, and laboratory analysis and personnel 

needs 

Res.B3c 7.3 Conduct ongoing repairs, technical assistance, and monitoring for all waste water systems 

Res.B3c 7.4 Disseminate waste water communication messages to appropriate groups considering population 

and cultural differences 

Performance Measures Metric 

Time in which initial assessments are conducted for waste water system needs for 

affected populations and priority facilities (e.g., shelters, hospitals, etc.) 

Within 12 hours from 

establishment of 

communications 

Time in which all public waste water facilities are assessed Within 14 days from incident 

Percent of time that State and local waste water regulations are met for waste water 

to include the following systems: (1) Public Waste Water Utility; (2) Alternative 

Waste Water (portable toilets, temporary lagoons, waste hauling); (3) Unregulated 

systems (individual septic tanks); (4) Land application 

100% 

Percent of affected populations provided with adequate temporary sewage disposal 

alternatives 

(1 portable toilet per 20 persons or access to pit latrines provided to all personnel 

according to The Sphere Project Minimum Standards in Disaster Response 

guidelines) 

100% 

Activity: Provide Vector Surveillance

Definition: After vector is identified, mobilize and equip control personnel with appropriate 

personal protective equipment and direct control strategies and application of vector control 

substances

Critical Tasks 

Res.B3c 8.1 Provide vector control 

Res.B3c 8.1.1 Assist in the coordination of vector control response 

Res.B3c 8.2 Establish a vector control technical expertise team for surveillance and monitoring of animal 

infections until population densities and infection rates return to pre-event levels 

Res.B3c 8.3 Conduct assessment of insect, animal and rodent vectors to include population densities, 

infectivity rates, and human risk potential 

Res.B3c 8.4 Coordinate emergency vector control measures to the extent needed to supplement local capacity 

and reduce risk to pre-event levels 

Res.B3c 8.3.1 Monitor vectors 

Res.B3c 8.4.1 Develop plan to work with local vector control to assist while they rebuild capabilities 

Performance Measures Metric 

Time in which initial assessment of insect, animal, and rodent vectors 

is completed 

Within 72 hours from incident 

confirmation 
322 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Percent of vectors mitigated 85% 

Time in which animal control measures are initiated Within 96 hours from incident 

Frequency with which database with areas treated for vector control is 

updated 

Every 48 hours 

Frequency with which geo-coded database is updated with all 

locations assessed or treated for vectors during incident 

Every 48 hours 

 

Activity: Ensure Safety of Building Environments 

Definition: Conduct health assessments and take actions necessary to ensure that buildings can 

be safety re-entered 

Critical Tasks 

Res.B3c 9.1 Provide environmental health support on assessing buildings for re-entry 

Res.B3c 9.1.1 Assist assessments to collect and analyze data needed to determine safe re-entry and reoccupancy of community, homes and facilities 

Res.B3c 9.2 Coordinate with NIOSH/OSHA/Hazmat to identify facilities that are safe for re-entry 

Res.B3c 9.1.2 Assess community structures and issue recommendations for safe operations 

Res.B3c 9.3 Provide geo-coded status report of community, homes, facilities, and structures identified as safe 

or unsafe to re-enter and re-occupy 

Res.B3c 9.1.3 Assess rehabilitation of community, homes, facilities, and structures 

Res.B3c 9.4 Monitor re-entry operations 

Performance Measures Metric 

Percent of affected communities, homes, educational, institutional and health care facilities 

monitored in accordance with established evaluation processes and criteria 

100% 

Frequency with which data is analyzed during the incident to determine status of safe reentry and re-occupancy of community, homes, and facilities Every 12 hours 

Time in which a geo-coded system is implemented to determine status of rehabilitation 

efforts and health and safety issues associated with reentry and re-occupancy 

Within 72 hours 

from the incident 

Documentation is maintained for assessments conducted Yes/No 

Frequency with which geo-coded status report of community, homes and facilities identified 

as safe or unsafe to re-enter and re-occupy are updated 

Every 12 hours 

Activity: Ensure Safety of Outdoor Environments 

Definition: Conduct health assessments and take actions necessary to ensure that areas can be 

safety re-entered 

Critical Tasks 

Res.B3c 10.1 Design and conduct appropriate environmental sampling programs 

Res.B3c 10.2 Geo-code all environmental samples and make them publicly available in a timely manner where 

appropriate 
Target Capabilities List 323 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 10.1.1 

Provide health impact assessment of sampling results from various environmental sources to 

include: water, air, surfaces and soil via comparison to baseline results and/or preexisting 

standards and make them publicly available in a timely manner where appropriate 

Res.B3c 10.3 Recommend and/or lead remediation efforts for individual property owners and communities 

Res.B3c 10.4 Establish a sampling plan relevant to the event 

Performance Measures Metric 

Time in which the sampling plan is developed Within 24 hours from 

incident 

Time in which the sampling plan is initiated Within 72 hours from 

incident 

Time in which the initial findings and response recommendations are summarized and 

disseminated 

Within 96 hours from 

incident 

Time in which a full characterization and recommendations based upon the initial 

assessments are developed 

Within 14 days from 

incident 

Activity: Provide Environmental Health Support to Mass Care Response 

Definition: Conduct health assessments and take actions necessary to ensure that mass care 

facilities provide safe food, water, sanitation, and environment 

Critical Tasks 

Res.B3c 11.1 Coordinate environmental health assessments of mass care and shelter operations 

Res.B3c 11.1.1 Monitor the environmental health impact of changing population levels and circumstances in 

mass care and shelter operations 

Res.B3c 11.2 Conduct initial comprehensive environmental assessments (safety/food/water/wastewater 

sanitation) of mass care and shelter operations to ensure compliance with guidelines 

Res.B3c 11.2.2 Assess safety of potable water at mass care facilities-shelters, feeding centers, and sources of ice 

Res.B3c 11.2.3 Assess safety of food supply at mass care facilities-shelters, feeding centers, food/ice distribution 

centers 

Res.B3c 11.2.4 Assess safety of wastewater management (including toilets, on-site systems and hand washing 

facilities) at mass care facilities 

Res.B3c 11.3 Provide vector control to mass care and shelter facilities 

Res.B3c 11.4 Assess building safety for mass care and shelter facilities 

Res.B3c 11.5 Provide environmental health support to sold waste/debris removal at mass care and shelter 

facilities 

Res.B3c 11.6 Conduct follow-up environmental health assessments (safety/food/air/water/wastewater 

sanitation) of mass care operations 

Performance Measures Metric 

Time in which a sanitation assessment of drinking water at mass care facilities, shelters, and 

feeding centers is completed to ensure the water quality meets EPA standards 

Within 48 hours 

from onset of shelter 

operation 

Time in which comprehensive environmental assessments (water, air, sanitation, food, and 

safety) at mass care facilities, shelters, feeding centers, and food/ice distribution centers are 

Within 48 hours 

from onset of shelter 
324 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

completed to ensure: (1) Safe water – 7.7-15 liters/day; (2) Cot spacing (overcrowding)– 3.5 

m2; (3) Minimum 1 toilet/20 persons, etc. 

operation 

Frequency with which geo-coded database is updated with all mass care operations Every 12 hours 

Activity: Provide Environmental Health Support to Solid Waste/Debris Removal 

Definition: Conduct health assessments and take actions necessary to ensure that solid waste 

management and debris removal activities are conducted in a manner that protects public and 

environmental safety

Critical Tasks 

Res.B3c 12.1 Provide environmental health assessment of waste management and debris removal practices 

Res.B3c 12.1.1 Provide environmental health assessment of waste and debris in impacted areas 

Res.B3c 12.2 Monitor waste management and debris removal operations 

Res.B3c 12.2.1 Ensure the appropriate collection and management of waste and debris 

Res.B3c 12.3 Provide technical assistance and consultation for the environmental health aspects of waste 

management and debris removal

Performance Measures Metric 

Time in which assessment of waste management and debris removal operations for 

environmental health concerns is initiated 

Within 24 hours from 

incident 

Time in which monitoring of waste management and debris removal operations and 

practices is initiated 

Within 24 hours from 

incident 

Frequency with which geo-coded database is reviewed and updated after the 

collection and disposal process begins 

Every 24 hours 

Activity: Provide Environmental Health Support to Hazardous Materials 

Management/Decontamination 

Definition: Conduct health assessments and take actions necessary to ensure that hazardous 

materials management and decontamination activities are conducted in a manner that protects 

public and environmental safety

Critical Tasks 

Res.B3c 13.1 Participate in response to hazardous materials incidents by providing environmental health 

technical assistance, consultation, and support 

Res.B3c 13.2 Ensure that initial and follow-up assessments of environmental media impacted by hazardous 

materials incidents are conducted 

Res.B3c 13.3 Provide technical assistance, consultation, and support in the investigation of hazardous materials 

incident 

Res.B3c 13.4 Provide geo-coded locations and results for environmental samples following hazardous 

materials incidents 

Res.B3c 13.3.1 Provide technical assistance, consultation, and support during damage assessments following 

hazardous materials incidents 
Target Capabilities List 325 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Res.B3c 13.2.2 Assist in conducting assessments to identify environmental health hazards, threats, vulnerabilities 

and risks to facilities involved in the production, storage or distribution of hazardous materials 

Res.B3c 13.5 Provide environmental health technical assistance, consultation, and support and coordination in 

the management of environmental contaminants associated with hazardous materials incidents 

Res.B3c 13.6 Provide technical assistance, consultation, and support in establishing and monitoring access 

restrictions/quarantine to contaminated areas during hazardous materials incidents 

Res.B3c 13.7 Provide technical assistance, consultation, and support regarding decontamination procedures 

Res.B3c 13.8 Provide technical assistance, consultation, and support for plume modeling and evacuation 

Res.B3c 13.7.1 Provide technical assistance, consultation, and support for decontamination operations 

Performance Measures Metric 

Time in which technical assistance, consultation, and support to hazardous materials 

responders is initiated 

Within 24 hours from 

incident 

Time in which technical assistance, consultation, and support for damage assessments 

during hazardous materials incidents is initiated 

Within 48 hours from 

incident 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations 

Center Management 

Environmental Health provides information to EOC Management for situational 

awareness about environmental hazards that require response (clean-up, evacuation, etc) 

and/or that impact responder health and safety. Environmental Health makes 

recommendations on mitigation to decision makers in the EOC. Environmental Health 

also requests resources from the logistics section within the EOC. 

Citizen Evacuation and 

Shelter-In-Place 

Environmental Health provides protective action recommendations to Citizen 

Evacuation and Shelter-In-Place 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Environmental Health provides oversight to Mass Care (Sheltering, Feeding, and 

Related Services) operations to ensure safe food, clean air and water, and necessary 

waste disposal and other sanitation requirements. 

Animal Disease 

Emergency Support 

Environmental Health provides an environmental health threat assessment to Animal 

Disease Emergency Support. 

Epidemiological 

Surveillance and 

Investigation 

Epidemiological Surveillance and Investigation identifies potential vectors to 

Environmental Health. Environmental Health findings inform epidemiological 

investigations and targeted surveillance. 

Food and Agriculture 

Safety and Defense 

Environmental Health provides information on potential contaminated soil and water to 

be monitored. Environmental Health tasks related to eradication of crop diseases/pests, 

integrity of the food producing industry, and removal and disposal of potentially 

compromised food are listed in Food and Agriculture Safety and Defense 

Emergency Public 

Information and Warning 

Environmental Health provides information and recommends protection and mitigation 

strategies to be included in public releases to Emergency Public Information and 

Warning. 

Restoration of Lifelines Environmental Health provides information on environmental hazards to Restoration of 

Lifelines. 
326 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Linked Capability Relationship 

WMD and Hazardous 

Materials Response and 

Decontamination 

Environmental Health cooperates with WMD and Hazardous Materials Response and 

Decontamination on when and how to perform decontamination, after appropriate 

samples have been taken and returned for lab analysis. 

Responder Safety and 

Health 

Environmental Health comprises many of the “SMEs” referenced in Responder Safety 

and Health who will do environmental testing to inform what types of PPE are needed 

and what hazards exist for responders entering an environment. 

Economic and 

Community Recovery 

Environmental Health provides information regarding safe return to previously 

dangerous areas. Environmental Health also conducts long-term monitoring and 

remediation of contaminated sites. 
Target Capabilities List 327 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Resource Element Description 

Resource Elements Components and Description

Environmental Health Task Force 

(General) 

A Federal, State, Regional or Local task force comprising personnel with 

expertise in environmental health functional elements (e.g., water, food, 

debris and waste management, vector control, air) trained and equipped to 

address environmental health issues. Task force is capable of collecting 

general indoor and outdoor samples, conducting rapid needs assessments, 

coordinate environmental health risk-based advice to the emergency 

response community. Task force will identify and address environmental 

health issues of concern to the impacted populations. Support the public 

health planning and forecasting team. The size of the task force may be 

scaled for the particular response. Local officials are responsible for 

identifying all personnel even though the task force is composed of 

personnel from all levels of government. 

Personnel: 6 members, 1 lead 

Environmental Health Strike Team 

(Radiological) 

A team trained and equipped to conduct environmental health assessments; 

address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on radiological environmental health issues; 

and consult with environmental health subject matter expert(s) as needed. 

Team includes a health physicist to advise on a wide range of radiation 

exposure and relevant actual or potential health effect issues. Team 

includes trained radiological monitoring personnel to monitor the exposed 

population for radiation contamination and assist with decontamination. 

Personnel: 6 members, 1 lead; includes health physicist and trained 

radiological monitoring personnel 

Environmental Health Strike Team 

(Food) 

A team trained and equipped to conduct environmental health assessments; 

address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on food environmental health issues; and 

consult with environmental health subject matter expert(s) as needed. 

Local officials are responsible for identifying all personnel even though 

the strike team is composed of personnel from all levels of government. 

Personnel: 6 members, 1 lead 

Environmental Health Strike Team 

(Potable Water) 

A team trained and equipped to conduct environmental health assessments; 

address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on potable water environmental health issues; 

and consult with environmental health subject matter expert(s) as needed. 

Personnel: 14 members, 1 lead; 

Environmental Health Strike Team 

(Potable Water) – Technical 

Assistance 

Provides technical assistance and message to private homeowners with 

wells. 

Personnel: 6 members, 1 lead 

Environmental Health Strike Team 

(Debris and Waste Management) 

A team trained and equipped to conduct environmental health 

assessments; address environmental health issues; compile, geo-code, and 

interpret data; provide public health advice on debris and waste 

management environmental health issues; and consult with environmental 

health subject matter expert(s) as needed. 

Personnel: 6 members, 1 lead; 

Environmental Health Strike Team A team trained and equipped to conduct environmental health assessments; 
328 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Resource Elements Components and Description

(Vector Control) address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on vector control environmental health issues; 

and consult with environmental health subject matter expert(s) as needed. 

Team has experience and training in trapping, identification and control 

measures and is knowledge of notifications that need to be done before 

control can commence (e.g., beekeepers, no spray registries etc.). Local 

officials are responsible for identifying all personnel even though the strike 

team is composed of personnel from all levels of government. 

Personnel: 6 members, 1 lead; 

Environmental Health Strike Team 

(Hazardous Materials) 

Environmental Health Strike Team 

(Air) – outdoor 

A team trained and equipped to conduct environmental health assessments; 

address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on outdoor air environmental health issues; 

and consult with environmental health subject matter expert(s) as needed. 

Personnel: 8 members, 1 lead 

Environmental Health Strike Team 

(Air) – indoor air 

A team trained and equipped to conduct environmental health assessments; 

address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on indoor air environmental health issues; and 

consult with environmental health subject matter expert(s) as needed. 

Personnel: 6 members, 1 lead 

Environmental Health Strike Team 

(Wastewater) 

A team trained and equipped to conduct environmental health assessments; 

address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on wastewater environmental health issues; 

and consult with environmental health subject matter expert(s) as needed. 

Personnel: 14 members, 1 lead; 

Environmental Health Strike Team 

(Shelter) 

A team trained and equipped to conduct environmental health assessments; 

address environmental health issues; compile, geo-code, and interpret data; 

provide public health advice on mass shelter environmental health issues; 

and consult with environmental health subject matter expert(s) as needed. 

Local officials are responsible for identifying all personnel even though 

the strike team is composed of personnel from all levels of government. 

Personnel: 6 members, 1 lead; 

Environmental Health Lead 

Coordinator 

An environmental health professional trained and equipped to assume the 

environmental command component of incident response, or in applicable 

situations, assume incident command responsibilities. The coordinator 

will also supervise the activities of the environmental health task force and 

request strike team assets as needed. Local officials are responsible for 

identifying the coordinator even though the coordinator may be Federal, 

State, or local. 

Environmental Health Liaison An environmental health professional trained and equipped to represent 

environmental health concerns within the incident command structure. 

Planning Assumptions 

 This capability applies to a wide range of incidents and emergencies including accidental or 

deliberate disease outbreaks, natural disasters, nuclear and conventional events. Specific assumptions 

on consequences are based on the Natural Disaster – Major Earthquake Scenario. 
Target Capabilities List 329 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

 The capacity estimates and staffing formulas used in this capability are based on broad assumptions 

that may or may not reflect conditions in an actual emergency. 

 Members of response organizations are on a reserve/volunteer call-up status. They will require some 

time to assemble and must be relieved after some reasonable amount of time. 

 A progress rate of at least 10% improvement is expected in deriving capability requirements. 

 Power restoration will not occur immediate but will begin to increase after 2 weeks. 

 Funding and resources are abundantly available. 

Potable Water:

 Environmental Health Strike Team – Potable Water – Team consist of 15 members, 1 Team Lead and 

14 members, 14 members make up 7 Units (2 person per Unit). 

 All potable water systems initially inoperable. 

 Team size and make up will vary given the complexity of operations assessed. 

 Mobile laboratories will be requested to match the number of samples taken. Note: The Laboratory 

Target Capability function should contain this requirement. 

 Primary function of Teams is to assess damage, make recommendations, provide technical assistance 

and maintain the safety of potable water. 

 Initial Damage Assessments: 49 large regulated water supply systems (prioritized from large 

municipal to smaller systems); strike team is 7 Units of 2 people, each Unit can do 1 assessments per 

day; each strike team can do 7 systems per day; Need 1 team to accomplish all assessments in 1 week. 

 Initial Damage Assessments: 1,960 smaller regulated water supply systems; strike team is 7 Units of 

2 people, each Unit can do 5 assessments per day; each strike team can do 35 per day; Need 4 teams 

to complete all assessments in 2 weeks. 

 Temporary bulk water distribution site assessments: 504 distribution sites, strike team is 7 Units of 2 

people; each Unit can do 6 site assessments per day; each strike team can do 42 sites per day; Need 2 

teams to accomplish all assessments in 2 days. 

 Individual homeowner wells will not be an initial priority but will be require technical assistance. 

Assistance needs will increase water teams after 2 weeks when broader community power is restored. 

One small team of SMEs will be needed to develop public service messages and provide technical 

assistance. 7 person team consisting of 1 team lead and 6 team members. 

 Mobile water treatment unit assessments will be needed for 294 priority facilities, strike team is 7 

Units of 2 people, each Unit can do 6 site assessments per day; each strike team can do 42 sites per 

day; Need 2 teams to accomplish all assessments in 2 days. Sites will need to be evaluated before 

beginning operation therefore immediate assessments are required. Need 1 team to complete all 

assessments over 1 week. 

Waste Water:

 Environmental Health Strike Team – Waste Water – Team consist of 15 members, 1 Team Lead and 

14 members, 14 members make up 7 Units (2 person per Unit). 

 All waste water systems initially inoperable. 

 Team size and make up will vary given the complexity of operations assessed. 

 Mobile laboratories will be requested to match the number of samples taken. Note: The Laboratory 

Target Capability function should contain this requirement. 

 49 large regulated waste water systems , strike team is 7 Units of 2 people, each Unit can do 1 

assessments per day; each strike team can do 7 per day; Need 1 teams to accomplish all assessments 

in 1 week. 

 1,960 smaller regulated waste water supply systems. 7 Units of 2 people, each Unit can do 5 site 

assessments per day; each strike team can do 35 sites per day; Need 2 teams to accomplish all 

assessments in 2 weeks. 
330 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

 588 temporary lagoons and holding facilities assessed , 7 Units of 2 people, each Unit can do 6 site 

assessments per day; each strike team can do 42 sites per day; Need 2 teams to accomplish all 

assessments in 2 weeks. 

 196 land application sites are established and assessed, strike team is 7 Units of 2 people, each Unit 

can do 4 site assessments per day; each strike team can do 28 sites per day; Need 1 teams to 

accomplish all assessments in 1 week. 

Food

 12 hour operational period (work shift). 

 1.5 million meals per day needed. 

 Food for shelters will be prepared off site in 45 centralized kitchen facilities/commissary, 3 strike 

teams (consisting of 6 people) doing 45 inspections a day. 

 575 field kitchens and 1,875 mobile kitchens. These will require 30 strike teams (consisting of six 

people each) at a frequency of every other day for a total of 7560 inspections (I hour inspection) to be 

completed in one week. 

 Restaurants will not be allowed to reopen for an extended period of time (2 weeks). 

 Assume 10,000 preexisting regulated food facilities (including restaurants) (per 1 million people) . 

There will be a need for eh strike team (food) to perform initial assessment and/or ensure closure of 

these facilities. 40 EH strike teams (consisting of 6 people) can do 10,080 inspections (1 hour 

inspection time) in 2 weeks. 

 In order to maintain span of control of teams, 12 team leaders and two lead coordinators would be 

need to be identified.

Shelters

 Shelters will mostly be of temporary facilities (tent cities) assuming previously identified structures 

have been damaged due to earthquake, located close to affected population. 

 1,152 shelters, each capable of caring for 250 people – the average population per shelter will rise 

with a catastrophic event (estimated 1000 residents per shelter vs 250) because fewer facilities (400 

shelters) will be available than the preplanning estimation. It is assumed that shelters are located in 

Host communities and that each shelter has existing basic sanitation (water/wastewater) and will not 

require environmental support for water/wastewater. 

 A team of 6 emergency health strike team (shelter) members can assess 2 shelters in one day. 

Frequency of inspections should be every other day. 

 Planning for needs of EH strike teams (shelter) is based on first 30 days. There will be continued 

need for additional teams for displaced populations in FEMA trailer parks, ongoing shelters, etc. 

 100 of the 400 shelters are special needs. Companion animal needs should be addressed. 

 In order to maintain span of control of teams, 100 team leaders and ~16 lead coordinators would be 

need to be identified 

 After the acute response period, the need for temporary living quarters (FEMA temporary housing) 

will require further environmental health services 

 Some previously identified structures will not be able to be shelters due to actual or potential damage. 

 Timely logistical support to shelters and feeding sites will be essential and required for a sustained 

period of time. 

 An immediate and sustained need for bulk distribution of relief supplies will be required. 

Requirements will depend on the nature of the human needs produced by the incident. 

 Populations likely to require mass care services include the following: 1) Primary victims (with 

damaged or destroyed homes) 2) Secondary and tertiary victims (denied access to homes) 3) 

Transients (visitors and travelers within the affected area) 4) Emergency workers (seeking feeding 

support, respite shelter(s), and lodging). 
Target Capabilities List 331 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Vector Surveillance:

 6 counties affected 

 Prior indication of West Nile in the area 

 3 of 6 counties have pre-existing mosquito and rodent control programs, currently non-operational. 

 Vector surveillance: Senior public health entomologist responsible for receiving surveillance data and 

updating surveillance daily; 1 five-person field team per county for combination mosquito and rodent 

surveillance, consisting of 2 medical entomologists, 1 rodent control specialist and 2 general field 

technicians with equipment to collect and identify mosquitoes and rodents and with access to back-up 

labs at state or federal levels to test mosquitoes for West Nile and other arboviruses; each field team 

needs 2 vehicles (SUV or pick-up) for access to sampling sites in field and transport of samples back 

to labs at least twice a day; for access to remote sampling sites, one ATV per pick-up may be needed. 

 Shelter vector surveillance: One public health entomologist will liaison with the generalist task forces 

stationed at each shelter to advise on vector surveillance and receive surveillance data 

 Vector control: Recommendations are made to Incident Command for specific requirements to 

mitigate any vector issues; control measures will be contracted out to an operational unit with that 

capability 

Indoor and Outdoor Air Quality: 

 While 1,000,000 buildings will be damaged, re-entry will only be attempted at 1% of the buildings 

within the first month 

 Outdoor air quality monitoring: Four two-person units per county equipped with appropriate PPE and 

mobile air monitors for all outdoor air quality concerns (including, but not limited to PM, VOCs, 

PAHs, asbestos, and mold spores). Units will consist of 2 environmental health scientists with 

training in outdoor air quality monitoring. Units will have the capability to respond to acute point 

source events as well as general air quality concerns over the affected region. Units will have access 

to back-up labs at state or federal levels to process samples. Counties will be surveyed daily or every 

other day throughout the first 30-60 days, and then regularly (weekly or biweekly) throughout the 

recovery period to monitor for long-term events or problems. Where roads are passable, the EPA’s 

TAGA can be used for supplemental large-scale air monitoring efforts. 

 Indoor air quality monitoring: Two three-person Units per county equipped with appropriate PPE and 

indoor air monitors to perform air quality assessments and make recommendations for re-entry into 

1,000 damaged buildings within the first month. Units will consist of three environmental health 

scientists with training in indoor air monitoring. Units will have access to back-up labs at state or 

federal levels to process samples. 

 Air quality modeling and assessments: Two environmental health risk assessors with experience in 

air pollutant risk assessment will receive data as compiled by the air monitoring strike teams and 

make recommendations on exposure guidelines and health risks presented by indoor and outdoor air 

quality. For circumstances where air contamination must be modeled to forecast future hazards and 

vulnerabilities (e.g., the potential distribution of a plume), a team of three mathematical modelers 

with the appropriate training and modeling software should be available for this forecasting function

Building Environments (Utilizes EH General Task Force):

 Assessments occur after building is deemed structurally sound 

 Performed by the EH General Task Force, a multi-disciplinary team composed of seven 

environmental health scientists with a variety of specialties including but not limited to, food safety, 

industrial hygiene, engineering, environmental health and safety, environmental health specialist, 

sanitarian, etc. One member of the Task Force is designated a team leader. The six working 

personnel of the Task Force will be subdivided into three teams of two that will conduct field 

assessments.
332 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

 The Task Force assists in the assessment of building environments, e.g., educational facilities, 

hospitals, institutions, and homes, for the presence of critical components affecting health, as 

appropriate to each structure. These components include sanitation, wastewater conveyance, vector 

control, indoor air quality, potable water, absence of hazards, etc.

 Residences, schools (500 students), hospitals (500 beds), institutions (100 person occupancy, e.g., 

jails) are representative buildings that vary in complexity of operation.

 Each team of two should be able to assess 16 homes per day; 2 schools per day; 1 hospital per day; or 

3 institutions per day. These assessments will scale up by a factor of three for the whole Task Force.

 This team also possesses the multi-disciplinary ability to assist in the assessment of buildings for 

emergency sheltering needs, and should be able to be used in this capacity. 

 Assume that of the 1,000,000 buildings damaged, only 1% will be re-occupied within the first 30 

days. The Task Force will assess 1,000 buildings in this time frame, of which 10 are jails, 5 hospitals, 

4 schools and the rest are homes (981). 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Natural Disaster – Major Earthquake Scenario) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement Values 

Quantity of 

Resources 

Needed 

Environmental Health 

Task Force (General) 

Task force can assess: 

• Homes: 48 per day 

• Schools: 6 per day 

• Hospitals: 3 per day 

• Institutions: 9 per day 

In 30 days, need to assess: 

• 10 institutions 

• 5 hospitals 

• 4 schools 

• 981 homes 

1 Task Force 

Environmental Health 

Strike Team (Food) 

Strike Team can inspect: 

• 45 centralized kitchen 

facilities/commissary 

per daily 

• 7,560 field and mobile 

kitchens per week 

• 10,080 regulated 

facilities in two weeks 

Need to inspect: 

• 45 centralized kitchen 

facilities/commissary 

• 575 Field kitchens and 

1,875 mobile kitchens 

every 48 hours 

• 10,000 preexisting 

regulated facilities (per 

one million people) 

3 teams for 

centralized kitchens 

30 teams for field 

kitchens 

40 teams for 

regulated facilities 

Environmental Health 

Strike Team (Potable 

Water) 

Strike Team can inspect: 

• 7 large regulated water 

supply systems per day 

per team 

• 35 small regulated water 

supply systems per day 

per team 

• 42 mobile water 

treatment units per day 

per team 

• 42 temporary bulk water 

distribution sites per day 

per team 

Need to inspect: 

• 49 large regulated water 

supply systems in 1 

week 

• 1,960 smaller regulated 

water supply systems in 

2 weeks 

• 294 Mobile water 

treatment units assessed 

as opened over 1week 

• 504 temporary bulk 

water distribution sites 

within 2 days 

1 team for large 

systems 

4 teams for smaller 

systems 

1 team for mobile 

units 

2 teams for bulk sites 
Target Capabilities List 333 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement Values 

Quantity of 

Resources 

Needed 

Environmental Health 

Strike Team (Potable 

Water) – Technical 

Assistance 

Team of 7 provides private 

homeowners with wells with 

technical assistance and 

messaging, 

Provides messaging and 

technical assistance over a 2 

week period 

1 team 

Environmental Health 

Strike Team (Debris and 

Waste Management) 

Team can assess 45 square 

miles per day for general 

waste and debris assessment 

900 square miles to be 

assessed within 10 days 

2 teams 

Environmental Health 

Strike Team (Vector 

Control) 

One county can be surveyed 

throughout a 30 day period 

Six counties surveyed 

throughout a 30 day period 

6 teams 

Environmental Health 

Strike Team (Hazardous 

Materials) 

Strike Team can inspect: 

• 45 hazardous materials 

facilities per day, and 

• 3 hazardous materials 

release incident per team 

Need to inspect: 

• 30,000 hazardous 

materials facilities 

within 20 days, and 

• 50 hazardous materials 

release incidents at peak 

34 teams 

17 teams 

Environmental Health 

Strike Team (Air) – 

outdoor air 

One-fourth of the geographic 

area of a county can be 

surveyed throughout a 30 

day period for outdoor air 

quality by a unit of 2 

members 

Six counties surveyed 

throughout a 30-day period 

6 teams of 8 

members (4 units) for 

outdoor air 

monitoring 

Environmental Health 

Strike Team (Air) – indoor 

air 

80 buildings can be surveyed 

for re-entry air quality over a 

30-day period by a unit of 3 

members 

1,000 buildings surveyed in 

a 30-day period 

6 teams of 6 

members (2 units) for 

indoor air monitoring 

Environmental Health 

Strike Team (Wastewater) 

Strike Team can inspect: 

• 7 large regulated waste 

water supply systems per 

day 

• 35 small regulated waste 

water supply systems per 

day 

• 42 temporary waste 

water lagoons per day 

• 196 land application sites 

per day 

Need to inspect: 

• 49 large regulated water 

supply systems in 1 

week 

• 1,960 smaller regulated 

waste water supply 

systems in 2 weeks 

• 588 temporary lagoons 

assessed in 2 weeks 

• 28 land application sites 

are established and 

inspected in 1 weeks 

1 team for large 

systems 

2 teams for smaller 

systems 

2 teams for lagoons 

1 team for land sites 

Environmental Health 

Strike Team (Shelter) 

1 strike team per average 

1000 shelter residents 

400,000 affected population 100 teams 

Environmental Health 

Lead Coordinator 

1 Lead Coordinator per 12 

Strike Teams 

260 Strike Teams 22 Lead Coordinators 

Environmental Health 

Liaison 

1 per EOC 1 per EOC 
334 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Environmental 

Health Task Force 

(General) 

Personnel, 

Training & 

Equipment 

1 Per 250,000 

population or per 

county/jurisdiction 

Local 

All Activities 

Environmental 

Health Strike Team 

(Radiological) 

Personnel, 

Training & 

Equipment 

 Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Provide 

Environmental 

Health Support to 

Hazardous 

Materials 

Management and 

Decontamination 

Environmental 

Health Strike Team 

(Food) 

Personnel, 

Training & 

Equipment 

1 1 per 125,000 

population 

Local Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Ensure 

Safety of Food 

Supplies

Environmental 

Health Strike Team 

(Potable Water) 

Personnel, 

Training & 

Equipment 

1 1 per 500,000 

population 

State 

(environmental 

protection 

department, 

public health 

department) 

Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Ensure 

Safety of Potable 

Water Supplies

Environmental 

Health Strike Team 

(Debris and Waste 

Management) 

Personnel, 

Training & 

Equipment 

1 Per 45 square miles Local 

(environmental 

health 

department) 

Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Provide 

Environmental 

Health Support to 

Solid Waste/Debris 

Removal

Environmental 

Health Strike Team 

(Vector Control) 

Personnel, 

Training & 

Equipment 

1 1 per county or 

jurisdiction 

Local Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Provide 
Target Capabilities List 335 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Vector Control 

Environmental 

Health Strike Team 

(Hazardous 

Materials) 

Personnel, 

Training and 

Equipment 

1 1 per 200,000 

population 

Local 

(environmental 

protection 

department) 

Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Provide 

Environmental 

Health Support to 

Hazardous 

Materials Facilities 

Surveillance and 

Hazardous 

Materials Incident 

Response 

Environmental 

Health Strike Team 

(Air) – Outdoor air 

Personnel, 

Training & 

Equipment 

1 1 per county or 

jurisdiction 

Federal (EPA) Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Ensure 

Safety of Outdoor 

Environments

Environmental 

Health Strike Team 

(Air) – indoor air 

Personnel, 

Training & 

Equipment 

1 1 per county or 

jurisdiction 

Federal (EPA) Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Ensure 

Safety of Building 

Environments; 

Environmental 

Health Strike Team 

(Wastewater) 

Personnel, 

Training & 

Equipment 

1 1 per 500,000 

population 

State 

(environmental 

protection 

department, 

public health 

department) 

Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Ensure 

Safety of 

Wastewater 

Management

Environmental 

Health Strike Team 

(Shelter) 

Personnel, 

Training & 

Equipment 

1 Per 1000 sheltered 

persons 

Local Direct 

Environmental 

Health Operations; 

Activate 

Environmental 

Health; Provide 

Environmental 

Health Support to 

Mass Care 
336 Target Capabilities List 

RESPOND MISSION: ENVIRONMENTAL HEALTH 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Response

Environmental 

Health Lead 

Coordinator 

Personnel & 

Training 

1 Per 12 Strike Teams Local All Activities 

Environmental 

Health Liaison 

Personnel & 

Training 

1 Per EOC or 

jurisdiction 

 All Activities 

References 

1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html 

2. National Response Plan (NRP). Department of Homeland Security. December 2004. 

3. National Incident Management System (NIMS). Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf 

4. National Mutual Aid and Resource Management Initiative, Resource Typing Definitions - I, Federal Emergency 

Management Agency. January 2004. 

5. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

6. Medical Personnel Exposed to Patients Contaminated with Hazardous Waste. Occupational Safety and Health 

Administration standard interpretation. March 1992. 

7. Accidental Radioactive Contamination of Human Food and Animal Feeds: Recommendations for State and 

Local Agencies. Food and Drug Administration. 

8. CDC Interim Plague Response Plans and Guidelines. Version 7. Centers for Disease Control and Prevention 

Epidemic/Epizootic West Nile Virus in the US: Guidelines for Surveillance Prevention and Control. August 

1998.2003. http://www.cdc.gov/ncidod/dvbid/westnile/resources/wnv-guidelines-aug-2003.pdf/11/2002. 

9. Manual of Protective Action Guides and Protective Actions for Nuclear Incidents. EPA 400R9200, US 

Environmental Protection Agency. 1991. (Revised guidance due to be issued late 2005/early 2006 will include 

Protective Action Guides for water) 

10. CDC Interim Tularemia Response Plans and Guidelines. Version 6/24/2002. 
Target Capabilities List 337

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Capability Definition 

Explosive Device Response Operations is the capability to coordinate, direct, and conduct improvised 

explosive device (IED) response after initial alert and notification. Coordinate intelligence fusion and 

analysis, information collection, and threat recognition, assess the situation and conduct appropriate 

Render Safe Procedures (RSP). Conduct searches for additional devices and coordinate overall efforts to 

mitigate chemical, biological, radiological, nuclear, and explosive (CBRNE) threat to the incident site. 

Outcome 

Threat assessments are conducted, the explosive and/or hazardous devices are rendered safe, and the area 

is cleared of hazards. Measures are implemented in the following priority order: ensure public safety; 

safeguard the officers on the scene (including the bomb technician); collect and preserve evidence; protect 

and preserve public and private property; and restore public services.

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

Terrorism Incident Law Enforcement and Investigation Annex 

ESF #10: Oil and Hazardous Materials Response 

ESF #13: Public Safety and Security 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B2c 1.1 Develop, distribute, and maintain National Guidelines for Bomb Technicians 

Res.B2c 1.2

Develop effective procedures and programs including standardized training to counter terrorist 

events, employing weapons of mass destruction (WMD), suicide bombers, Vehicle Borne 

Improvised Explosive Devices (VBIED), and Radio Controlled Improvised Explosive Devices 

(RCIED) 

Res.B2c 1.1.1 Maintain programs to ensure public safety bomb technicians are certified, and re-certified by FBI 

Hazardous Devices School (HDS) 

Res.B2c 1.1.2 Maintain programs to ensure all public safety bomb squads remain accredited by the FBI 

according to National Guidelines for Bomb Technicians 

Res.B2c 1.3 Develop and maintain plans that coordinate explosive device response in multi-jurisdictional 

areas which protect critical infrastructure and key resources from terrorist threats 

Res.B2c 1.4 Develop and maintain programs to measure gaps in explosive device response capability 

Res.B2c 1.5 Develop and maintain programs to share explosive device response information, effective 

practices, and lessons learned 
338 Target Capabilities List 

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Res.B2c 1.6 Assist public safety bomb squads and teams in achieving increased capability to counter terrorist 

events with goal of a Type I rating 

Preparedness Measures Metrics

Percent of bomb squads accredited by the FBI to standards set by the National Bomb Squad 

Commanders Advisory Board (NBSCAB) 

100% 

Effective plans for Explosive Device Response Operations are in place Yes/No 

Plans address standardized education to certify bomb technicians (e.g. FBI Hazardous Devices 

School, National Bomb Squad Commanders Advisory Board). 

Yes/No 

Plans address onsite treatment of devices (e.g. deactivation, disruption, disabling, 

containerizing for transport). 

Yes/No 

Plans address communications requirements (e.g. establish onsite command, control, 

communications and intelligence operations). 

Yes/No 

Effective plans, tactics, techniques, and procedures to respond to suicide bombers are in place Yes/No 

Effective plans, tactics, techniques, and procedures to respond to vehicle borne improvised 

explosive devices are in place 

Yes/No 

Effective plans, tactics, techniques, and procedures to respond to radio controlled improvised 

explosive devices are in place 

Yes/No 

Effective plans, tactics, techniques, and procedures to respond to improvised devices that 

contain chemical, biological, and radiological components (Weapons of Mass Destruction) are 

in place 

Yes/No 

Current mutual aid agreement that permits sharing of personnel and/or equipment is in place (if 

necessary) 

Yes/No 

Squads obtain the equipment and training to receive a Type I or II rating Yes/No 

 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks 

Res.B2c 2.1.6 Train public safety personnel to recognize explosive hazards, device components and precursors 

and take appropriate action to maintain public safety 

Res.B2c 2.1.8 Train public safety personnel and private sector security to effectively operate during explosive 

device incidents 

Res.B2c 2.3 Provide bomb threat awareness training and information to general public and private sector 

Res.B2c 2.1.1 Establish in-service training programs for bomb squads that meet or exceed minimum 

recommendations set in the National Guidelines for Bomb Technicians 

Res.B2c 2.1.2 Initially train, certify, and re-certify public safety bomb technicians using curriculum designed, 

developed and delivered by the NBSCAB and the FBI Hazardous Devices School (HDS) 

Res.B2c 2.1.3 Initially accredit, and re-accredit public safety bomb squads using the curriculum developed by 

the NBSCAB and the FBI Hazardous Devices School (HDS) 

Res.B2c 2.1.4 Design, develop and deliver specialized training for public safety bomb squads and bomb 

technicians in cooperation with FBI Hazardous Devices School (HDS) 
Target Capabilities List 339

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Res.B2c 2.1.5 

Design, develop and deliver explosive device response capability enhancement training and 

technical assistance for public safety bomb squads and bomb technicians to coordinate national 

prevention and protection efforts in cooperation with the DHS 

Res.B2c 2.1.9 

Design, develop, and deliver training in post-blast investigation consistent with the Bomb Scene 

Investigation Concept that includes a qualified bomb technician as part of the post-blast 

investigation team 

Res.B2c 2.1.7 Obtain DHS certification and approval for use of Homeland Security Grant funds for selected 

training and technical assistance 

Res.B2c 2.2.1 Validate effectiveness of plans, procedures, and programs through realistic practical exercises 

Preparedness Measures Metrics

Effective training and exercise programs for responding to suicide bombers are in place Yes/No 

Effective training and exercise programs for responding to Vehicle Borne Improvised 

Explosive Devices (VBIED) are in place 

Yes/No 

Effective training and exercise programs for responding to Radio Controlled Improvised 

Explosive Devices (RCIED) are in place 

Yes/No 

Effective training and exercise programs for responding to improvised devices that 

contain chemical, biological, and radiological components (Weapons of Mass 

Destruction) are in place 

Yes/No 

Percent of certified bomb technicians trained and exercised in all required areas 100% 

Effective tactics, techniques, procedures, and training are standardized and shared within 

the bomb squad community 

Yes/No 

Effective practices and training are reinforced as needed during practical exercises that 

accurately replicate threats and operating conditions 

Yes/No 

Percent of public safety personnel trained in explosive device awareness 100% 

Percent of squads that meet or exceed the continuing minimum training set in the National 

Guidelines for Bomb Squad Technicians 

100% 

General public and private sector are provided with bomb threat awareness training as 

needed 

Yes/No 

All bomb squad training (including techniques, tactics, and procedures) is consistent with 

and enhances training delivered by the FBI Hazardous Devices School (HDS) 

Yes/No 

Performance Measures and Metrics and Critical Tasks 

Activity: Direct Explosive Device Response Operations 

Definition: In response to notification of a potential exploding device, provide management and 

coordination of Explosive Device Response Operations capability, through demobilization

Critical Tasks

Res.B2c 3.1 Establish onsite command, control, communications, and intelligence (C3I) operations for 

explosive device response operations 

Res.B2c 3.2 Coordinate with Incident Command (IC) to establish perimeter control (hot, warm, cold zones) 
340 Target Capabilities List 

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

commensurate with hazard magnitude 

Res.B2c 3.3 Coordinate with appropriate unit and develop a plan of action 

Res.B2c 3.3.1 Utilize canine, physical, and technical search techniques to secure inner perimeter 

Performance Measures Metrics

Time in which onsite command and control communications (C3) is established and real 

time tactical information is shared 

Note: If C3 and info-share are established, bomb squad will demonstrate ability to 

“join” rather than establish the network 

Within 15 minutes from 

arrival onsite 

Activity: Activate Public Safety Bomb Squad 

Definition: In response to activation, mobilize and arrive at the incident scene to begin operations

Critical Tasks

Res.B2c 4.2 Notify and activate Public Safety Bomb Squad Personnel 

Res.B2c 4.3 Determine needed personnel and equipment based on information provided 

Res.B2c 4.4.1 Assemble properly equipped bomb squad team at designated location 

Res.B2c 4.5 Reassess personnel and equipment needs upon arrival 

Performance Measures Metric

Time in which Bomb Squad personnel is notified by dispatch Within 15 minutes from time 

of recognition of explosive 

device threat by on-scene first 

responders 

Time in which determination is made as to personnel and equipment that needs to 

be dispatched 

Within 15 minutes from 

notification 

Time in which required personnel and equipment are enroute to the scene Within 30 minutes from initial 

notification 

Activity: Search and Assess Site

Definition: Once on scene and equipped, provide rapid assessment of assigned Bomb Squad 

work areas, recommend search priorities/tactics to management, and begin search operations 

utilizing canine, physical, and technical (e.g. electronic, robotic) search techniques

Critical Tasks

Res.B2c 5.1.1 Interview on-scene commander and any witnesses with direct observation of the device 

Res.B2c 5.1 Conduct an initial reconnaissance of the area 

Res.B2c 5.2 Implement emergency assessment procedures 

Res.B2c 5.3 Conduct improvised explosive device threat analysis 

Res.B2c 5.3.1 Determine appropriate operational procedures based on reconnaissance and initial assessments 

Res.B2c 5.4 Provide positive explosive identification and safety guidance 
Target Capabilities List 341

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Res.B2c 5.5 Notify proper Federal agencies if device is a suspected WMD 

Performance Measures Metric

Time in which initial cordon is verified Within 1 hour from arrival 

at incident scene 

Time in which Operational Threat Assessment is complete Within 1 hour from arrival 

at incident scene 

Activity: Render Safe Onsite

Definition: Once on scene, establish site perimeters based on Standard Operating Procedures 

(SOP) and threat, conduct IED onsite response and isolate device(s) from potential remote 

detonation commands, clear the onsite area for render safe operations, and ensure compliance 

with Radiological Assistance Program, Federal Radiological Emergency Response Plan, National 

Response Plan for radiological IEDs

Critical Tasks:

Res.B2c 6.3 Conduct improvised explosives device (IED) onsite response 

Res.B2c 6.1 Isolate device(s) from remote detonation commands 

Res.B2c 6 Render device safe 

Res.B2c 6.5 Identify appropriate off-site location if off-site render safe operations are necessary 

Res.B2c 6.5.1 Prepare device to be transported to secondary location if off-site render safe operations are 

necessary 

Res.B2c 6.3.1 Ensure compliance with Radiological Assistance Program plan (RAP), Federal Radiological 

Emergency Response Plan (FRERP) and National Response Plan for radiological IEDs 

Res.B2c 7.4 Document and preserve evidence 

Res.B2c 7.4.2 Initiate and advise crime scene investigative/forensic team 

Performance Measures Metric

Time in which public Safety Bomb Squad verifies and assesses site perimeters based on 

standard operating procedures (SOP) and threat 

Note: If perimeters were previously established Bomb Squad will verify 

Within 1 hour from 

arrival onsite 

Diagnostics and render safe procedures are conducted as appropriate for threat and device 

type by function

Yes/No 

Activity: Conduct Recovery, Removal, and Transport Operations 

Definition: Collect and transport device and/or components for further processing of hazardous 

elements

Critical Tasks

Res.B2c 7.1 Conduct onsite processing of device components and containerize for transportation 

Res.B2c 7.2 Transport and escort components to a secure site 

Res.B2c 7.3 Conduct off-site render safe and/or emergency destruction of device/explosives 
342 Target Capabilities List 

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Res.B2c 7.4.1 Document and preserve evidence 

Res.B2c 7.5 Assess further the functional characteristics of the device as they relate to response safety 

considerations (i.e. serial bomber) 

Res.B2c 6.3.1 Ensure compliance with Radiological Assistance Program plan (RAP), Federal Radiological 

Emergency Response Plan (FRERP) and National Response Plan for radiological IEDs 

Res.B2c 7.4 Document and preserve evidence 

Performance Measures Metric

Device and/or components are prepared for transport to a safe and secure site for 

processing and/or disposal within time period determined by bomb technicians 

on the scene, in accordance with public safety considerations 

Yes/No 

Activity: Demobilize Explosive Device Removal Operations

Definition: Upon completion of assigned mission, conduct 100% accountability of personnel and 

equipment, reconstitute as required and disengage from incident site, and either be placed on 

standby or redeploy to headquarters and stand-down

Critical Tasks

Res.B2c 8.1 Conduct 100% accountability of personnel and equipment 

Res.B2c 8.2 Coordinate with Incident Command (IC) and Emergency Operations Center (EOC) to redeploy 

Public Safety Bomb Squad 

Res.B2c 8.3 Conduct debriefing for Bomb Squad personnel 

Res.B2c 8.4 Conduct debriefing, when necessary, for all on-scene emergency personnel 

Performance Measures Metric

Percent of on-scene Bomb Squad personnel provided a debriefing after every 

incident 

100% 

Other responders are debriefed Yes/No 

Additional Bomb Squad personnel who were not at the scene are briefed Yes/No 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident Management Explosive Device Response Operations integrates itself into the local Incident 

Command/Unified Command system. Explosive Device Response Operations 

provides Incident Command/Unified Command with situation status reports and 

threat/consequence information from which Incident Command determines, 

coordinates, and controls response actions. On-Site Incident Management also 

provides additional resources as requested by Explosive Device Response 

Operations. 

Emergency Public Safety and 

Security Response 

Explosive Device Response Operations determines and provides Emergency 

Public Safety and Security Response with threat information and safe distance 

recommendations for establishing a safety perimeter to include hot, warm, and 
Target Capabilities List 343

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Linked Capability Relationship 

cold zones and any safety corridors that need to be established for movement of 

explosive devices. 

Counter-Terror Investigation 

and Law Enforcement 

Explosive Device Response Operations follows procedures for preservation of 

evidence and chain of custody of evidence. Explosive Device Response 

Operations turns site over to Counter-Terror Investigation and Law Enforcement 

after neutralizing the threat. 

WMD and Hazardous Materials 

Response and Decontamination 

Explosive Device Response Operations turns over remains of device to WMD 

and Hazardous Materials Response and Decontamination for further treatment, 

as necessary. 

Communications Explosive Device Response Operations must have the ability to transmit/receive 

secure voice, data and images between inter-agency law enforcement community 
344 Target Capabilities List 

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Direct Explosive 

Device 

Response 

Operations

End: End mission, 

reconstitute, and return to 

normal/standby operations

Activate Public 

Safety Bomb 

Squad

Search and 

Assess Site

Render 

safe 

onsite?

Demobilize 

Explosive Device 

Removal 

Operations

Conduct 

Recovery, 

Removal, and 

Transport 

Operations

Render Safe 

Onsite

No device 

found

Located & 

characterized 

device

Device 

rendered safe

Request 

appropriate 

approval for 

transport

Scene safe for 

re-entry

Determine 

resources to be 

dispatched

On-Site Incident 

Management

WMD/Hazardous 

Materials 

Response 

and 

Decontamination

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Start: 

Indication of 

bomb threat

Yes No

Capability Activity Process Flow

Explosive Device Response 

Operations Capability Linked 

Capabilities Relationship

Determine perimeter 

(hot, warm, cold zones)

Turn over evidence

Turn over remains of 

device

Scene turned over 

to Hazmat and LE/

forensic team

Area declared safe for normal access

Resources provided Decide to activate based on information available/

scene

Develop render safe plan

Provide sitreps

Provide site assessment to management

Communications Resources provided

Emergency 

Public Safety 

and Security 

Response

Counter-Terror 

Investigation and 

Law Enforcement
Target Capabilities List 345

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Resource Element Description 

Resource 

Elements

Components and Description

Bomb Squads Type I Per NIMS, a Type I level accredited bomb squad is capable of handling multiple 

incidents. Type I teams from these squads must have render safe capabilities 

including a remote (robotic) vehicle capable of handling a vehicle borne IED. 

Squads trained and equipped to work in a CBRN environment. 

Bomb Squads Type II Per NIMS, a Type II level accredited bomb squad is capable of handling multiple 

incidents. Type II teams from these squads must have render safe capabilities 

including a remote (robotic) vehicle which may not be capable of handling a vehicle 

borne IED. Squads trained and equipped to work in a CBRN environment. 

Bomb Squads Type III Per NIMS, a Type III level accredited bomb squad is capable of handling a single 

incident. Type III teams from these squads must have basic render safe capabilities 

without a remote (robotic) vehicle. Squads may be trained, but not equipped to work 

in a CBRN environment. 

FBI Special Agent Bomb 

Technician 

ATF Explosive 

Enforcement Officers 

DHS Office for Bombing 

Prevention 

DHS/TSA Explosives Unit 

National Guard EOD 

DoD/Military EOD 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability factors were 

developed from an in-depth analysis of the Improvised Explosives Device scenario. Other scenarios 

were reviewed to identify required adjustments or additions to the planning factors and national 

targets. 

 It is noted that the specific placement of existing bomb squads has been driven by bombing activity 

levels in the past, and the issue of adding new bomb squads or the rapid expansion of existing bomb 

squads is currently managed through a “Needs Survey” process by the FBI, based on standards set by 

the National Bomb Squad Commanders Advisory Board (NBSCAB) for the purpose of maintaining 

the optimum levels of qualified and experienced bomb squad personnel. The Needs Survey is further 

defined in the National Guidelines for Bomb Technicians. 

 General guidance -- Coverage of high density population and critical infrastructure/key resources 

(CI/KR) locations by Type I level bomb squad teams is being added as a factor in the “Needs Survey” 

process, detailed in the National Guidelines for Bomb Technicians. Other Locations – Type I, II, or 

III based on population, population density, critical infrastructure requirements, and additional factors 

as defined in the “Needs Survey” process 

 All situations must be assessed by the bomb technician on the scene as to time sensitive 

considerations. Safety issues take precedence over time considerations. 
346 Target Capabilities List 

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

 In catastrophic level Vehicle Borne Improvised Explosive Device (VBIED) situation where full 

remote capabilities are available, it is desired to have the technological potential for diagnostics and 

execution of the disruption tools within one hour from time of arrival on the scene. 

 Large Vehicle Bombs require Type I teams minimum 

 Radio Controlled Improvised Explosive Device (RCIED) require Type II team minimum, plus 

Electronic Countermeasures (ECM) training and equipment meeting standards set by NBSCAB 

 Suicide Bomber(s) require Type III team minimum 

 Effective response times are directly related to threat identification and communicative chain to 

dispatch. 

 Response timelines are dependent on location of event relative to placement of capability. 

 A system is in place to ensure the timely receipt of intelligence or device information to assist those 

responding to the threat. 

 Bomb Squad – A bomb response organization consists of at least one bomb response team (see the 

definition of a “bomb response team”), accredited by the FBI Hazardous Devices School to standards 

set by the National Bomb Squad Commanders Advisory Board. 

 Bomb Response Team – A sub-unit within a bomb squad, consisting of at least two certified bomb 

technicians and a full set of equipment meeting minimum standards for bomb squad operations. 

 Military EOD units are not currently resource typed within NIMS but are available to respond to 

incidents in the community either to assist the “accredited” bomb squad, or respond to the incident in 

an area without State/local bomb squad presence. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Bomb Squads 

(Type I, II, and III) 

NIMS Typed 

Resource 

Organization 

458 Nationally State/Local All activities 

FBI Special Agent 

Bomb Technician 

Personnel 140 Nationally, across 

56 Field Offices 

Federal 

(DOJ/FBI) 

All activities 

ATF Explosive 

Enforcement 

Officers 

Personnel 30 Nationally Federal 

(DOT/ATF) 

All activities 

DHS Office for 

Bombing 

Prevention 

Federal 

Resource 

Organization 

1 Nationally Federal 

(DHS)

Develop and 

Maintain Plans, 

Procedures, 

Programs, and 

Systems

Develop and 

Maintain Training 

and Exercise 

Programs

DHS/TSA 

Explosives Unit 

Personnel 32 Nationally Federal 

(DHS)

All activities 

(Airline/ 
Target Capabilities List 347

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Airport support) 

National Guard 

EOD 

Federal 

Resource 

Organization 

 Federal 

(DoD/U.S. 

National 

Guard) 

All activities 

DoD/Military EOD Federal 

Resource 

Organization 

 Federal (DoD) All activities 

References 

1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html 

2. Homeland Security Presidential Directive/HSPD-19, “Combating Terrorist Use of Explosives in the United 

States”. February 12, 2007. 

3. National Bomb Squad Commander's Advisory Board (NBSCAB). http://www.nbscab.org 

4. Hazardous Devices School (HDS), Federal Bureau of Investigation, Redstone Arsenal, Alabama. 

5. National Guidelines for Bomb Technicians, FBI Bomb Data Center Special Technicians Bulletin 87-4, Revised 

6/01. 

6. National Strategic Plan for U.S. Bomb Squads, November 2005. 

7. NFPA 471: Recommended Practice for Responding to Hazardous Materials Incidents, National Fire Protection 

Association, 2002 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=471. 

8. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents, National 

Fire Protection Association, 2002 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472. 

9. NFPA 1561: Standard on Emergency Services Incident Management System, National Fire Protection 

Association, 2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561. 

10. National Response Plan (NRP). Department of Homeland Security. December 2004. 

11. National Incident Management System (NIMS). Department of Homeland Security. March 

2004.http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf 

12. National Mutual Aid and Resource Management Initiative, Resource Typing Definitions- I. Federal Emergency 

Management Agency. January 2004. http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf 

13. Standardized Equipment List. The Interagency Board. 20. 

http://www.iab.gov/downloads/IAB%202004%20SEL.pdf 

14. Homeland Security Exercise and Evaluation Program (HSEEP), Volume II: Exercise Evaluation and 

Improvement. Office for Domestic Preparedness, Department of Homeland Security. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf 

15. 2004 Emergency Response Guidebook: A Guidebook for First Responders during the Initial Phase of a 

Dangerous Goods/Hazardous Materials Incident. Department of Transportation. 2004. 

http://HazMat.dot.gov/erg2004/erg2004.pdf 

16. Energetic Materials Research and Training Center (EMRTC). New Mexico. http://www.emrtc.nmt.edu 

17. Emergency Response to Terrorism: Basic Concepts. U.S. Department of Justice and Federal Emergency 

Management Agency. 2004 
348 Target Capabilities List 

RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS 

18. Bomb Squad Response to Suicide Bombers and Vehicle Borne Improvised Explosive Devices-Categories and 

Strategies, NBSCAB, January 2006. 

19. Bureau of Alcohol, Tobacco, Firearms and Explosives, Federal Explosives Law and Regulations, ATF P 5400.7 

(09/00).
Target Capabilities List 349 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

FIRE INCIDENT RESPONSE SUPPORT 

Capability Definition 

This capability provides coordination and implementation of fire suppression operations, which include 

the following tasks: assessing the scene, assigning resources, establishing an incident command system 

(ICS) consistent with the National Incident Management System (NIMS), communicating the status of 

the situation, requesting additional resources, establishing a safe perimeter, evacuating persons in danger, 

rescuing trapped victims, conducting fire suppression, determining the cause of the fire(s), and ensuring 

the area is left in a safe condition. This capability further includes support necessary to prepare the 

community and reduce vulnerabilities in the event of a major event. 

Outcome 

Dispatch and safe arrival of the initial fire suppression resources occur within jurisdictional response time 

objectives. The first unit to arrive initiates the Incident Command System (ICS), assesses the incident 

scene, communicates the situation, and requests appropriate resources including any necessary mutual aid 

or cross-discipline support. Firefighting activities are conducted safely and fire hazards are contained, 

controlled, extinguished, and investigated, and the incident is managed in accordance with emergency 

response plans and procedures. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

The capability supports Emergency Support Function (ESF) #4: Firefighting. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B2a 1.1 Develop plans, programs, and agreements on fire-related public safety protection activities, 

including region-wide or interstate automatic and mutual aid response protocols 

Res.B2a 1.2.5 Develop firefighting capability needed based on risk and threat assessment 

Res.B2a 1.2.2 Develop procedures and protocols for coordinating protective action communications with at-risk 

population on-scene 

Res.B2a 1.2.6 Conduct fire code inspections and coordinate with appropriate personnel for building inspections 

and compliance strategies 

Res.B2a 1.1.1 Conduct fire education and life safety training and education programs 

Res.B2a 1 Develop plans, procedures, and equipment guidelines to support firefighting response operations 

Res.B2a 1.1.3 Conduct building plan reviews to reduce or eliminate hazards 

Res.B2a 1.2.3 Develop plans for establishing alternative water supply 

Preparedness Measures Metrics
350 Target Capabilities List 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Firefighting plans and procedures address ICS and are integrated with onsite incident 

management 

Yes/No 

Plans include special risk requirements (e.g., alternative water supply) Yes/No 

Regional and interstate mutual and automatic aid agreements are in place Yes/No 

Specialized equipment needed for high-rise firefighting (e.g., 1-hr. bottles, high-rise 

packs, litters for evacuating injured, high-rise communication systems) is available 

Yes/No 

Specialized equipment for subway firefighting and search and rescue is available Yes/No 

Preplans and maps for subway system and standard operating procedure (SOP) for 

dispatching companies to subway egress points to assist in search and rescue and 

evacuation (departments with subway systems) are in place 

Yes/No 

Access to aerial units for deployment to roofs or high-rises (departments with high-rises) 

is available 

Yes/No 

Stocked and garaged spare apparatus to surge total number of companies by 25 percent 

over normal first-line staffing (large cities) are available 

Yes/No 

Procedures and protocols for coordinating protective action communications with at-risk 

population on-scene are in place 

Yes/No 

Procedures to ensure safety of operating personnel are in place Yes/No 

Procedures addressing demobilization are in place Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B2a 2.1 Develop and implement firefighting training program 

Res.B2a 2.1.3 

Develop and implement training to enable fire rescue and emergency medical services to 

recognize the presence of chemical, biological, radiological, nuclear, or explosive (CBRNE) 

materials 

ResB2a 2.2 Develop and implement firefighting exercise program 

Preparedness Measures Metric

Frequency with which training is provided in strategies for large-scale incidents Every 12 months 

Frequency with which training is provided in flammable liquid/bulk fuel storage 

firefighting (for jurisdictions with ports, refineries, storage, and shipment facilities for 

flammable liquids and gases) 

Every 12 months

Frequency with which training is provided in high-rise fires (for jurisdictions with highrises) Every 12 months

Frequency with which training is provided in mass transit fires (for jurisdictions with 

subways and/or commuter rail or light rail) 

Every 12 months

Frequency with which training is provided in shipboard firefighting (for jurisdictions with 

deep-water ports) 

Every 12 months

Frequency with which training is provided in wilderness/urban interface firefighting Every 12 months
Target Capabilities List 351 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Performance Tasks and Measures/Metrics 

Activity: Activate Fire Incident Response Support 

Definition: Receive alarm signal and respond to incident site

Critical Tasks 

Res.B2a 4.2.1 Establish and implement on-scene management for firefighting (utilizing ICS) 

Res.B2a 4.1 Receive notification of incident 

Res.B2a 4.3 Respond to scene with initial fire suppression resource assignment 

Res.B2a 4.4 Arrive on scene 

Performance Measures Metric 

Time in which first fire suppression resource arrives on scene (at least 90% of 

the time) 

Within 4 minutes from call 

Initial resource assignment is assembled in accordance with NFPA 1710 and 

NFPA 1720 (National Fire Protection Association Standards) 

Yes/No 

Personnel accountability system is implemented upon arrival Yes/No 

Time in which tactical operations are initiated Within 2 minutes from arrival on 

scene 

Activity: Size Up (Assess Site)

Definition: Observe scene and provide situation report

Critical Tasks 

Res.B2a 5.1.1 Observe incident site upon arrival and conduct initial size-up (site assessment) 

Res.B2a 5.1.4 Provide verbal situation report 

Res.B2a 5.2.1 Communicate need for additional resources 

Performance Measures Metric 

Time in which situation report is provided to additional responding 

personnel/units 

Within 2 minutes from arrival on 

scene 

Activity: Direct Fire Incident Response Support Tactical Operations 

Definition: In response to indication of fire, provide coordination and management of Fire 

Incident Response Support through demobilization

Critical Tasks

Res.B2a 3.2.1 Coordinate with On-Site Incident Management 

Res.B2a 3.3.1 Assign a Safety Officer to oversee firefighting operations 
352 Target Capabilities List 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Res.B2a 3.2.5 Establish initial Rapid Intervention Company (iRIC) 

Res.B2a 3.2.2 Establish objectives for conducting firefighting operations at incident scene 

Res.B2a 3.4.2 Assess resource requirements 

Res.B2a 3.4.2.1 Coordinate fire attack, victim rescue, and ventilation operations 

Res.B2a 3.2.3 Coordinate fire suppression operations 

Res.B2a 3.5.1 Notify other agencies as required by law 

Res.B2a 3.5.2 Communicate internal incident response information 

Res.B2a 3.2.4 Develop a water supply plan 

Res.B2a 3.3.4 Maintain personnel accountability system 

Res.B2a 3.3.2 Provide for responder safety, in coordination with Safety Officer, including responder 

rehabilitation 

Performance Measures Metric 

Time in which incident command for firefighting operations is 

established 

Within 5 minutes from arrival on scene 

Rapid Intervention Crew is established prior to start of interior structural 

firefighting operations 

Yes/No 

Time in which to request local mutual aid Within 60 minutes from arrival on scene 

Time in which other agencies are notified of incident as required by law Within 30 minutes from arrival on scene 

Time in which responder rehabilitation is established Within 30 minutes from arrival on scene 

Activity: Search Scene and Rescue

Definition: Upon arrival on scene, initiate search for trapped or endangered victims, remove 

victims to safe area, and request or provide medical treatment appropriate to the injuries/burns 

they might have received 

Critical Tasks 

Res.B2a 6.5.1 Initiate search for endangered, trapped, or injured victims

Res.B2a 6.5.2 Remove endangered, trapped, or injured victims to safe area

Res.B2a 6.5.5 Initiate or request treatment for victims

Performance Measures Metrics 

Primary and secondary search is completed within appropriate time give the size of 

structure, available resources, and incident conditions 

Yes/No 

 

Activity: Contain and Control

Definition: Upon arrival on scene, engage in fire suppression operations to contain, control, and 

extinguish fire, initiate search for trapped or endangered victims, remove victims to safe area, 

and request or provide appropriate medical treatment.
Target Capabilities List 353 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Critical Tasks

Res.B2a 6.1.1 Deploy primary and back-up fire attack lines 

Res.B2a 6.1 Implement fire attack plan 

Res.B2a 6.2 Conduct firefighting operations 

Res.B2a 6.2.2 Establish large master stream to contain spread of fire 

Res.B2a 6.2.5 Establish collapse zones and protect critical infrastructure 

Res.B2a 6.5.3 Incorporate additional resources to contain, control, and extinguish fire 

Res.B2a 6.3 Establish plan and alternate water supply 

Res.B2a 6.3.1 Implement plan and alternate water supply if needed 

Res.B2a 6.5.4 Assist in removal of affected individuals from the incident site 

Res.B2a 6.5.5 Initiate or request treatment for victims 

Res.B2a 6.6 Provide ongoing situation reports 

Performance Measures Metric 

Tactics employed were commensurate with incident Yes/No 

Fire is contained and extinguished within time appropriate for size of structure, available 

resources, and incident conditions 

Yes/No 

Sufficient size and quantity of hand lines are deployed for type and size of structure and 

volume of fire present 

Yes/No 

Time in which sufficient volume of alternate water supply in the event of loss of domestic 

water supply is established 

Within 30 minutes 

from loss of supply 

Activity: Conduct Overhaul Operations

Definition: Locate and extinguish hot spots and hidden fire in void spaces 

Critical Tasks 

Res.B2a 7.2 Locate hot spots and hidden fire in void spaces 

Res.B2a 7.3 Preserve incident scene for fire investigators and/or law enforcement 

Res.B2a 7.1 Conduct fire overhaul operations 

Performance Measures Metric 

Percent of hot spots located and extinguished 100% 

Percent of heavily involved areas opened up, from which materials are removed from the 

structure, and are thoroughly soaked, as appropriate 

100% 

Activity: Conduct Cause and Origin

Definition: Conduct on-site investigation to determine origin of fire and possible cause 
354 Target Capabilities List 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Critical Tasks 

Res.B2a 8.2 Collect and preserve non-contaminated evidence 

Res.B2a 8.3 Collect and preserve contaminated evidence 

Res.B2a 8.4 Investigate fires 

Performance Measures Metric 

Time in which other agencies are notified of incident in compliance with 

applicable laws 

Within 30 minutes from size-up 

Time in which qualified Fire Investigator arrives on-site Within 60 minutes from 

notification 

Cause of fire is determined Yes/No 

Activity: Demobilize Fire Incident Response Support

Definition: Upon completion of activities, prepare apparatus and personnel to leave incident site 

and return to service 

Critical Tasks 

Res.B2a 9.1 Inventory equipment and apparatus 

Res.B2a 9.2 Clean and repair equipment and apparatus prior to return to service 

Res.B2a 9.3 Participate in incident debriefing 

Performance Measures Metric

Capability is demobilized as specified in demobilization plan Yes/No 

Time in which equipment and apparatus are inventoried Within 30 minutes from start of 

demobilization 

Time in which equipment and apparatus are cleaned and prepared to return to 

service 

Within than 60 minutes from 

start of demobilization 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

Fire Incident Response Support receives and provides situation reports from/to OnSite Incident Management to communicate immediate protective actions with atrisk population 

Emergency Public Safety and 

Security Response 

Fire Incident Response Support requests Emergency Public Safety and Security 

Response to establish perimeter and crowd control 

WMD and Hazardous 

Materials Response and 

Decontamination 

Fire Incident Response Support provides victims to WMD and Hazardous Materials 

Response and Decontamination for decontamination 
Target Capabilities List 355 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Linked Capability Relationship 

Emergency Triage and PreHospital Treatment Fire Incident Response Support transfers patients to Emergency Triage and PreHospital Treatment for medical care and transport. 

Fatality Management Fire Incident Response Support provides notification of fatalities to Fatality 

Management for tracking and processing. 

Counter-Terror Investigation 

and Law Enforcement 

Fire Incident Response Support requests Counter-Terror Investigation and Law 

Enforcement investigate evidence 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Fire Incident Response Support requests Mass Care and provide assistance and 

services to displaced victims. 
356 Target Capabilities List 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Direct 

Firefighting 

Operations and 

Support Tactical 

Operations

End: Fire resources 

returned to service

Activate 

Firefighting 

Operations and 

Support

Size Up (Assess 

Site)

Conduct Overhaul 

Operations

On-scene ready to 

assess site

Contain and 

Control

Fire extinguished

Conduct Cause 

and Origin

Scene released 

to investigators

Demobilize 

Firefighting 

Operations and 

Support

Scene released 

by investigators

Start: Indication 

of fire

WMD/Hazardous 

Materials 

Response and 

Decontamination

Fatality 

Management

Mass Care 

(Sheltering, 

Feeding, 

and Related 

Services)

On-Site Incident 

Management

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Ready to begin fire 

control operations

Capability Activity Process Flow

Linked Fire Incident Response Support

Capabilities Relationship

Resources requested

Live victims rescued and sent for on-scene 

medical care and remains recovered

Scene declared safe

Area declared safe for normal access

Transfer

displaced persons

Notify of 

potential evidence

Notify of remains

Transfer patients

Provide victims/remains 

for decontamination

Request perimeter and 

traffic/crowd control

Provide sitreps

Resources provided

Unit(s) dispatched

Search Scene and 

Rescue

Victims removed 

to safe area

Emergency 

Public Safety and 

Security Response

Emergency 

Triage and PreHospital 

Treatment

Counter-Terror 

Investigation and 

Law Enforcement
Target Capabilities List 357 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

Resource Element Description 

Resource Elements Components and Description

Type 1 Engine Strike Team Per NIMS. Includes fire engines, staff, and Strike Team Leader. 

Type 1 Fire Truck-Aerial Strike 

Team

To assist with delivering foam solution for bulk tank fires or provide elevated 

streams to assist in controlling moored shipboard fire and assist boarding 

efforts 

Type 1 Foam Tender To supply foam concentrate for 65-minute application (8,000 gallons assuming 

2 120-foot diameter tanks) NFPA 11 

Type 1 Fire Boat Strike Team Supplies ship fire-fighting capability and augments water supply to land-based 

units 

U.S. Coast Guard (USCG) 

National Strike Team (NST) 

Per NIMS. There are three 40-member NST Teams in the Nation: the Atlantic 

Strike Team in Fort Dix, NJ; the Gulf Strike Team in Mobile, AL; and the 

Pacific Strike Team in Novato, CA. 

Type 1 Mobile Communications 

Unit 

Per NIMS 

Type 1 breathing apparatus 

support 

Self-contained breathing apparatus (SCBA) filling capability with compressor 

Field mobile mechanic Provides repair capacity 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Toxic Chemical Event scenario. Other scenarios 

were reviewed to identify required adjustments or additions to the planning factors and national 

targets. 

 The capability must perform in conjunction with hazardous materials (HazMat) operations, public 

safety jurisdictions, emergency medical services (EMS), on-scene incident management, search and 

rescue, and emergency management functions across all 15 scenarios. 

 The majority of response assets will be used during the response. 

 Fixed fire suppression systems are destroyed by explosions. 

 Several operational response areas are in effect at the same time: port, refinery, and downwind. 

 Water-based oil release may extend beyond the 96-hour time allotment. 

 Victims must be rescued within 4 hours and recovered within 4 days. 

 All fires are extinguished within 4 days. 

 The response phase is 96 hours. 

 Local response time is 0–2 hours. 

 Regional response time is 2–12 hours. 

 State response time is 12–24 hours. 

 Federal response time is 24+ hours. 

 “Zero hour” (incident clock) is the time of incident occurrence. 

 Domestic water supply is not affected; the water supply is adequate to deliver 50,000 gallons per 

minute (GPM) in affected areas. 
358 Target Capabilities List 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

 Fire suppression operations are conducted separately from EMS, HazMat, search and rescue, and so 

forth. 

 Distribution of resources for fire operations and support should be compliant, at a minimum, with the 

requirements of NFPA 1710, 1720, and 1201. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Toxic Industrial Chemical) 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement Values

Quantity of Resources 

Needed 

Fire Incident Response Support for a major event would be addressed with an appropriate 

combination of existing resources from multiple jurisdictions and levels of government sufficient to 

meet risk and threat assessment based needs 

Approaches for Large-Scale Events 

Strategies listed will accomplish objectives for large-scale events. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number of 

Units 

Unit Measure 

(number per x) 

Lead Capability Activity 

supported by 

Element 

Fire Incident Response Support for a major event would be addressed with an appropriate combination of 

existing resources from multiple jurisdictions and levels of government sufficient to meet risk and threat 

assessment based needs

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press 

Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf 

5. NFPA 422: Guide for Aircraft Accident/Incident Response Assessment. National Fire Protection Association. 

2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=422. 

6. NFPA 471: Recommended Practice for Responding to Hazardous Materials Incidents. National Fire Protection 

Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=471. 

7. NFPA 1001: Standard for Fire Fighter Professional Qualifications. National Fire Protection Association. 2002. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1001. 

8. NFPA 1021: Standard for Fire Officer Professional Qualifications. National Fire Protection Association. 2003. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1021. 
Target Capabilities List 359 

RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT 

9. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection 

Association. 2003. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561. 

10. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1600. 

11. NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency 

Medical Operations, and Special Operations to the Public by Career Fire Departments. National Fire Protection 

Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1710 . 

12. NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency 

Medical Operations, and Special Operations to the Public by Volunteer Fire Departments. National Fire 

Protection Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1720. 

13. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents, National 

Fire Protection Association, 2002 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472. 

14. NFPA 1201: Standard for Providing Emergency Services to the Public, National Fire Protection Association, 

2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1201. 

15. NFPA 1403: Standard on Live Fire Training Evolutions, National Fire Protection Association, 2002 edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1403. 

16. NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications 

Systems, National Fire Protection Association, 2002 edition. 

17. NFPA 1901: Standard for Automotive Fire Apparatus, National Fire Protection Association, 2003 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1901. 
360 Target Capabilities List 

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Target Capabilities List 361 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

WMD AND HAZARDOUS MATERIALS 

RESPONSE AND DECONTAMINATION 

Capability Definition 

Weapons of Mass Destruction (WMD) and Hazardous Materials Response and Decontamination is the 

capability to assess and manage the consequences of a hazardous materials release, either accidental or as 

part of a terrorist attack. It includes testing and identifying all likely hazardous substances onsite; 

ensuring that responders have protective clothing and equipment; conducting rescue operations to remove 

affected victims from the hazardous environment; conducting geographical survey searches of suspected 

sources or contamination spreads and establishing isolation perimeters; mitigating the effects of 

hazardous materials, decontaminating on-site victims, responders, and equipment; coordinating off-site 

decontamination with relevant agencies, and notifying environmental, health, and law enforcement 

agencies having jurisdiction for the incident to begin implementation of their standard evidence collection 

and investigation procedures. 

Outcome 

Hazardous materials release is rapidly identified and mitigated; victims exposed to the hazard are rescued, 

decontaminated, and treated; the impact of the release is limited; and responders and at-risk populations 

are effectively protected. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports Emergency Support Function (ESF) #10: Oil and Hazardous Materials Response. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B2b 1.1 Develop plans, programs, agreements, and requirements for responding to hazardous material 

incidents 

Res.B2b 1.2 Develop plans, programs, criteria, and protocols for conducting decontamination 

Res.B2b 1.3.1 Pre-identify resources (personnel and equipment) to provide rapid initial size- up of hazardous 

materials incident 

ResB2b 1.4 Assist in developing a communications plan for hazardous materials in emergencies, related to 

specific hazards, health guidance, educational materials, etc. 

Res.B2b 1.5 Ensure plans are in place for self-presenting contaminated victims off-site (e.g., hospitals) 

Preparedness Measures Metrics

WMD/HazMat Response and Decontamination plans are based on a formal assessment 

of risks and vulnerabilities. 

Yes/No 

Risk analysis is completed for potential hazmat vulnerabilities, including fixed facilities Yes/No 
362 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

and transportation-related emergencies 

Frequency with which Emergency Response Plan is reviewed Every 12 months 

Local Emergency Planning Commission is functional Yes/No 

Frequency with which pre-planned hazards and targets are reviewed and updated Every 12 months 

Plans for pre-identified and equipped hazmat personnel to respond to hazmat incident 

and provide initial rapid hazmat incident size-up within 30 minutes from notification (< 

2hrs if regional resource) are in place 

Yes/No 

Hazmat personnel are equipped and trained for weather prediction and hazard pluming Yes/No 

Redundant hazmat response teams and equipment are available (or accessible through 

mutual aid agreements) to provide resiliency in the event of a large-scale incident 

Yes/No 

WMD/HazMat plans address substance identification equipment (e.g. bases, vapors, 

liquids, solids, biologicals like white powder). 

Yes/No 

WMD/HazMat plans address personnel needs (e.g. work/rest cycles, medical, 

psychological, financial assistance, etc). 

Yes/No 

WMD/HazMat plans address demobilization (e.g. debrief personnel, repackage 

equipment). 

Yes/No 

Jurisdiction’s hazmat team(s) has current protocol to coordinate with emergency 

medical services (EMS) on victim care post-decontamination (identification of 

substance, administration of antidotes, etc.) 

Yes/No 

Jurisdiction’s hazmat team(s) has current protocol to coordinate with law enforcement 

for evidence collection and crime scene control 

Yes/No 

Emergency response and command vehicles and Incident Command Posts are equipped 

with Emergency Response Guidebook, NIOSH pocket guidebook, and discipline-related 

references relevant to the region 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B2b 2.1.1 Develop and implement training related to detection and reporting of hazardous material 

Res.B2b 2.1.2 Provide appropriate hazmat response training to field staff and managers of State/local 

programs having involvement in hazmat response 

ResB2b 2.2 Develop and implement exercise programs for WMD/hazardous materials response and 

decontamination 

Preparedness Measures Metric

Percent of police, fire, EMS , first responders (other than those assigned to hazmat 

responses) that are trained to hazmat awareness level 

100% 

Percent of first responders assigned to hazmat operations that are trained to hazmat 

operations level (in accordance with 1910.120 (g) or NFPA 472) 

100% 

Percent of personnel assigned to hazmat technician responsibilities who are trained to 

the hazmat technician level (in accordance with 1910.120 (g) or NFPA 472) 

100% 

Percent of personnel assigned to hazmat specialist responsibilities who are trained to the 100% 
Target Capabilities List 363 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

hazmat specialist level (in accordance with 1910.120 (g) or NFPA 472) 

Percent of personnel assigned to manage hazmat who are trained to hazmat management 

level (in accordance with 1910.120 (g), NFPA 471 and NFPA 472) for detection 

equipment, including flammability, toxicity, radiations, chemical warfare agents 

(CWAs) and biologicals 

100% 

Percent of personnel assigned to manage hazmat who are trained to hazmat management 

level (in accordance with 1910.120 (g), NFPA 471 and NFPA 472) for substance 

identification equipment, for bases and vapors, liquids, solids and biologicals (white 

powder) 

100% 

Hazmat personnel are equipped and trained for weather prediction and hazard pluming Yes/No 

Jurisdiction’s hazmat team(s) trains regularly with EMS to ensure proper coordination 

of victim care post-decontamination (identification of substance, administration of 

antidotes, etc.) 

Yes/No 

Jurisdiction’s hazmat team(s) trains regularly with law enforcement to ensure proper 

coordination for evidence collection and crime scene control 

Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Direct WMD and Hazardous Material Response and Decontamination Tactical 

Operations 

Definition: In response to notification of WMD/hazmat event or contamination, provide 

management and coordination of hazmat response and decontamination operations through 

demobilization and/or transition to recovery operations. 

Critical Tasks 

Res.B2b 3.1 Receive alert/activation order for WMD and Hazardous Materials Response and 

Decontamination 

Res.B2b 3.2 Establish and implement on-scene management for hazmat material response 

Res.B2b 3.2.4 Provide a hazmat technical expertise team for emergency operations for both industry and 

public 

Res.B2b 3.4.7 Implement a hazmat response (e.g., implement plans, programs, agreements, and requirements) 

Res.B2b 3.2.7 Coordinate technical, administrative support, personnel, facilities, communications, and 

information 

Res.B2b 3.2.6.2 Provide required Personal Protection Equipment to WMD/hazmat responders in coordination 

with safety officer 

Res.B2b 3.2.5.4 Develop a site safety plan 

Res.B2b 3.2.6.1 Observe the scene and review/evaluate hazard and response information as it pertains to the 

safety of all persons on the scene and responding 

Res.B2b 3.2.6 Coordinate with safety officer to ensure the safety of on-scene WMD/hazmat responders 

Res.B2b 3.4.7 Coordinate and support decontamination activities on-site 

Res.B2b 3.4.7.4 Coordinate with and provide technical guidance to entities performing off-site decontamination 

Res.B2b 3.4.7.5 Coordinate with hospitals to develop plans for managing/decontaminating self-presenting 

contaminated victims 
364 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Res.B2b 3.2.8 Coordinate resource management of hazmat equipment, supplies, and personnel 

Res.B2b 3.4.7.6 Request decontamination technical assistance resources 

Res.B2b 3.2.6.3 Coordinate with safety officer to brief hazmat branch/group personnel on-site-specific 

occupational safety and health issues involving hazmat/WMD releases 

Res.B2b 3.4.7.7 Issue instructions for self-decontamination, where appropriate, expedient and possible 

Performance Measures Metric 

Number of loss-time injuries (per deployment) of WMD/hazmat 

Response and Decontamination personnel during rescue efforts 

<1 

Time in which tactical plan is developed, based on the incident action 

plan (IAP), and for implementation by the State, region, and/or local 

WMD/hazmat Response and Decontamination 

Within 2 hours from arrival on scene 

Activity: Activate WMD and Hazardous Material Response and Decontamination 

Definition: In response to activation, mobilize and arrive at the incident scene to begin 

operations. 

Critical Tasks 

Res.B2b 4.1 Initiate WMD/hazmat procedures 

Res.B2b 4.2 Assemble personnel and equipment at designated location 

Res.B2b 4.3 Transport team (personnel and equipment) to scene 

Res.B2b 4.3.1 Conduct initial approach and positioning of responders 

Res.B2b 4.3.2 Implement/integrate WMD/hazmat resources into ICS organization 

Res.B2b 3.2.5.5 Initiate initial public protective actions (PPA) 

Performance Measures Metric 

Team is coordinated/incorporated into ICS upon arrival Yes/No 

Time in which initial hazmat size-up is completed Within 30 minutes from notification of 

incident 

Time in which regional assets (e.g., Type I hazmat Team or Type III or 

IV Incident Management team) arrive on scene, if requested by IC 

Within 2 hours from asset request 

Time in which State assets (e.g., Type I hazmat Team or Type II or III 

Incident Management team) arrive on scene, if requested by IC 

Within 12 hours from asset request 

Time in which Federal assets (e.g., Type I hazmat Team or Type I or II 

Incident Management team) arrive on scene, if requested by IC 

Within 24 hours from asset request 

Time in which Radiological Emergency Preparedness Program (REPP) 

Response Teams appropriate for the incident size involving a 

radiological hazard are deployed 

Within 24 hours from asset request 

Time in which Radiological Assistance Program (RAP) Teams are 

deployed 

Within 2 hours from asset request 
Target Capabilities List 365 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Activity: Identify the Hazard 

Definition: Upon arriving on scene, begin to assess site, sample, identify, and characterize 

WMD/hazmat and contamination situation, conduct hazard analysis to determine potential 

consequence and risk, develop plans for safety and hazmat/decontamination operations, and set 

up hazmat zones. 

Critical Tasks 

Res.B2b 5.1.1 Notify law enforcement for guidance on collection and management of evidence from potential 

crime scenes 

Res.B2b 5.1 Initiate hazmat response 

Res.B2b 5.2 Survey the incident scene 

Res.B2b 5.2.1 Identify hazmat and the extent/scope of the incident 

Res.B2b 5.5.3 Analyze weather forecast to conduct hazard zone prediction 

Res.B2b 5.2.2 Conduct contamination surveys 

Res.B2b 5.2.3 Assess hazmat release situation 

Res.B2b 5.2.3.1 Conduct oil and hazmat assessment 

Res.B2b 5.5.2 Monitor movement of hazardous releases and formulate predictions on dispersion and 

characteristics over time 

Res.B2b 5.5 Characterize consequences and risk 

Res.B2b 5.3 Identify and establish perimeter and hazmat zones (hot, warm, cold) 

Res.B2b 5.4 Conduct ongoing assessments and predictions 

Performance Measures Metric 

Time in which area is isolated and public access is controlled Within 15 minutes from arrival on scene 

Time in which hazardous materials or category involved are 

identified 

Within 30 minutes from arrival on scene 

Activity: Assess Hazard and Evaluate Risk 

Definition: Assess the hazards present, evaluate the level of risk to both responders and the 

public, and develop and Incident Action Plan (IAP) to address the response problem

Critical Tasks 

Res.B2b 5.5.1 Collect, prioritize, and manage data and information from all sources 

Res.B2b 5.5.1.1 Develop incident monitoring and sampling strategy based upon a realistic assessment of 

operational hazards 

Res.B2b 5.5.1.2 Conduct sampling operations 

Res.B2b 5.5.1.3 Identify, classify, and verify suspected non-biological WMD/hazmat samples through the use of 

at least two (preferably three) different instrument technologies 

Res.B2b 5.5.2 Use plume dispersion models and other analytical tools to generate ongoing WMD/hazmat 

dispersion assessments 
366 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Res.B2b 5.5 Implement risk evaluation process that adequately addresses the risk of various actions to both 

responders and the public 

Res.B2b 3.2.5.1 Develop and implement an Incident Action Plan (IAP) specific to WMD/hazmat issues based 

upon the risk evaluation process 

Res.B2b 5.3 Establish and identify visually an isolation perimeter (outer perimeter) to isolate the area and 

deny entry 

Res.B2b 5.3.1 Establish a hot zone (inner perimeter) to identify high hazard area(s) where responders will 

operate 

Res.B2b 5.3.2 Establish other hazard control zones, based upon scope and nature of the event 

Res.B2b 5.3.3 Make offensive or defensive reconnaissance operations, as necessary, to gather intelligence on 

the situation 

Res.B2b 5.4 Conduct ongoing assessments and predictions 

Performance Measures Metric 

Time in which preliminary estimate of number of victims exposed 

to toxic/hazardous material and source identification is obtained 

Within 2 hours from arrival on scene 

Time in which the at-risk population is identified and protective 

action recommendations are made 

Within 1 hour from arrival on scene 

Time in which the WMD/hazmat elements of the overall IAP are 

developed 

Within 1 hour from arrival on scene 

 

Activity: Conduct Rescue Operations 

Definition: Once on-scene and equipped with protective and response equipment, implement 

rescue operations. 

Critical Tasks 

Res.B2b 6.1 Determine the nature and priority of rescue operations and the numbers involved 

Res.B2b 6.1.1 Identify personnel and equipment requirements to initiate rescue operations 

Res.B2b 6.2 Implement safe and effective tactics to accomplish rescue operation objectives 

Res.B2b 6.2.1 Extricate and rescue victims within the hot zone 

Res.B2b 6.2.2 Coordinate rescue efforts with law enforcement to ensure safety of rescuers 

Res.B2b 6.3 Implement secondary public protective actions (PPAs) 

Res.B2b 6.3.1 Identify personnel and equipment requirements to initiate product/agent control operations 

Res.B2b 6.3.2 Implement safe and effective tactics to accomplish product/agent control objectives 

Res.B2b 6.3.3 Implement safe and effective tactics to support product/agent control objectives 

Performance Measures Metric 

Time in which contaminated victims are rescued from 

contaminated area 

Within 2 hours from arrival on scene 
Target Capabilities List 367 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Activity: Conduct Mitigation Activities 

Definition: Once on scene and equipped with protective and response equipment, implement 

operations plan to minimize contamination.

Critical Tasks 

Res.B2b 7.1.3 Identify appropriate PPE based on suspected hazardous material 

Res.B2b 7.1.1 Coordinate with safety officer to monitor responders for exposure to hazmat 

Res.B2b 7.1.2 Coordinate with safety officer to monitor and control the operating time of rescuers assigned to 

the hot zone to minimize rescuer exposure 

Res.B2b 7.1 Secure the contamination source and affected areas 

Res.B2b 7.2 Monitor and track compliance with containment requirements 

Performance Measures Metric 

Time in which implementation of initial action plan and 

objectives is initiated 

Within 4 hours from arrival on scene 

Time in which hazmat/WMD contamination is contained Within 12 hours from arrival on scene 

 

Activity: Conduct Decontamination and Clean-up /Recovery Operations 

Definition: Upon arrival on scene and with the requisite equipment, initiate response operations 

to reduce the level of on-scene contamination, minimize the potential for secondary 

contamination beyond the incident scene, and ensure an effective transition to clean-up and 

recovery operations. 

Critical Tasks 

Res.B2b 8.1 Identify assets required for decontamination activities 

Res.B2b 8.2 Identify the type of contaminants, nature of response operations, and the required type/level of 

decontamination operations 

Res.B2b 8.4.5 Implement plans, procedures, and protocols to ensure on-site individual gross decontamination 

of persons and household pets affected by the incident 

Res.B2b 8.4.6 Provide a means to allow medical treatment facilities and shelter managers to readily identify 

people who have received gross decontamination 

Res.B2b 8.3.1 Establish decontamination sites for victims 

Res.B2b 8.4.1 Screen affected persons 

Res.B2b 8.4 Implement emergency decontamination operations 

Res.B2b 8.4.2 Decontaminate victims exposed to chemical, biological, radiological, nuclear, or explosive 

(CBRNE) materials 

Res.B2b 8.4.7 Implement technical decontamination operations for injured, contaminated victims 

Res.B2b 8.4.7.1 Implement technical decontamination of human remains 

Res.B2b 8.4.8 Implement technical decontamination operations in support of WMD/hazmat entry and 

response activities 

Res.B2b 8.4.9 Implement decontamination operations to address incident-specific scenarios and requirements 
368 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Res.B2b 8.4.9.1 Decontaminate pets, if resources are available 

Res.B2b 8.5.1 Coordinate livestock decontamination 

Res.B2b 9.2.3 Monitor clean areas within the contamination control line 

Res.B2b 9.2.2 Monitor the exit points for hazmat contaminate movement outside the isolation zone 

Res.B2b 9.2.4 Coordinate with environmental authorities to ensure the appropriate decontamination area 

clean-up and disposal of waste materials 

Res.B2b 9.2 Decontaminate affected facilities and equipment used for technical decontamination 

Res.B2b 9.4.1 Perform clean-up operations 

Res.B2b 9.4.2 Implement hazmat disposal plan 

Performance Measures Metric 

Victims are provided maximum amount of privacy within site and 

situational constraints 

Yes/No 

Percent of victims provided clothing, blankets, and protection from the 

elements as needed 

100% 

Time in which technical decontamination of first responders on-site is 

performed (depending on substance) 

Within 2 hours from end of work 

period 

Time in which technical decontamination of off-site victims (e.g., at 

hospitals and designated decontamination stations) is performed 

(depending on substance) 

Within 2 hours from arrival 

Time in which technical decontamination of household pets off-site (e.g., 

at designated decontamination stations) is performed (depending on 

substance) 

Within 2 hours from arrival 

Time in which technical decontamination of human remains is performed Within 24 hours from end of work 

period 

Time in which technical decontamination of facilities and equipment is 

performed 

Within 24 hours from end of work 

period 

 

Activity: Demobilize WMD and Hazmat Response and Decontamination 

Definition: Upon completion of response phase transition to recovery operations, inventory 

equipment, complete paperwork, pursue rehabilitation, and conduct post-event analysis (e.g., 

lessons learned) in accordance with incident demobilization plan.

Critical Tasks 

Res.B2b 10.1.1 Transfer command for emergency response phase to authority having jurisdiction (AHJ) for 

post-emergency clean-up and recovery operations 

Res.B2b 10.1.2 Work through IC/UC to ensure that incident-specific evidence collection and investigation 

protocols are clearly understood and communicated to all responders 

Res.B2b 10.1 Inventory WMD/hazmat equipment cache and restore to service 

Res.B2b 10.2 Demobilize WMD/hazmat base of operations 

Res.B2b 10.3 Arrange transportation for demobilized WMD/hazmat personnel and equipment 

Res.B2b 10.4.1 Implement a formal post-incident analysis process (based upon local procedures) 
Target Capabilities List 369 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Res.B2b 10.4 Debrief WMD/hazmat capability personnel 

Res.B2b 10.4.2 Conduct and incident critique for incident responders 

Performance Measures Metric 

Time in which equipment cache is re-inventoried and packaged for 

transport 

Within 12 hours from start of 

demobilization process 

Time in which base of operations is returned to original conditions Within 12 hours from start of 

demobilization process 

Percent of WMD/hazmat Response and Decontamination task force 

debriefed 

100% 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

WMD and Hazmat Response and Decontamination integrates itself into the local Incident 

Command/Unified Command system. 

Emergency Public 

Safety and Security 

Response 

WMD and Hazmat Response and Decontamination relies upon Emergency Public Safety 

and Security Response assistance to secure WMD/hazmat and decontamination sites, 

safely divert public from the area, and to provide security support for the WMD/hazmat 

and decontamination base of operations. 

Fire Incident 

Response Support 

WMD and Hazmat Response and Decontamination coordinates with Fire Incident 

Response Support to decontaminate on-site victims and coordinates with hazmat on 

tactics to monitor and minimize release of hazardous materials during firefighting 

operations. 

Environmental Health WMD and Hazmat Response and Decontamination relies upon Environmental Health to 

monitor environmental public safety from decontamination and other hazmat response 

operations. 

Citizen Evacuation 

and Shelter-In-Place 

WMD and Hazmat Response and Decontamination relies upon Citizen Evacuation 

assistance to help plan for and implement the protective actions recommended by the IC 

in consultation with the WMD/hazmat team to both protect and decontaminate evacuees. 

Emergency Triage and 

Pre-Hospital 

Treatment 

WMD and Hazmat Response and Decontamination relies upon Emergency Triage and 

Pre-Hospital Treatment to transfer care of victims that have been decontaminated from 

WMD/hazmat. 

Fatality Management WMD and Hazmat Response and Decontamination notifies Fatality Management of 

location of decontaminated remains encountered from WMD/hazmat exposure. 

Laboratory Testing WMD and Hazmat Response and Decontamination provides Laboratory and Testing with 

samples for testing. 
370 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Direct WMD/

Hazardous 

Materials 

Response and 

Decontamination 

Tactical Operations

End: Hazmat resources 

returned to normal 

operations

Activate WMD/

Hazardous 

Materials 

Response and 

Decontamination

Start: Indication 

of hazmat 

incident

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Environmental

Health

Citizen Evacuation 

and 

Shelter-In-Place

Dispatch unit(s)

Conduct Mitigation 

Activities

Conduct Rescue 

Operations

Ready to begin 

onsite evaluation

On-Site Incident 

Management

Environment monitored

Ready to begin 

onsite operations

Demobilize WMD/

Hazardous 

Materials 

Response and 

Decontamination

Victims ready for 

decontamination

Fatality 

Management

Provide perimeter, 

force protection, and 

traffic/crowd control

Provide PAD

Decontamination 

completed

Responders and 

equipment ready 

for decontamination

Linked 

Capabilities Relationship

Capability Activity Process Flow

WMD/Hazardous Materials Response 

and Decontamination Capability

Provide sitreps

Zones established

Issue PAD/PARs

Mitigate contaminant

Conduct medical assessment

Transfer environment and equipment 

decontamination to recovery

Provide samples

Receive PAR

Assess and treat victims

Decontaminated 

remains transferred

Identify the 

Hazard

Assess Hazard 

and Evaluate Risk

Conduct 

Decontamination 

and Clean-Up/

Recovery 

Operations

Hazard identified

Coordinate to 

decontaminate victims and 

monitor/minimize release of 

hazardous materials 

Emergency 

Public Safety and 

Security Response

Fire Incident 

Response Support

Emergency 

Triage and PreHospital 

Treatment

Laboratory 

Testing
Target Capabilities List 371 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Resource Element Description 

Resource Elements Components and Description

Type III Hazmat Entry Team Per NIMS 

Type II Hazmat Entry Team Per NIMS 

Type I Hazmat Entry Team 

(extrication) 

Per NIMS, with capabilities for extrication 

Type I Hazmat Entry Team 

(decontamination) 

Per NIMS, with capabilities for decontamination 

EPA Radiological Emergency 

Response Team (RERT) 

The (RERT), based in EPA's Office of Radiation and Indoor Air and regional 

offices, responds to emergencies involving releases of radioactive materials by 

providing environmental measurement and guidance activities; monitoring, 

sampling, and laboratory activities; and providing State and local authorities 

with advice on protecting local residents from exposure to harmful radiation 

levels. 

Federal Radiological Monitoring 

and Assessment Center 

(FRMAC) 

The Department of Energy (DOE) FRMAC coordinates Federal radiological 

monitoring and assessment activities with those of State and local agencies. 

Hazmat Information/Research 

Group/Team 

Reference/research function performs the compiling and interpretation of 

technical information related to products, agents, containers, excreta and 

provides relevant information to the hazmat Branch Director or Group 

Supervisor. 

Hazmat Medical Group/Team Part of the logistics section for the provision of medical services for response 

personnel 

Hazmat Resources Group/Team The "resources group" technically would be within the planning section and be 

termed the resources unit and would reside outside of the hazmat structure. 

Resources on the scene would be assigned to the staging area manager. 

Hazmat Liaison Officer 

Hazmat Specialists Single resources that will be assigned as needed and defined in 

29CFR1910.120 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Toxic Industrial Chemical scenario. Other scenarios 

were reviewed to identify required adjustments or additions to the planning factors and national 

targets.

 This capability applies to a wide range of incidents and emergencies, including those caused by an 

improvised nuclear device, aerosol anthrax, a blister agent, a nerve agent, and a radiological dispersal 

device. Additional measures and metrics need to be developed for a nuclear incident. 

 If decontamination is ongoing during the early stages of a catastrophic incident, persons undergoing 

decontamination will have logistical, medical, and mental health needs that will need to be addressed 

quickly. 
372 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

 Decontamination priorities will be set up using the following priorities, in order of importance: life 

safety, incident stabilization, and property conservation. 

 All fires are extinguished in 4-day response phase. 

 Water-based oil release may extend beyond the 96-hour limit. Assets will be on scene, but 

containment operations may not be able to begin immediately on arrival. 

 Three operational response areas: port, refinery, and downwind 

 The response phase is 96 hours. 

 Local response time: 0–2 hours 

 Regional response time: 2–12 hours 

 State response time: 12–24 hours 

 Federal response time: 24+ hours 

 “Zero hour” (incident clock) = time incident occurred 

 Unconstrained need: consider all assets required for response, do not factor response time or asset 

availability into planning. 

 Planning factors are based on scenario and planning assumptions for a level III hazardous materials 

(hazmat) incident, where there are 1,000 injuries, 350 deaths, 25,000 sheltered, 10,000 evacuated, and 

100,000 self-evacuated. About half of equipment and facilities are damaged (of three refineries). Two 

ships sank, the port was damaged near improvised explosive device (IED) sites, and property was 

damaged in the downwind area. 

 A significant number of individuals exposed to a plume cloud or contaminant agent will flee the 

scene before first responders arrive. It may prove difficult to determine which of those individuals 

require decontamination, and to ensure such individuals present themselves for decontamination. 

 The United States has approximately 64 nuclear stations supported by the Radiological Emergency 

Preparedness Program (REPP). No less than 30 REPP response teams should be able to respond to an 

“improvised nuclear device” scenario within 24 hours. 

 Quantity of resources is achievable through mutual aid. 

 Each jurisdiction is expected to sponsor and support community emergency response teams (CERTs). 

 The projected effects of contamination resulting from a catastrophic incident are generally based on 

an estimated population density of 2,000 people per square mile, but may increase for major urban 

areas. 

 Large-gathering situations (e.g. National Security special events, sporting events, conventions, etc.) 

create higher localized population densities. 

 Biological agents typically have delayed symptoms. As such there will rarely be an on-site incident 

requiring response when a biological agent is released. 

 Health care facilities are the most likely locations for managing a biological incident. 

 Secondary contamination will be a major concern. Hospital emergency rooms may close if patients 

are admitted without proper decontamination. Other secondary contamination issues include control 

of runoff of fluids used in decontamination, and the handling of contaminated clothing and personal 

effects. In addition, the secondary contamination of first responders, even those wearing personal 

protective equipment, can occur during the removal of patients from a hazardous area, during the 

performance of basic life support functions, or when initial responders are unaware that a hazardous 

material is involved. 

 The psychological dimensions of being exposed to a contaminant, and subsequent decontamination 

may present social management challenges and concerns. Of greatest concern are the short- and 

long-term psychological consequences resulting from actual exposure to chemical, biological, and 

radiological substances, and which subsequently produce negative health effects. Short-term stress 

symptoms may be a prelude to long-term, debilitating, post-traumatic stress disorder. 
Target Capabilities List 373 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Toxic Industrial Chemical) 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of 

Resources Needed 

Type 1 Hazmat Entry 

Team (extrication) 

Can conduct: 

3 victim extrications 

per hour per team 

12 victim 

extrications over a 

4-hour period per 

team 

1,000 injuries (downwind area) 

350 deaths 

2 response areas: port and 

downwind. Note: cannot respond 

in level A in a fire environment 

(this excludes refinery response 

area).

4-hour rescue phase 

Type 1 hazmat Entry Team 

(extrication) 

Type 1 hazmat Entry 

Team 

(decontamination) 

Can conduct: 

10 victims 

decontaminated/ per 

hour per team (5-

man team) 

40 victims 

decontaminated per 

team in a 4-hour 

rescue phase 

1,000 injuries (downwind area) 

350 deaths 

Two response areas: port and 

downwind. Note: cannot respond 

in level A in a fire environment 

(excludes refinery response area).

4-hour rescue phase 

Type 1 hazmat Entry Team 

(decontamination) 

EPA Radiological 

Emergency Response 

Team (RERT) 

Phase I CMRT 

Phase II CMRT 

4-hour readiness posture (6-10 

hour response time) 

Up to 500 members, round-theclock operations capacity, 24-36 

hour response time 

Federal Radiological 

Monitoring and 

Assessment Center 

(FRMAC) 

2-hour call-up (working hours), 4-

hour call-up (non-working hours) 

27 teams in 8 DOE regions 

Hazmat 

Information/Research 

Group/Team 

1 team per 12-hour 

shift for all response 

areas 

96-hour response phase (8 shifts) 1 Hazmat 

Information/Research 

Group/Team 

Hazmat Medical 

Group/Team 

1 team per 12-hour 

shift per response 

area 

96-hour response phase (8 shifts) 

2 response areas: port and 

downwind 

1 Hazmat Medical 

Group/Team 

Hazmat Resources 

Group/Team 

1 team per 12-hour 

shift per response 

area 

96-hour response phase (8 shifts) 

2 response areas: port and 

downwind 

1 Hazmat Resources 

Group/Team 

Hazmat Liaison Officer 1 officer per 12-hour 

shift per response 

area 

96-hour response phase (8 shifts) 

2 response areas: port and 

downwind 

hazmat Liaison Officer 

Hazmat Specialists 1 specialist per 

response area per 

12-hour shift 

96-hour response phase (8 shifts) 

2 response areas: port and 

downwind 

Hazmat Specialists 
374 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number 

per x)

Lead Capability 

Activity 

supported by 

Element 

Type I Hazmat 

Entry Team 

(extrication) 

NIMS-Typed 

Resource 

Organization 

20 Per UASI Area, 

based on risk 

Local (City) Identify and 

Evaluate On Scene 

Conduct Rescue 

Operations 

Type I Hazmat 

Entry Team 

(extrication) 

NIMS-Typed 

Resource 

Organization 

1 Per county Local (County) Identify and 

Evaluate On Scene 

Conduct Rescue 

Operations 

Type I Hazmat 

Entry Team 

(decontamination) 

NIMS-Typed 

Resource 

Organization 

20 Per UASI Area Local (City) Identify and 

Evaluate On Scene 

Conduct On-site 

Gross 

Decontamination 

Conduct On-site 

Technical 

Decontamination 

Type I Hazmat 

Entry Team 

(decontamination) 

NIMS-Typed 

Resource 

Organization 

1 Per county Local (County) Identify and 

Evaluate On Scene 

Conduct On-site 

Gross 

Decontamination 

Conduct On-site 

Technical 

Decontamination 

EPA Radiological 

Emergency 

Response Team 

(RERP) 

Federal Team 1 Nationally Federal (EPA) Identify and 

Evaluate On Scene 

Conduct Mitigation 

Activities 

Federal 

Radiological 

Monitoring and 

Assessment Center 

(FRMAC) 

Federal 

Organization 

27 Nationally Federal (DOE) Identify and 

Evaluate On Scene 

Conduct Mitigation 

Activities 

Hazmat 

information/ 

research 

group/team 

Non-NIMS 

Resource 

Organization 

2 Per UASI Area Local (City) Direct Tactical 

Operations 

Hazmat medical 

group/team 

Non-NIMS 

Resource 

Organization 

2 Per UASI Area Local (City) Conduct Rescue 

Operations 

Hazmat resources 

group/team 

Non-NIMS 

Resource 

2 Per UASI Area Local (City) Direct Tactical 

Operations 
Target Capabilities List 375 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number 

per x)

Lead Capability 

Activity 

supported by 

Element 

Organization 

Hazmat liaison 

officer 

Personnel 2 Per UASI Area Local (City) Direct Tactical 

Operations 

Hazmat specialist Personnel 1 Per county Local (County) Identify and 

Evaluate On Scene 

Conduct Mitigation 

Activities 

References 

1. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

5. Hazardous Materials Emergency Planning Guide. National Response Team. 2001. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

6. NFPA 471: Recommended Practice for Responding to Hazardous Materials Incidents. National Fire Protection 

Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=471. 

7. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents. National 

Fire Protection Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472. 

8. NFPA 473: Standard for Competencies for EMS Personnel Responding to Hazardous Materials Incidents. 

National Fire Protection Association. 2002. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=473. 

9. NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency 

Medical Operations, and Special Operations to the Public by Career Fire Departments, National Fire Protection 

Association, 2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1710. 

10. NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency 

Medical Operations, and Special Operations to the Public by Volunteer Fire Departments, National Fire 

Protection Association, 2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1720. 

11. NFPA 1561: Standard on Emergency Services Incident Management System, National Fire Protection 

Association, 2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561. 

12. NFPA 1500: Standard on Fire Department Occupational Safety and Health Programs, National Fire Protection 

Association, 2002 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500. 

13. Homeland Security Presidential Directive/HSPD–8: National Preparedness.. December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

14. National Oil and Hazardous Substances Pollution Contingency Plan. Environmental Protection Agency. 1994. 

http://www.epa.gov/oilspill/pdfs/40cfr300.pdf. 

15. 2004 Emergency Response Guidebook: A Guidebook for First Responders during the Initial Phase of a 

Dangerous Goods/Hazardous Materials Incident. U.S. Department of Transportation. 

http://hazmat.dot.gov/pubs/erg/gydebook.htm. 
376 Target Capabilities List 

RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION 

16. Superfund Amendments and Reauthorization Act, Title III, The Emergency Planning and Community Right-toKnow Act. Environmental Protection Agency. 1986. 

17. The 2004 Standardized Equipment List. The Interagency Board for Equipment Standardization and 

Interoperability. 2004. http://www.iab.gov/downloads/AnnualReport2003.pdf. 

18. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

19. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program, 

http://mmrs.fema.gov. 

18. NFPA 1021: Standard for Fire Officer Professional Qualifications. National Fire Protection Association. 2003. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1021. 

19. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection 

Association. 2003. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561. 

20. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1600. 

21. NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency 

Medical Operations, and Special Operations to the Public by Career Fire Departments. National Fire Protection 

Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1710 . 

22. NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency 

Medical Operations, and Special Operations to the Public by Volunteer Fire Departments. National Fire 

Protection Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1720. 

23. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents, National 

Fire Protection Association, 2002 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472. 

24. NFPA 1201: Standard for Providing Emergency Services to the Public, National Fire Protection Association, 

2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1201. 

25. NFPA 1403: Standard on Live Fire Training Evolutions, National Fire Protection Association, 2002 edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1403. 

26. NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications 

Systems, National Fire Protection Association, 2002 edition. 

27. NFPA 1901: Standard for Automotive Fire Apparatus, National Fire Protection Association, 2003 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1901 
Target Capabilities List 377 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

CITIZEN EVACUATION AND SHELTER-INPLACE 

Capability Definition 

Citizen evacuation and shelter-in-place is the capability to prepare for, ensure communication of, and 

immediately execute the safe and effective sheltering-in-place of an at-risk population (and companion 

animals), and/or the organized and managed evacuation of the at-risk population (and companion 

animals) to areas of safe refuge in response to a potentially or actually dangerous environment. In 

addition, this capability involves the safe reentry of the population where feasible. 

Outcome 

Affected and at-risk populations (and companion animals to the extent necessary to save human lives) are 

safely sheltered-in-place or evacuated to safe refuge areas. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability is supported by the following Emergency Support Functions (ESFs): 

ESF #1: Transportation 

ESF #5: Emergency Management 

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

ESF #8: Public Health and Medical Services 

ESF #14: Public Safety 

ESF #15: External Affairs 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B.3a 1 Develop plans, procedures, and protocols to manage evacuations and sheltering-in-place 

Res.B.3a 1.2.1 

Develop evacuation procedures for populations and locations at risk (including high density areas, 

neighborhoods, high-rise buildings, subways, airports, special events venues, etc.), and 

institutions that should begin evacuations early (e.g., hospitals, nursing homes, long-term care 

facilities, and correctional facilities 

Res.B3a 1.1.1.1 Develop and distribute public education materials on evacuation/shelter-in-place preparation, 

plans, and procedures 

Res.B3a 1.1.1.2 Participate in citizen preparedness activities to ensure that public information on 

evacuation/shelter-in-place preparation and processes is effectively communicated 

ResB3a 1.1.1.3 Develop and implement programs to train local citizens on evacuation, reentry and shelter-inplace processes 
378 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Res.B3a 1.1.3 Participate in establishment of public information announcements to be issued as part of 

evacuation/shelter-in-place orders 

Res.B3a 1.3.1 Develop and implement plans and procedures to identify in advance populations requiring 

assistance during evacuation/shelter-in-place 

Res.B3a 1.3.1.1 Establish registry of populations requiring assistance during evacuation/sheltering-in-place 

Res.B3a 1.3.1.2 Develop and implement procedures to identify and arrange for transportation to accommodate 

immobilized individuals or others requiring special assistance during transport 

Res.B3a 1.3.2 Develop plans and procedures for identifying during an incident those populations requiring 

assistance with evacuation, including identification of type of assistance required 

Res.B3a 1.3.3 Establish processes to ensure that immobilized and other individuals require special assistance can 

be moved to collection points for evacuation 

Res.B3a 1.3.4 Establish processes for identifying and collecting individuals who do not go to collection points 

Res.B3a 1.4.1 Pre-identify evacuee collection points and staging/reception areas (for immediate 

sheltering/processing) 

Res.B3a 1.4.3.1 Pre-arrange contracts and agreements to ensure provision of transportation vehicle and drivers 

during an incident 

Res.B3a 1.4.4 Identify and arrange for the staging and use of resources from outside the planning area 

Res.B3a 1.4.5 Develop plans and procedures to get resources to those who have sheltered in place (long term—3 

days or more) 

Res.B3a 1.4.6 Develop plans and procedures for coordinating with other agencies to meet basic needs during 

evacuation 

Res.B3a 1.4.7 Develop agreements with neighboring areas regarding the movement and receipt of evacuees 

from the affected area 

Res.B3a 1.2.4 Develop plans and procedures for evacuation/shelter-in place of companion animals 

Preparedness Measures Metrics

Evacuation and shelter-in-place plans address the development and dissemination of accurate, 

timely, accessible information to public, media, support agencies 

Yes/No 

Informational materials for use in citizen preparedness for evacuation and shelter-in-place have 

been developed and coordinated with public education/citizen preparedness programs on 

procedures and guidance for radiological and nuclear hazards 

Yes/No 

Informational materials for use in citizen preparedness for evacuation and shelter-in-place have 

been developed and coordinated with public education/citizen preparedness programs on 

procedures and guidance for biological and chemical hazards 

Yes/No

Informational materials for use in citizen preparedness for evacuation and shelter-in-place have 

been developed and coordinated with public education/citizen preparedness programs on 

procedures and guidance for explosive hazards

Yes/No

Informational materials for use in citizen preparedness for evacuation and shelter-in-place have 

been developed and coordinated with public education/citizen preparedness programs on citizen 

responsibilities 

Yes/No

Informational materials for use in citizen preparedness for evacuation and shelter-in-place have 

been developed and coordinated with public education/citizen preparedness programs on options 

and guidance for the handling of companion animals 

Yes/No

Planning and informational materials to be released to the public for evacuation or sheltering in Yes/No 
Target Capabilities List 379 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

place have been shared with the servicing public safety communication centers and Public 

Service Answering Points (PSAPs) 

Plans addressing authority and decision-making processes for shelter-in-place and/or evacuations 

are in place 

Yes/No 

Nonprofit organizations/NGOs (e.g. the American Red Cross, Salvation Army, faith-based 

organizations) were actively engaged in plan development 

Yes/No 

Plans addressing authority and procedures to declare and enforce a mandatory evacuation are in 

place 

Yes/No 

Plans are in place for the evacuation of neighborhoods Yes/No 

Plans are in place for the evacuation of high-rise buildings Yes/No 

Plans are in place for the evacuation of subways Yes/No 

Plans are in place for the evacuation of airports Yes/No 

Plans are in place for the evacuation of correctional facilities Yes/No 

Plans are in place for the evacuation of hospitals/nursing homes/assisted-living/elder care 

facilities 

Yes/No 

Plans are in place for the evacuation of special events venues Yes/No 

Plans are in place for the evacuation of other high-risk areas in response to a threat or attack Yes/No 

Plans are in place for the evacuation of animal shelters and zoos Yes/No 

Processes for identifying populations that may need assistance with evacuation/shelter-in-place, 

prior to an incident are in place 

Yes/No 

Processes for identifying, during an incident, populations that may need assistance with 

evacuation/shelter-in-place are in place 

Yes/No 

Processes for identifying and addressing the different types of assistance needed (e.g., physical 

movement, transportation assistance, language translation, etc.) are in place 

Yes/No 

Populations that may need assistance with evacuation/shelter-in-place have been identified Yes/No 

Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all 

persons who need evacuation assistance; plans, at a minimum, address assistance for noninstitutionalized populations requiring assistance to be moved (e.g., the elderly, disabled, etc.) 

Yes/No 

Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all 

persons who need evacuation assistance; plans, at a minimum, address assistance for transient 

populations (e.g., the homeless; tourists and visitors) 

Yes/No 

Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all 

persons who need evacuation assistance; plans, at a minimum, address assistance for 

institutionalized populations (e.g., nursing homes, hospitals, psychiatric institutions, boarding 

schools) 

Yes/No 

Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all 

persons who need evacuation assistance; plans, at a minimum, address assistance for populations 

out of the home (e.g., students, those in public venues) and the work force during a surprise 

incident 

Yes/No 

Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all 

persons who need evacuation assistance; plans, at a minimum, address assistance for companion 

animals 

Yes/No 

Plans for coordinating with law enforcement (e.g. to identify risk to transportation infrastructure Yes/No 
380 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

from potential terrorist attack, identify security and survival vulnerabilities to evacuated 

population, identify protective countermeasures) are in place 

Plans to coordinate with public safety agencies in evacuating incarcerated populations are in 

place 

Yes/No 

Evacuation plan(s) identifying evacuation routes and traffic flow and control measures are in 

place 

Yes/No 

Evacuation routes are marked Yes/No 

Plans identifying measures to ensure adequate services (e.g., gas, food, water, tow trucks, 

medical emergencies, etc.) along the evacuation route(s) are in place 

Yes/No 

Plans to provide for leadership at evacuation staging points and/or at temporary evacuation 

shelters for up to 72 hours are in place 

Yes/No 

Plans to coordinate with mass care agencies to provide required services at evacuation staging 

points and/or at temporary evacuation shelters for at least 72 hours are in place 

Yes/No 

Arrangements with agencies to be involved in evacuations/sheltering, staffing of shelters, 

logistical supply, security, and support of shelters are in place 

Yes/No 

Plans to coordinate with medical care agencies to provide medical support, supervision, and 

symptom surveillance of evacuees during a prolonged evacuation (e.g., monitoring and caring for 

people with pre-existing medical conditions or disabilities and those who may become ill during 

the evacuation) are in place 

Yes/No 

Plans to address decontamination of evacuees (e.g., coordination with HazMat) are in place Yes/No 

An information tracking system is in place to support evacuation and shelter-in-place operations Yes/No 

memoranda of understanding (MOU) with jurisdictions to serve as host communities for 

evacuees during an incident have been developed 

Yes/No 

Plans to address re-entry of the general population are in place Yes/No 

Plans to address re-entry support for populations requiring assistance to return are in place Yes/No 

Plans to coordinate with utility companies regarding safety instructions for returning 

homeowners are in place 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.B3a 2.1 Develop and implement training programs for staff involved in evacuation/shelter-in-place 

implementation 

Res.B3a 2.2.1 Develop and implement exercises involving evacuation of various types of locations to local 

shelters as well as more distant cities 

Res.B3a 2.2.2 Assess the training and exercise gaps 

Res.B3a 2.2.3 Review existing training and exercise resources available for participation and/or inclusion in 

comprehensive training and exercise strategy 

Preparedness Measures Metric

Staff of agencies to be involved in evacuations/sheltering, staffing of shelters, logistical 

supply, and support of shelters have been trained 

Yes/No 
Target Capabilities List 381 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Pre-event exercises of the notification and activation of evacuation and shelter-in-place plans 

are conducted with citizen participation 

Yes/No 

Local emergency response agencies/staff including public safety answering points, are 

trained on local evacuation/shelter-in-place strategies 

Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Direct Evacuation and/or In-Place Protection Tactical Operations 

Definition: In response to a hazardous condition for a locality, direct, manage, and coordinate 

evacuation and/or in-place sheltering procedures for both the general population and those 

requiring evacuation assistance throughout incident

Critical Tasks

Res.B3a 3.1.2 Identify populations, institutions (e.g., hospitals, nursing homes, correctional facilities) and 

locations to be evacuated or sheltered-in-place 

Res.B3a 3.1.3 Coordinate with law enforcement to identify risk (e.g., from a potential terrorist attack) to 

transportation infrastructure that may be used for evacuation 

Res.B3a 3.1.4 Coordinate with law enforcement to anticipate secondary attack, and identify security and 

survival vulnerabilities of the evacuated or sheltered population and protective countermeasures 

Res.B3a 3.2.1 Identify appropriate decision making authority responsible for deciding a course of action to 

address the incident 

Res.B3a 3.2 Determine appropriate course of action to address the incident 

Res.B3a 3.4.4 Coordinate with serving Public Service Answering Points regarding communication of the 

evacuation and/or shelter-in-place decision 

Res.B3a 3.3 Re-assess evacuation/shelter-in-place plans and begin implementation 

Res.B3a 3.3.2 Re-assess location of evacuation collection points and staging areas identified in plans and adjust 

as needed 

Res.B3a 3.3.1 Re-assess evacuation traffic management plan and adjust as needed 

Res.B3a 3.4.2 Coordinate with mass care, medical, and other services to set up evacuation staging areas 

Res.B3a 3.3.1.1 Re-assess emergency evacuation routes and adjust as needed 

Res.B3a 3.4.1 Coordinate with transportation agencies to implement evacuation plans 

Res.B3a 3.3.4 Coordinate with mass care services to identify location of shelter facilities and other mass care 

services for evacuees 

Res.B3a 3.3.3 Coordinate with mass care agencies to assess the need for emergency feeding and sheltering 

activities 

Res.B3a 3.4.5 Coordinate with appropriate agencies regarding caring for companion animals in transit 

Res.B3a 3.5.3 Coordinate medical assistance for special need evacuees in transit 

Res.B3a 3.5.4 Notify appropriate agencies of anticipated medical assistance required upon arrival at temporary 

locations (staging area, shelters, etc) 

Res.B3a 3.6 Coordinate with HazMat to conduct decontamination of evacuees, including those with 

disabilities and medical needs (including their equipment) 
382 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Res.B3a 3.7 Coordinate with environmental health to monitor progress of affected area to determine when reentry is deemed appropriate 

Performance Measures Metric

Individual(s) with authority to select protective strategy is identified Yes/No 

Individual(s) with authority identifies the information needed to make decision(s) Yes/No 

Necessary information is gathered Yes/No 

Appropriate and available strategies are identified Yes/No 

An appropriate strategy is selected and communicated Yes/No 

Appropriate protective strategy to meet the potential risk/danger to the various 

populations is selected within appropriate timeframe 

Yes/No 

Citizen protection decision is coordinated with surrounding jurisdictions to support 

evacuation routes, and activate reception facilities and shelters 

Yes/No 

Re-entry planning is conducted during the course of response to the event Yes/No 

Activity: Activate Evacuation and/or In-Place Protection 

Definition: In response to activation, identify and ensure notification of at-risk populations, and 

identify populations requiring assistance in evacuation and/or in-place protection

Critical Tasks

Res.B3a 4.1 Identify and mobilize appropriate personnel 

Res.B3a 4.2.1 Issue shelter-in-place order 

Res.B3a 4.2.3 Issue evacuation order 

Res.B3a 4.2.4 Coordinate with agencies providing emergency public information and warning to ensure 

effective communication of evacuation/shelter-in-place order and procedures 

Res.B3a 4.4.1 Determine locations of populations who may need assistance with evacuation from affected area 

(e.g., using pre-established registry of populations in facilities) 

Res.B3a 4.4.2 Implement plan to capture self-reporting by those requiring assistance with evacuation (e.g., via 

hot-line) 

Res.B3a 4.4.3 Conduct triage upon identification to determine type of assistance required 

Res.B3a 4.5 Implement systems for tracking evacuees and those who shelter in place 

Res.B3a 4.3 Implement notification protocols for communication to Public Service Answering Points (911 

centers) 

Performance Measures Metric

Time in which affected population is notified of shelter-in-place order Within 15 minutes from order 

to shelter-in-place 

The most affected populations for evacuation are notified first (e.g., ring 

evacuations) 

Yes/No 

Percent of population appropriately notified of evacuation procedures, routes, 

locations, and sources of evacuation information throughout the incident 

100% 
Target Capabilities List 383 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Percent of population requiring assistance that has been identified 100% 

Activity: Implement Evacuation Orders for General Population 

Definition: Assist the self-evacuation of affected population by providing public information and 

instructions, traffic control, and support services to evacuees along evacuation routes

Critical Tasks

Res.B3a 5.1 Provide public notification agencies with information to provide instructions for evacuation 

Res.B3a 5.2 Activate approved traffic control plan 

Res.B3a 5.2.1 Coordinate with appropriate agencies regarding support for traffic control 

Res.B3a 5.1.2 Provide information regarding evacuation staging area location 

Res.B3a 5.4.3 Implement procedures for allowing voluntary tracking of evacuees who participate voluntarily 

Res.B3a 5.3 Monitor evacuation traffic flow/demand and adjust evacuation traffic management plan and 

measures as appropriate 

Res.B3a 5.4.1 Provide services (e.g., gas, food, water, tow trucks, etc.) along the evacuation route(s) 

Res.B3a 5.4.2 Monitor evacuation traffic to identify those no longer able to self-evacuate and requiring 

specialized assistance 

Performance Measures Metric

Frequency with which public is initially notified of evacuation procedures, routes, 

locations, or sources of evacuation information 

Every 30 minutes 

Frequency with which public is notified of evacuation procedures, routes, locations, or 

sources of evacuation information throughout the incident. 

Every 2 hours 

Time in which the traffic and transportation plan is implemented to enable evacuation 

within the incident timeframe 

Within 3 hours from 

evacuation order 

Time in which the evacuation of the affected general population for an event with 

advanced warning is completed 

Within 72 hours from 

the order to evacuate 

Activity: Collect and Evacuate Population Requiring Assistance 

Definition: Upon identification of individuals requiring assistance and type of assistance 

required, collect and move individuals to established evacuation staging/reception area for further 

services

Critical Tasks

Res.B3a 6.1 Order transportation services for evacuation 

Res.B3a 6.1.1 

Coordinate with supporting agencies and pre-arranged providers to obtain appropriate means of 

transportation for those requiring transportation assistance (e.g., buses, ambulances, handicapassisted vans) 

Res.B3a 6.1.2 Implement plans for providing alternative means of transport for immobilized individuals or 

those needing other special assistance in transit 

Res.B3a 6.2.3 Provide appropriate specialized transportation services for those requiring additional support 

during evacuation 
384 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Res.B3a 6.2.4 Coordinate provision of medical support services for evacuating special needs populations 

Res.B3a 6.3.1 Collect individuals at pre-established collection points and transfer to staging/reception area 

Res.B3a 6.3.2 Collect individuals at non-specified locations and transfer to staging/reception area 

Performance Measures Metric 

Percent of requests for evacuation assistance for those in need that are met in accordance with 

established procedures 

100% 

Procedures for obtaining evacuation assistance are publicized to general public Yes/No 

Percent of service organizations following established procedures to provide evacuation 

assistance 

100% 

Sources of surge transportation assistance for evacuations are contacted and provided 

information on their role 

Yes/No 

Sources of assistance to evacuated persons with special needs are contacted and provided 

information on their role 

Yes/No 

Specific arrangements for medical support services for evacuation of those requiring it are 

implemented 

Yes/No 

Transportation assistance is provided for/by hospitals, nursing homes and other institutions that 

will need to evacuate or help/evacuate those in their care 

Yes/No 

Collection points for individuals needing special evacuation assistance are established and 

publicized 

Yes/No 

Activity: Operate Evacuation Staging/Reception Area 

Definition: In coordination with mass care, medical, and other service agencies, provide 

immediate basic needs and processing of evacuated individuals en route to other destinations 

(e.g., to shelters, hospitals, etc.)

Critical Tasks

Res.B3a 7.1 Establish evacuation staging/reception area 

Res.B3a 7.1.1 Conduct security sweeps of evacuation staging/reception areas prior to occupancy, if incident is a 

terrorist attack or suspected terrorist attack 

Res.B3a 7.2.1 Provide, in coordination with mass care, for basic needs support and processing of evacuated 

individuals and companion animals in preparation for further movement 

Res.B3a 7.2.2 Provide, in coordination with medical care, access to medical services for evacuated individuals 

in staging/reception area 

Res.B3a 7.2.3 Provide, in coordination with WMD and Hazardous Materials Response capability, for 

decontamination of evacuated individuals if necessary (including those with medical needs) 

Res.B3a 7.2.4 Coordinate with appropriate agencies to address needs of those requiring assistance 

Res.B3a 7.3.1 Provide tracking of people needing evacuation assistance 

Res.B3a 7.3.2 Provide voluntary registration/tracking system for general population to support reunification 

Performance Measures Metric
Target Capabilities List 385 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Percent of evacuation staging/reception areas in the affected area that are coordinated with 

necessary sites and assisting agencies 

100% 

Public information messages regarding evacuation staging/reception areas are prepared and 

disseminated 

Yes/No 

Percent of evacuees whose basic needs are addressed at the staging area 100% 

Activity: Manage Incoming Evacuees 

Definition: In coordination with other service agencies, provide short-term and long-term support 

to evacuees arriving from affected areas

Critical Tasks

Res.B3a 8.1 Establish reception areas/centers for evacuees in the host jurisdiction 

Res.B3a 8.2 Monitor traffic movement of self-evacuees into/through area, and redirect as necessary 

Res.B3a 8.3 Coordinate with support agencies to provide short-term needs for evacuees, such as directions, 

information, shelter, medical care, and other assistance 

Res.B3a 8.4 Plan, in coordination with social service agencies, for long-term support for evacuees (e.g., 

temporary housing, schools, job searches, etc.) 

Performance Measures Metric

Percent of evacuation staging/reception areas in the host jurisdiction that are coordinated 

with necessary authorities and assisting agencies 

100% 

Public information messages to publicize evacuation staging/reception areas in the host 

jurisdiction are prepared and disseminated 

Yes/No 

Processing, registration and tracking systems are established with procedures, necessary 

forms and materials, and trained staff 

Yes/No 

Plans are completed and arrangements established to provide necessary care, shelter, 

lodging and short term needs of evacuees 

Yes/No 

Activity: Implement In-Place Protection Procedures 

Definition: Upon in-place protection activation, assist at-risk population in sheltering in homes or 

designated in-place sheltering locations

Critical Tasks

Res.B3a 9.2 Identify steps to reduce infiltration of hazard(s) 

Res.B3a 9.3.1 Ensure access to emergency communications while sheltered-in-place 

Res.B3a 9.3.2 Use emergency alerts system and Public Service Answering Points (PSAPs) to advise and update 

information of incident 

Performance Measures Metric

Percent of affected population immediately notified of initial in-place protection 

procedures, using standing emergency instructions 

100% 
386 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Time in which the affected general population is sheltered in place Within 30 minutes 

from notification 

Frequency with which follow-on instructions are provided to sheltered-in-place 

populations (e.g., hazard mitigation recommendations) 

Continuous 

Activity: Assist Re-Entry 

Definition: Upon notification of the affected area being safe, assist in-shelter population and/or 

evacuees in re-entering area

Critical Tasks

Res.B3a 10.1 Adapt and implement reentry plans as officials announce areas within the region to be approved 

for reentry 

Res.B3a 10.2 Assist in the re-entry of people and pets into evacuated areas when appropriate and safe 

Res.B3a 10.3 Provide re-entry information to the public on a timely and on-going basis 

Res.B3a 10.4 Coordinate with appropriate agencies to provide instructions and information if re-entry is not 

feasible 

Performance Measures Metric

Re-entry planning is conducted during the course of response to the event Yes/No 

Percent of affected evacuees notified of temporary re-entry procedures 100% 

Percent of affected evacuees instructed of permanent re-entry procedures, including safety 

precautions 

100% 

Activity: Demobilize Citizen Evacuation and Shelter-In-Place Operations 

Definition: Upon completion of assigned duties, decontaminate equipment, supplies, and 

personnel if appropriate, and demobilize

Critical Tasks

Res.B3a 11.1 Arrange for decontamination of equipment, supplies, and personnel used in evacuation/in-place 

protection 

Res.B3a 11.2 Participate in incident debriefing on evacuation/in-place protection implementation 

Res.B3a 11.3 Release personnel supporting evacuation/in-place protection 

Performance Measures Metric

Percent of Citizen Evacuation and/or Shelter-In-Place personnel debriefed 100% 

Lessons learned are identified Yes/No 

Lessons learned are addressed Yes/No 
Target Capabilities List 387 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Linked Capabilities 

Linked Capability Relationship 

Community 

Preparedness and 

Participation 

Citizen Evacuation and Shelter-In-Place coordinates with Community Preparedness and 

Participation to ensure that citizens are educated on how to prepare for and conduct 

evacuation and sheltering-in-place. 

On-Site Incident 

Management 

Citizen Evacuation and Shelter-In-Place management integrates itself into the local 

Incident Command/Unified Command system to coordinate protective action decisions. 

WMD and Hazardous 

Materials Response and 

Decontamination 

Citizen Evacuation and Shelter-In-Place coordinates with WMD and Hazardous 

Materials Response and Decontamination to ensure evacuation and/or in-place 

protection personnel and equipment are appropriately decontaminated. WMD and 

Hazardous Materials Response and Decontamination also supports decontamination of 

evacuees when necessary. 

Emergency Operations 

Center Management 

Citizen Evacuation and Shelter-In-Place management works through the EOC 

Management to notify affected and general population of protective action decisions. 

Emergency Public Safety 

and Security Response 

Citizen Evacuation and Shelter-In-Place relies upon Emergency Public Safety and 

Security Response assistance to safely maneuver affected populations through 

evacuation routes and provide assistance for traffic and crowd control. Emergency 

Public Safety and Security Response also handles the evacuation of the incarcerated 

populations at risk. 

Emergency Triage and 

Pre-Hospital Treatment 

Citizen Evacuation and Shelter-In-Place coordinates with Emergency Triage and PreHospital Treatment to obtain immediate medical treatment for evacuees in need, either 

en-route or at evacuee staging area. 

Medical Surge Citizen Evacuation and Shelter-In-Place coordinates with Medical Surge to obtain 

immediate medical treatment for evacuees in need, either en-route or at evacuee staging 

area. 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Citizen Evacuation and Shelter-In-Place coordinates with Mass Care to provide basic 

services to evacuees and assists in transferring evacuees to Mass Care shelters for at-risk 

populations. 

Emergency Public 

Information and Warning 

Citizen Evacuation and Shelter-In-Place coordinates with emergency public information 

and warning to provide accurate, timely and continuous information to the affected and 

general populations regarding evacuation and/or shelter-in-place orders and procedures, 

and subsequent reentry information and instructions. 

Environmental Health Citizen Evacuation and Shelter-In-Place relies on Environmental Health for assessment 

of hazards to determine whether areas are safe for re-entry. 
388 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Direct Citizen 

Evacuation and 

Shelter-in-Place 

Tactical 

Operations

End: No need remains for more 

protective action decisions

 Start: Indication 

of need for 

protective action

On-Site Incident 

Management

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Mass Care 

(Sheltering, 

Feeding, and 

Related 

Services)

Emergency 

Operations Center 

Management

Emergency Public 

Information and 

Warning

Inform of 

protective decisions

Coordination shelters for 

evacuated citizens

Request support

Environmental 

Health

Assist Re-entry

Demobilize Citizen 

Evacuation and 

Shelter-in-Place

Ready to implement evacuation and/or 

shelter-in-place

Implement 

Evacuation Orders 

for General 

Population

Implement InPlace Protection 

Procedures

Environmental conditions deemed safe

Testing conducted

WMD/Hazardous 

Materials 

Response and 

Decontamination Area decontaminated

as appropriate

Protective action decision made

Population 

self-evacuated

Population kept as 

safe as possible 

under 

circumstances

Citizens allowed to 

return to their homes

Perimeters established

Decontaminate area

Capability Activity Process Flow

Citizen Evacuation and Shelter-inPlace Capability Linked 

Capabilities Relationship

Coordinate public information

Coordinate evacuation of 

incarcerated

Evacuees decontaminated

Emergency Triage 

and 

Pre-Hospital 

Treatment Transfer injured

Basic needs at staging area met

Collect and 

Evacuate 

Population 

Requiring 

Assistance

Is evacuation 

short-term?

Operate 

Evacuation 

Staging/Reception 

Areas

Manage Incoming 

Evacuees

No

Yes

Population 

evacuated

Support 

provided in 

new 

location

Population requiring 

assistance identified

Evacuees 

processed/

basic 

needs met

Community 

Preparedness 

and 

Participation

Citizens educated 

on evacuation and 

shelter-in-place procedures

Activate Citizen 

Evacuation and 

Shelter-in-Place

Medical Surge

Emergency 

Public 

Safety and 

Security 

Response
Target Capabilities List 389 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Resource Element Description 

Resource Elements Components and Description

Emergency Alert System (EAS) Established by the FCC in 1994 to provide the President with access to 

thousands of broadcast stations, cable systems and participating satellite 

programmers to transmit a message to the public. 

Public Warning Systems Other notification systems including sirens, call-out systems, television 

captioning system, and any system capable of reaching 100% of the at-risk 

population, including a redundant capability 

Traffic control packages Teams of law enforcement personnel and traffic control equipment (barriers, 

cones, directional signals) 

Transportation vehicles Buses and other mass transit vehicles, including drivers, able to provide 

transportation to evacuees, including for re-entry 

Security and law enforcement 

officers 

To provide traffic control, using legal authority alter traffic flow and use of 

highways 

Non-law enforcement traffic 

controllers 

Other persons, (non-law enforcement types, such as Volunteers in Police 

Service) assigned traffic control duties at other intersections directing traffic 

flow 

Small Animal Transport Teams Per NIMS 

DOT Evacuation Coordination 

Team (Type I, II, and III) 

Per NIMS, facilitates the rapid, efficient, and safe evacuation of threatened 

populations 

DOT Evacuation Liaison Team Per NIMS, provides support in State and local emergency response efforts by 

compiling, analyzing, and disseminating traffic-related information that can be 

used to facilitate the rapid, efficient, and safe evacuation and reentry of 

threatened populations. 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability factors were 

developed from an in-depth analysis of the Chlorine Tank Explosion scenario. Other scenarios were 

reviewed to identify required adjustments or additions to the planning factors and national targets. 

 This capability applies to a wide range of incidents and emergencies, including accidental or 

deliberate disease outbreaks, natural disasters, and nuclear and conventional events. 

 Large-scale evacuations, organized or self-directed, may occur. More people are initially likely to 

flee and seek shelter for attacks involving chemical, biological, radiological or nuclear agents than for 

natural events. 

 Evacuation times and the frequency with which the public is notified of evacuation procedures are 

both incident driven. The times may change depending on whether it is an immediate or long term 

evacuation. 

 The time it takes to complete an evacuation is also incident driven depending on the type of hazard. 

 Transportation and traffic routes will be severely and negatively affected by the evacuation 

 Many evacuees will require provision of transportation. 

 The health-related implications of an incident may aggravate or impair attempts to implement a 

coordinated evacuation management strategy. 
390 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

 Public anxiety and stress will result from evacuations, requiring mental health services, appropriate 

risk communications, and public education/instruction. 

 Local jurisdictional resources will be quickly overwhelmed and will require mutual aid from other 

jurisdictions and support from Federal, State, and regional agencies. 

 Through memoranda of understanding (MOUs) incorporated into planning, adjacent communities 

will be prepared to handle significant numbers of evacuees from affected areas. These host 

communities also will identify resources, personnel, and equipment to shelter and support evacuees. 

 Pre-event identification of shelter sites has been planned for by emergency management agencies and 

MOUs are in place for use of the facilities. 

 Although shelters will require a minimum time for setup and activation, populations will require 

services immediately on evacuation, notably those for special needs populations and containment. 

 For shelter-in-place, evacuation, sheltering, and reentry planning, each jurisdiction has unique hazards 

and unique resources. Capabilities for at-risk populations are based on jurisdictional hazard 

vulnerability analysis. Plans (including emergency operations plans), procedures, mutual aid 

agreement, and so forth must be in place to support effective evacuation and sheltering, dependent on 

the hazard/risk analysis and the resources available for the at-risk population. The measurement for 

this capability is: Can the jurisdiction evacuate and/or shelter the at-risk population and, if they 

cannot, what actions will procure/garner adequate resources for them? 

Scenario-Specific 

 A large amount of the chemical chlorine has been released into the atmosphere (a plume) and is 

disbursed in a widely populated area. Decontamination of evacuees will require additional resources 

and triage areas before citizens can be sheltered; therefore, fire/emergency medical services (EMS), 

hospitals, and HazMat teams will be required to decontaminate evacuees. 

 Local and regional resources will be quickly overwhelmed and require State and Federal assistance. 

 Long-term sheltering and decontamination will be required. 

 City/jurisdiction is a large urban area with a network of streets and highways. Within the affected 

area, the evacuation and reentry routes and zones encompass 25 major intersections in a 25-mile 

evacuation radius. 

 Approximately 25 percent of the evacuated population will require shelter. The remaining 

populations will self-evacuate and arrange own shelter. 

 Approximately one percent of the 25 percent of the evacuated populations are special need 

populations and will require medical shelters and appropriate transportation. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Chlorine Tank Explosion) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement Values 

Quantity of Resources 

Needed 

Emergency Alert 

Systems 

1 system that will alert 

100% of the at-risk 

population 

Warning and notification 

of 700,000 people 

1 system nationally 

Public warning system 1 system that will alert 

100% of the at-risk 

population 

Warning and notification 

of 700,000 people 

1 system within the 

jurisdiction to reach the at-risk 

population with redundant 

capability 
Target Capabilities List 391 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement Values 

Quantity of Resources 

Needed 

Traffic control packages Provision of traffic 

control equipment and 

towing of 

vehicles/obstacles 

70,000 people will selfevacuate and reenter the 

affected areas when safe, 

leading to traffic 

congestion and delaying 

response assets 

Within high-risk evacuation 

area (distributed to 

predetermined locations): 

1,000 barriers 

1,000 traffic cones 

50 directional signs 

Transportation vehicles Each bus can hold 50 

people and can be 

recycled and used 

multiple times during an 

evacuation 

Federal resources are not 

timely for immediate 

evacuation, but can be 

used for reentry 

630,000 people will 

require assistance with 

evacuation through buses; 

630,000 people will need 

reentry assistance 

Local and regional 

(combined): 100 buses, 

including school and mass 

transit buses and other 

vehicles of mass 

transportation 

State and unaffected areas: 

100 buses 

Federal: 100 buses or other 

mass transit vehicles 

Security and law 

enforcement officers 

1 law enforcement 

officer at major 

intersections 

The event occurs in a large 

urban area with extensive 

network of streets and 

traffic flows. 

25 major intersections in 

the evacuation route 

Local: 25 law enforcement 

officers 

Regional/State: 150–175 

officers working outside the 

affected area restricting access 

and diverting highway traffic 

Regional/State: resources for 

reentry would be needed to 

augment local resources: 300 

persons 

Non-law enforcement 

traffic controllers 

Local: 200 non-law 

enforcement persons to direct 

traffic along the 

evacuation/reentry routes 

Small Animal Transport 

Teams 

60% of households have 

companion animals 

(CAs) and most people 

will not evacuate if they 

believe there is no 

facility to support them 

and their animals 

(general population 

shelters generally do not 

accept CAs) 

Average: 2 pets/household 10 Small Animal Transport 

Teams (per NIMS typing) 
392 Target Capabilities List 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability Activity 

supported by 

Element 

Emergency 

Alert System 

(EAS) 

Federal 

Resource 

1 Nationally Federal Activate Evacuation 

and Shelter-In-Place 

Re-Entry 

Public warning 

system 

Non-NIMS 

Resource 

Organization 

1 Per State State Activate Evacuation 

and Shelter-In-Place 

Re-Entry 

Public Warning 

System 

Non-NIMS 

Resource 

Organization 

1 Per jurisdiction Local Activate Evacuation 

and Shelter-In-Place 

Re-Entry 

Traffic control 

package 

Resource 

Organization 

1 In accordance with 

Evacuation Plans 

Local Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 

Transportation 

Vehicles 

Equipment 17 Per 100,000 

population 

Local Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 

Transportation 

Vehicles 

Equipment 17 Per 100,000 

population 

State Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 

Transportation 

vehicles 

Equipment 17 Per 100,000 

population 

Federal Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 

Law 

Enforcement 

and Security 

officers 

Personnel As required per 

incident 

State Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 

Small Animal 

Transport 

Teams 

NIMS-typed 

resource 

organization 

As required per 

incident 

Federal Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 

DOT 

Evacuation 

Coordination 

Team (Type I, 

II, and III) 

NIMS-typed 

resource 

organization 

As required per 

incident 

Federal Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 
Target Capabilities List 393 

RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability Activity 

supported by 

Element 

DOT 

Evacuation 

Liaison Team 

NIMS-typed 

resource 

organization 

As required per 

incident 

Federal Implement 

Evacuation Orders for 

General Population 

Implement In-Place 

Protection Procedures 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. The National Strategy for the Physical Protection of Critical Infrastructures and Key Assets. Office of 

Homeland Security. February 2003. http://www.dhs.gov/interweb/assetlibrary/Physical_Strategy.pdf. 

5. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

7. Guide for All-Hazard Emergency Operations Planning: State and Local Guide 101. Federal Emergency 

Management Agency. September 1996. http://www.fema.gov/pdf/rrr/slg101.pdf. 

8. Emergency Management Accreditation Program Standards. September 2003. 

http://www.emaponline.org/index.cfm. 

9. National Strategy for Homeland Security. Office of Homeland Security. July 2002. 

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

10. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa 

11. NFPA 5000, Building Construction and Safety CodeTM, National Fire Protection Association, 2006 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=5000 

12. NFPA 130, Standard for Fixed Guideway Transit and Passenger Rail Systems, National Fire Protection 

Association, 2003 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=130 

13. NFPA 101: Life Safety Code. National Fire Protection Association. 2003. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=101 

14. NFPA 1221: Standard for the Installation, Maintenance, and Use of Public Fire Service Communications 

Systems. National Fire Protection Association. 2002 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1221. 

15. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection 

Association. 2005. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561 

16. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program, 

http://mmrs.fema.gov. 

17. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an 

Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook 
394 Target Capabilities List 

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Target Capabilities List 395 

RESPOND MISSION: ISOLATION AND QUARANTINE 

ISOLATION AND QUARANTINE 

Capability Definition 

Isolation and Quarantine is the capability to protect the health of the population through the use of 

isolation and/or quarantine measures in order to contain the spread of disease. Isolation of ill individuals 

may occur in homes, hospitals, designated health care facilities, or alternate facilities. Quarantine refers to 

the separation and restriction of movement of persons who, while not yet ill, have been exposed to an 

infectious agent and may become infectious. Successful implementation will require that sufficient legal, 

logistical, and informational support exists to maintain these measures. Most experts feel that isolation 

and quarantine will not stop the outbreak and that if used, the focus will be on cases that might introduce 

the disease into the State or other geographic area. 

Outcome 

Individuals who are ill, exposed, or likely to be exposed are separated, movement is restricted, basic 

necessities of life are available, and their health is monitored in order to limit the spread of a newly 

introduced contagious disease (e.g., pandemic influenza). Legal authority for those measures is clearly 

defined and communicated to all responding agencies and the public. Logistical support is provided to 

maintain measures until danger of contagion has elapsed. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the Emergency Support Function (ESF) #8: Public Health and Medical Services. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.B3b 1.1 Develop plans, policies, and procedures for implementing isolation and quarantine 

Res.B3b 1.1.1 Introduce legislation authorizing isolation and quarantine (including quarantine of groups) 

ResB3b 1.1.2 Develop plans for coordinating quarantine activation and enforcement with public safety and 

law enforcement 

Res.B3b 1.3.1 Stand up isolation and quarantine units (including defining procedures/protocols) in all 83 of 

the target cities and as needed in foreign countries 

ResB3b 1.2 Develop plans, procedures, and protocols to monitor long-term health effects across 

community interests 

ResB3b 1.3 Establish systems, programs, and resources for implementing isolation and quarantine 

Res.C1a 6.2.3 Improve monitoring of adverse treatment reactions among those people who have received 

medical countermeasures and have been isolated or quarantined 

RecA2b 1.1 Create and implement policies to deal with the financial impact to individuals who are placed 

in isolation or quarantine and to the public health system 
396 Target Capabilities List 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Preparedness Measures Metrics

Legislation has been enacted authorizing appropriate isolation and quarantine measures 

(including quarantine of groups) 

Yes/No 

Plan for conducting isolation and quarantine operations is in place Yes/No 

Plan specifies the criteria for activating Isolation and Quarantine procedures Yes/No 

Plan addresses coordinating with Mass Care (e.g. for provision of water, food, bulk 

supplies to isolated and quarantined individuals). 

Yes/No 

Plan addresses cultural characteristics of populations to be isolated and/or quarantined 

(e.g. religious needs, language barriers). 

Yes/No 

Plan addresses the financial impact to individuals who are placed in isolation and 

quarantine. 

Yes/No 

Plan addresses coordinating quarantine activation and enforcement with public safety and 

law enforcement 

Yes/No 

Plan addresses tracking details of individuals placed in Isolation or Quarantine using 

Personal Health Identification Number (PHIN 

Yes/No 

Plan addresses implementation of infection control precautions Yes/No 

Legal authority to isolate and/or quarantine individuals, groups, facilities, animals, and 

food products is defined 

Yes/No 

Plan addresses how to ensure adequate stockpiles of appropriate personal protective 

equipment (PPE) 

Yes/No 

Plan addresses having or having access to information systems to support tracking 

adherence to isolation and quarantine measures that comply with the PHIN functional 

requirements for Countermeasure and Response Administration 

Yes/No 

System is in place for monitoring people who have been isolated or quarantined (e.g., for 

evidence of infection, progression of illness) 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

ResB3b 2.1 Develop and implement training for isolation and quarantine 

ResB3b 2.2 Develop and implement exercises for isolation and quarantine 

Preparedness Measures Metrics

Staff have been trained in isolation and quarantine operations and plans Yes/No 

Exercises to test plans for implementing isolation and quarantine have been conducted Yes/No 
Target Capabilities List 397 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Performance Tasks and Measures/Metrics 

Activity: Direct Isolation and Quarantine Tactical Operations 

Definition: In response to a need for isolation and quarantine orders, direct, manage, and 

coordinate isolation and quarantine operations

Critical Tasks

Res.B3b 3.1.1 Identify decision-makers to oversee isolation and quarantine conduct 

Res.B3b 3.1.3 Develop disease-specific isolation and quarantine plan 

Res.B3b 3.1.2 Identify applicable isolation and quarantine laws, policies, and implementation procedures 

Res.B3b 3.2 Provide isolation and quarantine information to emergency public information for release 

Res.B3b 3.2.4 Coordinate with public information agencies to disseminate health and safety information to the 

public 

Res.B3b 3.2.5 Coordinate public information releases about those people who have been isolated or quarantined 

Res.B3b 3.2.1 

Coordinate with public information agencies regarding notification of quarantine or isolation to 

ensure compliance of the general public (e.g., doors are locked and may be opened only by 

public health official or designated persons) 

Res.B3b 3.2.3 Promote the public acceptance of isolation and quarantine as necessary control measures 

Res.B3b 3.2.2 Coordinate with public information agencies to provide timely dissemination of health and safety 

information to the public regarding risk and protective actions 

Res.B3b 3.3.1 Coordinate with Law Enforcement to monitor and enforce restrictions, if necessary 

Res.B3b 3.1.4 Ensure appropriate judicial review of isolation and quarantine orders 

Res.B3b 3.3.2 Coordinate with public health and medical services to ensure appropriate care for those 

individuals who have been isolated or quarantined 

Res.B3b 3.3.2.1 Ensure critical medical care for any ill individuals (related to the epidemic or not) 

Res.B3b 3.3.2.2 Coordinate comprehensive stress management strategies, programs, and crisis response teams for 

isolation and quarantine operations 

Res.B3b 3.3.5 Assist public health in disease control, quarantine, containment, and eradication 

Res.B3b 3.3.3 Coordinate with Mass Care to provide water, food, and bulk supplies to isolated and quarantined 

individuals 

Res.B3b 3.3.3.1 

Ensure that adequate food, water, and medication are provided to quarantined or isolated persons 

(through public health officials; oversight by case manager) 

(Note: Not only public health officials, all appropriate sectors are involved in this) 

Res.B3b 3.3.4 Coordinate with Public Works for retrieval and disposal of contaminated articles from homes or 

other locations where individuals are isolated or quarantined 

Res.B3b 3.3.6 Coordinate with the agriculture community regarding potential animal influence on need for 

isolation/quarantine 

Res.B3b 3.4.2 Report health status data on isolated and quarantined populations 

Res.B3b 6.3.1.1 Monitor for fever or evidence of infection (quarantine) or progression of illness requiring 

hospitalization (isolation) by epidemic agent 

Res.B3b 6.3.1.2 Identify and respond to adverse events (epidemic treatment or prophylaxis) 
398 Target Capabilities List 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Pro.B1e 3.2.1 Maintain communication channels (Centers for Disease Control (CDC) Coordinating Office for 

LRN) 

Res.B3b 6.6 

Have or have access to information systems to support monitoring adherence to isolation and 

quarantine measures that comply with the PHIN functional requirements for Countermeasure and 

Response Administration. 

Performance Measures Metric

Public health official with legal authority to issue isolation and quarantine 

orders is identified 

Yes/No 

Time in which isolation and quarantine order is issued Within 4 hours from notification of 

need to implement isolation and 

quarantine 

Time in which educational information is provided for release Within 1 hour from issuance of order 

Time in which medical resource personnel are notified and assembled at 

isolation and quarantine areas 

Within 12 hours from need to 

implement isolation and quarantine 

Time in which communications with public health officials and CDC are 

established 

Within 30 minutes from need to 

implement isolation and quarantine 

Activity: Activate Isolation and Quarantine

Definition: Initiate plan and mobilize healthcare and security personnel and resources to contain a 

communicable disease outbreak

Critical Tasks 

Res.B3b 4.1 Identify community sites suitable for quarantine 

Res.B3b 4.3 Issue isolation and quarantine order or an agreement for voluntary isolation 

Res.B3b 4.3.1 Issue an order that closes public venues based on the recommendation of an epidemiologist 

Res.B3b 4.4 Disseminate guidelines for isolation and quarantine restrictions 

Res.B3b 4.4.1 Disseminate protocols for isolation and care giver treatment of isolated individuals 

Res.B3b 4.2 Stand up isolation and quarantine units 

Res.B3b 4.4.2 Ensure mental health care and access to religious practices 

Res.B3b 4.4.3 Ensure access to communication with family and friends to reduce unnecessary stress 

Res.B3b 4.4.4 Provide PPE and culturally and linguistically appropriate instruction on its use for household 

members and caregivers 

Performance Measures Metric 

Time in which isolation and quarantine units are stood up Within 24 hours from notification of 

need to implement isolation and 

quarantine 

Time in which personnel are deployed to traveler screening locations Within 2 hours from identifying 

screening locations 

Time in which restriction guidelines and treatment protocols are 

disseminated to medical care providers 

Within 2 hours from order being 

issued 
Target Capabilities List 399 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Activity: Implement Travel Restrictions

Definition: Screen travelers from outbreak or pandemic areas and implement travel restrictions 

consistent with disease specific precautions

Critical Tasks 

Res.B3b 5.1 Establish traveler screening locations 

Res.B3b 5.2.1 Screen inbound/outbound travelers from outbreak or pandemic areas for illness or exposure 

Res.B3b 5.2.2 Prevent boarding of potentially infected passengers in foreign countries with endemic disease 

Res.B3b 5.2.3 Educate international travelers on health risks and symptoms 

Res.B3b 5.2.4 Screen and educate all staff of outbound flights to exclude potentially infected passengers 

Res.B3b 5.2.5 Isolate and quarantine potentially infected travelers 

Performance Measures Metric 

Time in which screening locations are established Within 30 minutes from 

screener arrival onsite 

Percent of inbound/outbound travelers screened while isolation and quarantine 

order is in effect 

100% 

Percent of screened positive persons isolated and quarantined 100% 

Activity: Implement Voluntary Isolation and Quarantine

Definition: Within an identified geographic area, implement separation and restriction of 

movement of potentially exposed asymptomatic individuals and isolate symptomatic individuals 

on a voluntary basis

Critical Tasks 

Res.B3b 6.1 Acquire identification information of affected individuals under voluntary isolation and 

quarantine 

Res.B3b 6.2 Provide medical and supportive care guidance to community under voluntary isolation and 

quarantine 

Res.B3b 6.5 Provide infection control education materials to community under voluntary isolation and 

quarantine and hospitals 

Res.B3b 6.3.1 Monitor health status of voluntarily isolated and quarantined individuals and caregivers in the 

community and hospitals 

Res.B3b 6.4 Arrange for transportation to designated healthcare facilities of critically ill individuals under 

voluntary isolation and quarantine 

Res.B3b 6.3.2 Monitor compliance in whatever way is necessary (e.g., direct communication with the person 

under order via land line) 

Performance Measures Metric 

Percent of caregivers for isolated patients who become infected while under voluntary 

isolation and quarantine 

0% 
400 Target Capabilities List 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Frequency with which updates are provided to tracking system from voluntarily isolated or 

quarantined individuals while under voluntary isolation and quarantine 

Every 24 hours 

Percent of persons receiving care and prevention instruction while under voluntary isolation 

and quarantine 

100% 

Percent of caregivers using infection control precautions while under voluntary isolation and 

quarantine 

100% 

Activity: Implement Mandatory Isolation and Quarantine 

Definition: Ensure compliance with orders for separation and restriction of movement of 

potentially exposed asymptomatic individuals and isolation of symptomatic individuals within an 

identified geographic area

Critical Tasks 

Res.B3b 7.1 Acquire identification information of affected individuals under mandatory isolation and 

quarantine 

Res.B3b 7.2 Provide medical and supportive care guidance to affected population under mandatory isolation 

and quarantine 

Res.B3b 7.3 Monitor compliance with infection control and mandatory restrictions of movement 

Res.B3b 7.4 Monitor health status of individuals and caregivers under mandatory isolation and quarantine and 

hospital staff 

Res.B3b 7.5 Arrange for transportation to designated healthcare facilities of critically ill individuals under 

mandatory isolation and quarantine 

Performance Measures Metric 

Percent of caregivers for isolated patients who become infected while under mandatory 

isolation and quarantine 

0% 

Frequency with which updates to tracking system are provided from isolated or 

quarantined individuals while under mandatory isolation and quarantine 

Every 24 hours 

Percent of persons receiving care and prevention instruction while under mandatory 

isolation and quarantine 

100% 

Percent of caregivers using infection control precautions while under mandatory isolation 

and quarantine 

100% 

Percent of isolated or quarantined persons receiving daily monitoring and compliance 

contact 

100% 

Activity: Demobilize Isolation and Quarantine

Definition: Upon isolation and quarantine order being lifted, decontaminate equipment, supplies, 

and personnel if appropriate and demobilize

Critical Tasks 

Res.B3b 8.2 Participate in incident debriefing on isolation and quarantine implementation 

Res.B3b 8.3 Release personnel supporting isolation and quarantine operations 
Target Capabilities List 401 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Res.B3b 8.4 Reconstitute resources and facilities supporting isolation and quarantine operations 

Performance Measures Metric 

Time in which isolation and quarantine facilities are restored to pre-incident 

operations 

Within 7 days from isolation and 

quarantine order being lifted 

Isolation and quarantine personnel are debriefed Yes/No 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations 

Center Management 

Emergency Operations Center Management provides resources to Isolation and 

Quarantine. Emergency Operations Center Management and Isolation and Quarantine 

provide each other with situation reports. 

Emergency Public Safety 

and Security Response 

Emergency Public Safety and Security Response provides perimeter and crowd control 

to Isolation and Quarantine. 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Mass Care provides bulk distribution items to Isolation and Quarantine. 

Medical Surge Medical Surge treats symptomatic patients in Isolation and Quarantine. 

Emergency Public 

Information and Warning 

Isolation and Quarantine provides care guidance to public and protective order 

information to Emergency Public Information and Warning for release to the public. 

Emergency Triage and 

Pre-Hospital Treatment 

Emergency Triage and Pre-Hospital Treatment transfers symptomatic persons to 

Isolation and Quarantine. 

Mass Prophylaxis Mass Prophylaxis transfers symptomatic persons to Isolation and Quarantine. 

Epidemiological 

Surveillance and 

Investigation 

Epidemiological Surveillance and Investigation participates in order 

modification/evaluation with Isolation and Quarantine. 

Fatality Management Isolation and Quarantine transfers deceased persons to Fatality Management. 

WMD and Hazardous 

Materials Response and 

Decontamination 

WMD and Hazardous Materials Response and Decontamination provides 

decontamination to Isolation and Quarantine. 
402 Target Capabilities List 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Direct Isolation 

and Quarantine 

Tactical 

Operations

End: Return to normal 

operations

Activate Isolation 

and Quarantine

Start: Indication 

of outbreak of 

communicable 

disease

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Medical Surge

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)

Fatality 

Management

Need for isolation and 

quarantine

Mass Prophylaxis

Emergency 

Operations Center 

Management

Emergency Public 

Information and 

Warning

Authority to execute isolation and 

quarantine recommendations and orders

Demobilize 

Isolation and 

Quarantine

Mandatory isolation 

and quarantine 

orders issued

Ready to establish orders

Inform public of beginning 

and end of protective orders

Perimeter/crowd 

control provided

Bulk distribution provided

Transfer deceased 

persons

Provide sitreps

Isolation and quarantine 

orders implemented

Medical care to symptomatic 

patients provided

Voluntary isolation 

and quarantine 

orders issued

 Provide resource needs

WMD/Hazardous 

Materials 

Response 

and 

Decontamination

Decontamination 

provided

Epidemiological 

Surveillance and 

Investigation

Is mandatory 

order deemed 

necessary?

Implement 

Voluntary 

Isolation and 

Quarantine 

Implement 

Mandatory 

Isolation and 

Quarantine

No Yes

Orders lifted

Participate in order 

evaluation/modification

Isolation and quarantine

operations continued

Implement Travel 

Restrictions

Travelers 

screened

Resources provided

Provide guidance on legal and medical implementation 

Provide care guidance to 

public

Orders lifted?

Updated orders provided

Status reports provided

Yes

No

Capability Activity Process Flow

Linked Isolation and Quarantine Capability

Capabilities Relationship

Symptomatic 

persons transferred

Emergency 

Public Safety and 

Security Response

Emergency 

Triage and PreHospital 

Treatment
Target Capabilities List 403 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Resource Element Description 

Resource Elements Components and Description

Community Isolation and 

Quarantine Teams 

Teams located in district, county, and municipal office that comprise 6 officers 

per district or county team and 4 officers per municipal team 

Quarantine Stations CDC Quarantine Stations provide advanced emergency response capabilities, 

including isolation and communications facilities. They include regional health 

officers to provide clinical, epidemiologic, and programmatic support, and 

quarantine public health officers to conduct surveillance, response, and 

communicable disease prevention activities. WHO also provides quarantine 

stations. 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the pandemic influenza and plague scenarios. Other 

scenarios were reviewed to identify required adjustments or additions to the planning factors and 

national targets.

 Isolation and quarantine deals specifically with infectious diseases. 

 Isolation and quarantine deals specifically with separation of individuals rather than prohibition on 

structures. 

 This capability refinement addresses community separation and not hospitalized patients. 

 Recognition and assessment of exposure to an illness is an epidemiological function. 

 50 percent of infected persons are asymptomatic shedders of the influenza virus. 

 Shedding of the virus occurs 24 hours before the development of symptoms. 

 Cases are occurring in a single wave over 8 weeks. The response is an evolving process – it has a 

phased approach. 

 Number of days in quarantine are 10 to 14 days (epidemiological evidence may allow for a reduction 

in this time). 

 Number of days in isolation varies by age (7 days for adults; 14 days for children). 

 World Health Organization (WHO) pandemic influenza phase: Phases 1 and 2 are interpandemic; 3, 

4, and 5 are pandemic alert; 6 is pandemic period. General preparedness activities have occurred in 

WHO Phases 1 – 3. 

 WHO Phase 1 – 3: General Preparedness activities. 

 In WHO Phase 4, cases are occurring outside of the USA. 

 WHO Phase 4, if there is extensive trade or travel links with the affected country, and WHO Phase 5, 

are the most important when considering isolation and quarantine. 

 WHO Phase 5 is larger clusters, more transmission, suggesting that the virus is becoming more 

adoptive to human transmission. 

 WHO Phase 5 is most important when considering Isolation and Quarantine. 

 Set up isolation/quarantine stations in each foreign country that is a source of the infection. 

 Under the Department of Health and Human Services (HHS), there are 83 tier 1 cities in the United 

States (i.e. airports with more than 1 million travelers, seaports with more than 100k travelers, or land 

borders with more than 5 million crossings); currently there are isolation/quarantine stations in 18 of 

these cities. 

 Screening for inbound/outbound flights will be needed. 
404 Target Capabilities List 

RESPOND MISSION: ISOLATION AND QUARANTINE 

 WHO Phase 6: try and isolate 10 cases per million population. Sustained community transmission is 

assumed to be occurring when cases exceed 10 per million population. 

 Attempt to quarantine 30 contacts per case (300 contacts per 1 million population). 

 This will be community based rather than hospitalized patients. 

 Closing of public venues may be retained here. 

 There is a high Percent of absenteeism related to medical, traditional first responder, and public health 

personnel. 

 Isolation orders will be based on a case definition, not strictly on laboratory test results. 

 At least eight other countries are affected. 

 Resources for provision of mental health services are not defined in this capability. 

 Resources for provision of law enforcement are not defined in this capability. 

 Resources for public information are not defined in this capability. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Pandemic Influenza and Plague) 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of 

Resources Needed 

Community 

Isolation/and 

Quarantine Team 

One per 20 persons 

isolated or 

quarantined 

Isolate 10 per million population; 

quarantine 300 per million 

population. Current population of the 

USA is 297 million. 

Need to isolate 2970 persons and 

quarantine 89,100 persons. 

Total 92,070, divided by 20 

=4,604. Could be reduced 

by number of hospital 

isolations — need to crossreference with Health 

Resources and Services 

Administration. 

Quarantine Station Two per city can 

provide isolation 

and quarantine 

services to inbound 

and outbound 

passengers 

83 Tier One cities Two per 83 Tier One 

Cities, plus one per 

affected overseas country. 

Approaches for Large-Scale Events 

 Community Isolation/Quarantine Teams need to be situated locally. 

 Federal Quarantine Stations need to be located in tier 1 cities (those that have airports with more than 

1 million travelers, seaports with more than 100,000 travelers, or land borders with more than 5 

million crossings). Note that 18 Federal Quarantine Stations currently exist in tier 1 cities. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability Activity 

Supported by 

Element 

Community 

Isolation & 

Quarantine Team 

Resource 

Organization 

1 Per jurisdiction 

affected 

Local (City) All Activities 
Target Capabilities List 405 

RESPOND MISSION: ISOLATION AND QUARANTINE 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability Activity 

Supported by 

Element 

Community 

Isolation & 

Quarantine Team 

Resource 

Organization 

1 Per district/county 

affected 

Local 

(County) 

All Activities 

Quarantine station Resource 

Organization 

1 Per Tier 1 City Federal 

(HHS/CDC) 

Implement Travel 

Restrictions 

Quarantine Station Resource 

Organization 

1 Per pandemic agent 

source country 

Private Sector 

(World Health 

Organization) 

Implement Travel 

Restrictions 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Fact Sheet on Isolation and Quarantine. U.S. Department of Health and Human Services, Centers for Disease 

Control and Prevention. January 2004. 

5. Modular Emergency Medical System: Concept of Operations for the Acute Care Center U.S. Army Soldier and 

Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003. 

6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

7. Emergency Response Training Necessary for Hospital Physicians/Nurses That May Treat Contaminated 

Patients. Standard interpretation. Occupational Safety and Health Administration. March 1999. 

8. Emergency Response Training Requirements for Hospital Staff. Standard interpretation. Occupational Safety 

and Health Administration. April 1997. 

9. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

10. Medical Personnel Exposed to Patients Contaminated with Hazardous Waste. Standard interpretation. 

Occupational Safety and Health Administration. March 1992. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609. 

11. Training Requirements for Hospital Personnel Involved in an Emergency Response of a Hazardous Substance. 

Standard interpretation. Occupational Safety and Health Administration. October 1992. 

12. DHS, Office for Domestic Preparedness. Metropolitan Medical Response System (MMRS) Program, 

http://fema.mmrs.gov. 

13. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an 

Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook. 
406 Target Capabilities List 

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Target Capabilities List 407 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED) 

SEARCH AND RESCUE (LAND-BASED) 

Capability Definition 

Search and Rescue (Land-based) is the capability to coordinate and conduct search and rescue (SAR) 

response efforts for all hazards, including searching affected areas for victims (human and, to the extent 

no humans remain endangered, animal) and locating, accessing, medically stabilizing, and extricating 

victims from the damaged area. 

Outcome 

The greatest numbers of victims (human and, to the extent that no humans remain endangered, animal) 

are rescued and transferred to medical or mass care capabilities, in the shortest amount of time, while 

maintaining rescuer safety. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the Emergency Support Function (ESF) #9: Urban Search and Rescue. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems

Critical Preparedness Tasks 

Res.B4a 1.1.1 Incorporate Search and Rescue (SAR) plans and procedures for urban, civil, and other search and 

rescue into jurisdiction’s Emergency Operations Plan (EOP) or EOP Annexes 

Res.B4a 1.3.2 Pre-identify typed SAR resources 

Res.B4a 1.3.3 Develop resource allocation processes and procedures for SAR capable resources that also 

support other capabilities/functions 

Res.B4a 1.3.4 Identify resources from other agencies or capabilities that may assist with SAR, and plan to 

integrate such additional resources as necessary 

Res.B4a 1.2.1 Develop plan to incorporate nationally certified SAR volunteers 

Res.B4a 1.2.2 Develop management plan to address uncertified volunteers 

Res.B4a 1.1.2 Develop plan for SAR teams that will be deployed out-of-region to be self-sustaining for 72 

hours 

ResB4a 1.2 Establish plans, procedures and protocols for logistical support for search and rescue assets. 
408 Target Capabilities List 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED 

Preparedness Measures Metrics

Scale of jurisdiction’s urban search and rescue capability is related to risk/threat 

analysis 

Yes/No 

Team is equipped in accordance with the National Incident Management System 

(NIMS) Resource Typing System 

Yes/No 

Federal, State, regional, and local SAR Capabilities are NIMS Compliant Yes/No 

SAR plans address logistical support (e.g. directing resources, re-assigning techspecialists, managing uncertified volunteers). Yes/No 

Plans address demobilization of SAR operations (e.g. replenishing supplies and 

equipment, re-assigning personnel). 

Yes/No 

Plans address SAR personnel needs (e.g. physical, psychological, financial 

assistance). 

Yes/No 

SAR plans are integrated with the incident management structure (e.g. USAR teams 

coordinated with fatality management and EMS resources). 

Yes/No 

SAR plans address information sharing requirements Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Preparedness Tasks

Res.B4a 2.1.1 Establish training and exercise program for SAR personnel as per EOP 

Res.B4a 2.1.2 Train and equip SAR personnel to the appropriate standards commensurate with their mission 

Preparedness Measures Metric

Training program has been established Yes/No 

Training and exercises programs address both urban and civil search and rescue Yes/No 

SAR personnel trained and equipped as per EOP and SOPs Yes/No 

Frequency with which SAR activities are exercised in large and complex exercises Every 12 months 

Performance Measures and Metrics and Critical Tasks 

Activity: Direct Search & Rescue Tactical Operations 

Definition: In response to notification of entrapment, provide management and coordination of 

SAR capability, through demobilization for single or multiple teams

Critical Tasks

Res.B4a 3.1 Receive and accept SAR request/activation order 

Res.B4a 3.2 Participate in SAR planning process and operational briefings 

Res.B4a 3 Plan and coordinate SAR operations at incident site 

Res.B4a 3.4.1 Direct SAR resources according to the National Incident Management System (NIMS), the 

Incident Command System (ICS), and consensus-level technical rescue standards 
Target Capabilities List 409 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED) 

Res.B4a 3.4.3 Determine need for deployment of additional SAR assets 

Res.B4a 3.6.1 Provide timely situational awareness and response information 

Res.B4a 3.6.1.1 Establish and maintain a chorological log of events in the field 

Res.B4a 3.6.2 Document and collect SAR operations information, including chronological log of events in the 

field for use in after action review 

Res.B4a 3.7.3 Re-assign/rotate technical specialists, as needed 

ResB4a 3.3.3 Maintain accountability of all SAR personnel 

Res.B4a 3.2.1 Identify logistics capability of incident site to determine whether deployed SAR teams must be 

self-sustaining 

Res.B4a 3.7 Develop SAR team reassignment/demobilization plan 

Performance Measures Metric

SAR teams are incorporated into the incident command structure Yes/No 

Frequency with which situation and resource status information are received (and also 

after a significant change) 

Every 30 minutes 

Number of loss-time injuries per deployment of SAR personnel during SAR efforts <1 

Time in which tactical plan is developed and implemented by State, regional, and/or 

local SAR, based on the Incident Action Plan (IAP) 

Within 2 hrs from arrival 

on-scene 

Time in which tactical plan is developed and implemented by Federal SAR 

resource(s) based on the (IAP) 

Within 4 hrs from arrival 

on-scene 

Demobilization/reassignment plan is developed and takes into account long-term 

personnel follow-up 

Yes/No 

Activity: Activate Search & Rescue 

Definition: In response to notification, mobilize and arrive at the incident scene to begin 

operations

Critical Tasks

Res. B4a 3.1 Receive Search and Rescue (SAR) alert/activation order 

Res.B4a 4.3 Participate in Search and Rescue (SAR) planning process and operational briefings 

Res.B4a 4.2 Initiate mobilization procedure 

Res.B4a 4.2.1 Assemble personnel and equipment at designated location 

Res.B4a 4.1.2 Deploy Federal, State, regional or local SAR resources commensurate with request 

Res.B4a 4.2.2 Transport team (personnel and equipment) to incident scene 

Res.B4a 4.2.3 Collect and analyze incident information to assist SAR capability deployment decisions 

Performance Measures Metric

Time in which local SAR capability arrives on-scene Within 2 hours from 

notification 

Time in which regional SAR capability arrives on-scene Within 12 hours from 
410 Target Capabilities List 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED 

notification 

Time in which federally designated SAR capable resources are deployed Within 6 hours from task force 

notification of request 

Time in which first activated Federal SAR resources arrive on-scene Within 24 hours from 

activation 

Activity: Provide Materiel and Other Support 

Definition: Upon arriving on scene, provide, track, and maintain equipment and supplies as well 

as support base of operations

Critical Tasks

Res.B4a 4.3 Participate in SAR planning process and operational briefings 

Res.B4a 5.1 Establish base of operations 

Res.B4a 5.2 Maintain accountability of team equipment/supplies 

Res.B4a 5.1.1 Provide medical care for SAR personnel, including the K-9 first responders 

Performance Measures Metric

Time in which functional Base of Operation is established and ready to support 

initial SAR operations 

Within 60 minutes from 

arrival at incident site 

Percent of accountability for team equipment/supplies maintained 100% 

Percent of deployable SAR capability that can sustain its own operations for up to 

72 hours without additional resources 

100% 

Percent of SAR personnel and service animals whose health is monitored at least 

once per work cycle 

100% 

Activity: Conduct Search and Rescue Reconnaissance 

Definition: Once on scene and equipped, provide rapid assessment of assigned SAR work areas 

and recommend search priorities/tactics to management

Critical Tasks

Res.B4a 6.1.1 Assess incident site to determine search and rescue course of action 

Res.B4a 6.1.2 Assess the incident site for hazardous materials (hazmat) or other environmental conditions 

Res.B4a 6.1.3 Develop map of search area to be used in SAR tactical operations 

Res.B4a 6.3 Communicate findings and recommend priorities to Team Management 

Performance Measures Metric

Time in which reconnaissance team provides preliminary recommendation on search 

priorities and strategy 

Within 1 hour 
Target Capabilities List 411 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED) 

Activity: Search 

Definition: Upon being assigned search area, begins search operations

Critical Tasks

Res.B4a 4.3 Participate in SAR planning process and operational briefings 

Res.B4a 7.1 Ensure scene/site safety (security, shoring, debris) 

Res.B4a 7.2 Conduct area search for victims 

Res.B4a 7.2.1 Search for victims using canine, physical, and electronic search capabilities 

Res.B4a 7.2.2 Identify and record potential/actual victim locations (live and dead) 

Res.B4a 7.3 Direct ambulatory victims to safe assembly point 

Res.B4a 7.4 Report progress of search efforts on a regular basis to SAR lead 

Res.B4a 7.5 Maintain accountability for search personnel, equipment, and supplies 

Performance Measures Metric

Percent of assigned area searched 100% 

Time in which systematic search of an area affected by a large-scale emergency 

is initiated 

Within 30 minutes from 

operations briefing 

Percent of ambulatory victims directed to safe assembly point 100% 

Frequency with which updated situation and resource status report is provided 

(including after major change in conditions) 

Every 30 minutes 

Activity: Extricate 

Definition: Upon notification of location of victim, perform extrication

Critical Tasks

Res.B4a 4.3 Participate in SAR planning process and operational briefings 

Res.B4a 7.1 Ensure scene/site safety (security, shoring, debris) 

Res.B4a 8.1.1 Coordinate extrication strategy with medical personnel 

Res.B4a 8.1 Extricate trapped victims 

Res.B4a 8.2 Provide periodic progress reports while rescuing 

Res.B4a 8.3 Maintain accountability of extrication personnel, equipment, and supplies 

Performance Measures Metric

Percent of dangerous conditions affecting extrication mitigated to allow worker and 

victim safety in accordance with SOP 

100% 

Frequency with which updated situation and resource status report is provided 

(including after major change in conditions) 

Every 30 minutes 

Percent of located victims extricated 100% 
412 Target Capabilities List 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED 

Activity: Provide Medical Treatment 

Definition: Upon access to victim, coordinate with medical personnel to treat and transfer victim 

to more definitive medical care

Critical Tasks

Res.B4a 4.3 Participate in SAR planning process and operational briefings 

Res.B4a 9.1.1 Coordinate medical treatment with extrication and medical personnel 

Res.B4a 9.2 Transfer victims to more definitive medical care 

Res.B4a 9.1.2 Medically stabilize trapped victims according to Task Force Operations Manual and Medical 

Protocols 

Res.B4a 9.1.2.1 Ensure victims are medically stabilized according to Task Force Operations Manual and Medical 

Protocols throughout packaging and extrication 

Res.B4a 9.3 Maintain accountability of medical personnel, equipment, and supplies 

Performance Measures Metric

Percent of victims whose standard of care is maintained according to local medical protocols 100% 

Percent of time resources were identified to transfer patient to more definitive medical care 100% 

Activity: Demobilize/Redeploy 

Definition: Upon completion of assigned mission, disengage from incident site, and debrief 

personnel.

Critical Tasks

Res.B4a 10.2.1 Repackage equipment cache 

Res.B4a 10.2 Demobilize base of operations 

Res.B4a 10.1.1 Arrange transportation for personnel and equipment 

Res.B4a 10.1.2 Debrief SAR capability personnel 

Performance Measures Metric

Time in which equipment cache is re-inventoried and packaged for transport Within 12 hours from start of 

demobilization 

Time in which base of operations is returned to original conditions Within 12 hours from start of 

demobilization process 

Percent of Search and Rescue task force personnel debriefed before leaving 

the scene 

100% 
Target Capabilities List 413 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED) 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

Search and Rescue (Land-Based) integrates itself into the local Incident 

Command/Unified Command system. 

WMD and Hazardous 

Materials Response and 

Decontamination 

Search and Rescue (Land-Based) coordinates with WMD and Hazardous Materials 

Response and Decontamination to identify hazardous conditions, ensure SAR members 

have appropriate protective clothing and equipment, and ensure SAR personnel and 

equipment are appropriately decontaminated. 

Emergency Triage and 

Pre-Hospital Treatment 

Search and Rescue (Land-Based) coordinates with Emergency Triage and Pre-Hospital 

Treatment to ensure medical care of victims during and after extricated. 

Emergency Public Safety 

and Security Response 

Search and Rescue (Land-Based) relies upon Emergency Public Safety and Security 

Response assistance to secure search and rescue sites, safely divert public from the area, 

and to provide security support for the SAR Base of Operations. 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Search and Rescue (Land-Based) notifies Mass Care of location of people and 

companion animals encountered during course of search and rescue operations 

Animal Disease 

Emergency Support 

Search and Rescue (Land-Based) notifies Animal Disease Emergency Support of 

location of livestock, dangerous animals, and injured wildlife encountered during course 

of search and rescue operations. 

Fatality Management Search and Rescue (Land-Based) notifies Fatality Management of location of remains 

encountered during search and rescue operations. 

Responder Safety and 

Health 

Search and Rescue (Land-Based) relies upon responder health and safety for site 

hazards to help ensure that appropriate precautions are identified and that personal 

protective equipment/supplies are available to protect SAR personnel. 
414 Target Capabilities List 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED 

Direct Search 

and Rescue 

(Land-Based) 

Tactical 

Operations

Activate Search 

and Rescue 

(Land-Based)

Conduct SAR 

Reconnaissance

Search

Extricate

Provide Medical 

Treatment

End: Search and Rescue 

(Land-Based) returned to 

base or redeployed

Area identified to recon

Search sites identified and prioritized

ID possible location of victims and remains

Demobilize/

Redeploy Search 

and Rescue 

(Land-Based)

Preliminary extrication sites identified and prioritized

Recovered victims triaged and transferred 

to more definitive medical care

Are there 

victims?

No

Yes 

(Alive)

SAR resources requested

Provide Materiel 

and Other Support

Stabilize 

site

Stabilize 

victim

On-Site Incident 

Management

WMD/Hazardous 

Materials 

Response and 

Decontamination

Fatality 

Management

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Start: Indication 

of trapped

Notify appropriate NIMS-typed teams

Ready to recon

Ready to begin 

rescue operations

Ready to search

Arrive on-scene

Transfer victims 

to hospital

Report livestock and 

dangerous animals

Report people 

and pet locations

Report security issues

Force protection provided

Remains located

Notify of suspected 

hazardous materials

Search and Rescue (Land-Based) Capability Relationship

Capability Activity Process Flow

Linked 

Capabilities

Yes 

(Deceased)

Provide location of remains

Emergency 

Public Safety 

and Security 

Response

Animal Disease 

Emergency 

Support

Emergency 

Triage and PreHospital 

Treatment
Target Capabilities List 415 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED) 

Resource Element Description 

Resource Elements Components and Description

Type I US&R Task Force (TF) Per NIMS 

Type II Collapse Search and Rescue Team Per NIMS 

Type II Heavy Rescue Strike Team Per NIMS 

Type II Heavy Rescue Squad Per NIMS 

Type I Large Animal Rescue Strike Team Per NIMS 

Type I Small Animal Rescue Strike Team Per NIMS 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Toxic Industrial Chemical scenario. Other scenarios 

were reviewed to identify required adjustments or additions to the planning factors and national 

targets.

 This capability applies to a wide range of incidents and emergencies, including improvised nuclear 

devices, toxic industrial chemical scenarios, major earthquakes or hurricanes, and radiological 

dispersal devices. The primary condition affecting the performance of the capability is whether the 

incident requires an urban search and rescue or water search and rescue. For urban search and rescue, 

conditions affecting the performance include the number and size of collapsed structures, number of 

trapped persons in collapsed structures, and any risks involved for the rescuers (including fire and 

potential hazardous materials (hazmat) exposure). 

 Local response time: 0–2 hours 

 Regional response time: 2–17 hours 

 State response time: 12–24 hours 

 Federal response time: 24+ hours 

 Given that SAR is extremely time-sensitive, initial operations will be undertaken by State and local 

responders and those volunteer personnel willing to assist in locating victims. If the catastrophic 

incident involves collapsed buildings, national SAR task force response assets will immediately 

deploy in accordance with the Catastrophic Incident Response Execution Schedule (Annex 1). 

 All injuries and fatalities need to be extricated. 

 All locations need hazmat assessment for proper personal protective equipment (PPE). 

 Typical fire and hazmat response has PPE to extricate lightly trapped victims. 

 US&R strike teams begin to extricate moderately trapped victims. 

 US&R task forces extricate heavily trapped victims. 

 Trapped victims surviving the initial exposure will be viable. 

 Trapped victims have the best chance of survival if they are rescued within 72 hours. They may 

survive up to 14 days if provided drinking water. 

 The doctrine of “do no additional harm” will apply to all SAR operations. Urban search and rescue 

personnel will take into consideration the dangers of contamination and unstable physical structures 

before entering into an area that may contain surviving victims and will take appropriate safety and 

protective measures before commencing operations. 
416 Target Capabilities List 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED 

 The size of the jurisdiction and the risks/threats presented will determine how extensive the SAR 

capability needs to be. 

 Jurisdictions may be able to obtain SAR resources that are sufficient to meet that jurisdiction’s needs 

from elsewhere. 

 Training should be commensurate with population and risk. 

 SAR resources may not be available due to other incidents or activities in the area. 

 Location, distance, available transportation, and weather affect how quickly SAR resources can reach 

the scene. 

 Type of SAR resources deploying will affect what type of equipment it has and how long it can 

conduct SAR operations without re-supply. 

 When there is a base camp with sufficient resources SAR teams may not need to be self-sustaining. 

 Hazardous conditions, weather, size of area, scope, access, criminal activity (hazard) determines level 

of work-area access and efficiency with which areas can be searched for victims. 

 Complexity and circumstances of the entrapment affects the amount of time required to safely access, 

stabilize, and extricate victim. 

 Not all SAR resources have integrated confined space medical components thus the care available to 

the victim will depend on the type of SAR team providing treatment throughout the extrication 

process. 

 Intensity of equipment and personnel utilization will increase or decrease duration each US&R 

capability is able to work. 

 The level of effort required to restore (or replace) equipment cache items will depend on how heavily 

they were used and the extent to which they need to be decontaminated/cleaned. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Toxic Industrial Chemical) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

Type I US&R 

Task Force 

Extrication of victims in 24 hrs: 

Heavy construction (HC): 

Entombed: 4 

Structurally trapped: 12 

Nonstructurally trapped: 20 

Light construction (LC): 

Entombed: 8 

Structurally trapped: 24 

Nonstructurally trapped: 40 

HC: 20 maximum 

rescued per day 

LC: 40 maximum 

rescued per day 

1350 victims trapped 

50% trapped in HC (675) 

675 victims/3 day optimum 

rescue = 225 

225 victims/20 maximum = 

11.25 Type I US&R Teams 

for 3 days 

1350 victims trapped 

50% trapped in LC (675) 

675 victims/3 day optimum 

rescue = 225 

225 victims/40 maximum = 

5.6 Type I US&R Teams 

for 3 days 

Type II Collapse 

Search and Rescue 

Team 

Extrication of victims in 12 hrs: 

HC: 

Entombed: 1 

Structurally trapped: 3 

HC: 18 maximum 

rescued per 24 hours 

LC: 36 maximum 

Requires 2 teams, each 

having one 12-hour 

operational period 
Target Capabilities List 417 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

Nonstructurally trapped: 5 

LC: 

Entombed: 2 

Structurally trapped: 6 

Nonstructurally trapped: 10 

rescued per 24 hours 

Type II Heavy 

Rescue Strike 

Team 

Extrication of victims in 12 hrs: 

HC: 

Nonstructurally trapped: 6 

LC: 

Structurally trapped: 6 

Nonstructurally trapped: 9 

HC: 12 maximum 

rescued per day 

LC: 30 maximum 

rescued per day 

Requires 2 teams, each 

having one 12-hour 

operational period 

Type II Heavy 

Rescue Squad 

Extrication of victims in 12 hrs: 

LC: 

Structurally trapped: 2 

Nonstructurally trapped: 3 

LC: 10 maximum 

rescued per day 

Requires 2 teams, each 

having one 12-hour 

operational period 

Type I Large 

Animal Rescue 

Strike Team 

This six-member team should 

be capable of completing an 

average of one rescue every 30 

minutes in a suburban setting 

and one rescue every hour in 

rural settings. These times 

would be semi-dependent on 

uncontrollable factors such as 

terrain, weather, road 

conditions, and distance 

between rescue sites. 

Number of teams ordered 

will be based on number of 

rescues anticipated. 

Type I Small 

Animal Rescue 

Strike Team 

This six-member team should 

be capable of completing an 

average of one rescue every 30 

minutes in a suburban setting 

and one rescue every hour in 

rural settings. These times 

would be semi-dependent on 

uncontrollable factors such as 

terrain, weather, road 

conditions, and distance 

between rescue sites. 

Number of teams ordered 

will be based on number of 

rescues anticipated. 

Approaches for Large-Scale Events 

 During incidents, licensing and certifications need to be national and not restricted by State borders. 

A border should not determine the location of a resource. 

 Basic disaster training should be standard, such as that sanctioned by NIMS and the National 

Response Plan (NRP), to allow more personnel to be used on the day of the incident. 
418 Target Capabilities List 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED 

 Training must be coordinated at the Federal level. 

 FEMA, in coordination with the Department of State (DOS), will coordinate the use and employment 

of international urban search and rescue assets/resources if the level of response will overwhelm our 

national capability. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Type 1 US&R 

Task Force (TF) 

Resource 

Organization 

1 Per each predetermined location 

Federal 

(DHS)

All SAR Activities 

Type II Collapse 

Search and Rescue 

Team 

Resource 

Organization 

1 Per population > 

100k 

Local (City) All SAR Activities 

Type II Heavy 

Rescue Squad 

Resource 

Organization 

1 Per population >25k 

but <100k 

Local (City) All SAR Activities 

References 

1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003. 

http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html 

2. National Response Plan (NRP). Department of Homeland Security. December 2004. 

3. National Incident Management System (NIMS). Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf 

4. Homeland Security Exercise and Evaluation Program (HSEEP), Volume II: Exercise Evaluation and 

Improvement. Office for Domestic Preparedness, Department of Homeland Security. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf 

5. Urban Search and Rescue (US&R) Incident Support Team (IST) In Federal Disaster Operations, Operations 

Manual. Federal Emergency Management Agency. January 2000. http://www.fema.gov/pdf/usr/usristops.pdf 

6. National Urban Search and Rescue Response System Field Operations Guide. Federal Emergency Management 

Agency. September 2003. http://www.fema.gov/pdf/usr/usr_fog_sept_25_2003_color_final.pdf 

7. National Urban Search and Rescue Response System Operations Manual: 2003-2004 Task Force Equipment 

Cache List. Federal Emergency Management Agency. August 2003. 

http://www.fema.gov/pdf/usr/task_force_documents_equip_cach_list_intro.pdf 

8. Urban Search and Rescue Task Force Equipment Cache List. Federal Emergency Management Agency. 2004. 

http://www.fema.gov/pdf/usr/usr_equip_cache_list.pdf 

9. NFPA 1670- Standard on Operations and Training for Technical Search and Rescue Incidents. National Fire 

Protection Association. 2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1670 

10. NFPA 1006- Standard for Rescue Technician Professional Qualifications, National Fire Protection Association, 

2003 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1006 

11. NFPA 1951- Standard on Protective Ensemble for US&R Operations, National Fire Protection Association, 

2001 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1951 
Target Capabilities List 419 

RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED) 

12. NFPA 1500- Standard on Fire Department Occupational Safety and Health Program, National Fire Protection 

Association, 2002 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500 

13. Inventory of Navy Laboratory Rescue & Diving Equipment Available for Emergency Undersea Operations, 

NOSC TD 112. U.S. Navy. 1983. 

14. Rescue and Survival Systems Manual, COMDTINST M10470.10 (Series). U.S. Coast Guard. 2003. 

15. SARSAT Users Manual for Use by Coast Guard Search and Rescue Personnel. U.S. Coast Guard, 1982. 

16. Standard First Aid Training Course, NAVEDTRA 10081-C. U.S. Navy. 

17. United States National Search and Rescue Supplement to the International Aeronautical and Maritime Search 

and Rescue Manual, National Search and Rescue Committee, Washington DC. May 2000. 
420 Target Capabilities List 

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Target Capabilities List 421 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

EMERGENCY PUBLIC INFORMATION AND 

WARNING 

Capability Definition 

The Emergency Public Information and Warning capability includes public information, alert/warning 

and notification. It involves developing, coordinating, and disseminating information to the public, 

coordinating officials, and incident management and responders across all jurisdictions and disciplines 

effectively under all hazard conditions. 

(a) The term “public information” refers to any text, voice, video, or other information provided by an authorized 

official and includes both general information and crisis and emergency risk communication (CERC) activities. 

CERC incorporates the urgency of disaster communication with risk communication to influence behavior and 

adherence to directives. 

(b) The term “alert” refers to any text, voice, video, or other information provided by an authorized official to 

provide situational awareness to the public and/or private sector about a potential or ongoing emergency 

situation that may require actions to protect life, health, and property. An alert does not necessarily require 

immediate actions to protect life, health, and property and is typically issued in connection with immediate 

danger. 

(c) The term “warning” refers to any text, voice, video, or other information provided by an authorized official to 

provide direction to the public and/or private sector about an ongoing emergency situation that requires 

immediate actions to protect life, health, and property. A warning requires immediate actions to protect life, 

health, and property and is typically issued when there is a confirmed threat posing an immediate danger to the 

public. 

(d) The term “notification” refers to any process where Federal, State, local, tribal, and nongovernmental 

organization, department, and/or agency employees and/or associates are informed of an emergency situation 

that may require a response from those notified. 

Outcome 

Government agencies and public and private sectors receive and transmit coordinated, prompt, useful, and 

reliable information regarding threats to their health, safety, and property, through clear, consistent 

information-delivery systems. This information is updated regularly and outlines protective measures that 

can be taken by individuals and their communities.

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs) and Annex: 

ESF #5: Emergency Management 

ESF #15: External Affairs 

Public Affairs Support Annex 
422 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Preparedness Tasks and Measures/Metrics

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems

Critical Tasks

Res.B1f 1.2.2 Identify all pertinent stakeholders across all disciplines and incorporate them into the information 

flow through a clearly defined information sharing system 

Res.B1f 1.1.1 Develop plans, procedures, and policies for coordinating, managing, and disseminating public 

information effectively under all hazards and conditions 

Res.B1f 1.1.2 Develop plans, procedures, and policies for coordinating, managing, and disseminating alerts and 

warnings effectively under all hazards and conditions 

Res.B1f 1.1.3 Develop plans, procedures, and policies for coordinating, managing, and disseminating 

notifications effectively under all hazards and conditions 

Res.B1f 1.2 

Develop communication plans, policies, procedures, and systems that support required 

information sharing and communications across stakeholders to support public information, 

alert/warning, and notification 

Res.B1f 1.3 Develop crisis and emergency risk communication (CERC) plan 

Res.B1f 1.3.2 Develop and maintain emergency declaration protocols and templates 

Res.B1f 1.4.1 Develop procedures for disseminating information on the re-entry of citizens 

Res.B1f 1.2.6 Develop a communication network with State homeland security departments 

Res.B1f 1.2.1 Develop programs and systems to process the inflow of public-related information from all 

sources in a timely fashion 

Res.B1f 1.2.3 Develop procedures to ensure that information provided by all sources includes the necessary 

content to enable reviewers to determine its authenticity and potential validity 

Res.B1f 1.1 Prepare emergency public information plans 

Res.B1f 1.3.1 Develop plans, procedures, programs and systems to rapidly control rumors by correcting 

misinformation 

Res.B1f 1.1.5 

Develop community-based mechanisms to support providing prompt, accurate information to the 

public in the dominant languages of the community and languages and formats appropriate for 

those with limited language competence, disabilities, cultural or geographic isolation, or 

vulnerabilities due to age 

Res.B1f 1.1.4 Develop emergency plans that take into account special needs populations 

Res.B1f 1.1.6 

Develop emergency plans that are community-based and include outreach and education to the 

public, through community and faith-based organizations and other institutions, to promote 

individual preparedness based on the risks in their communities 

Res.B1f 1.2.4 

Establish neighborhood pre-disaster and post-disaster information centers at schools, the work 

place, libraries, shopping centers, places of worship, and other community institutions, to provide 

information on evacuations and the location of disaster assistance sites 
Target Capabilities List 423 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Preparedness Measures Metrics

The emergency operations plan (EOP) specifies how and when to enact the public information 

function 

Yes/No 

The emergency operations plan (EOP) specifies how and when to activate public alert and 

warning functions 

Yes/No 

The emergency operations plan (EOP) specifies how and when to enact the notification function Yes/No 

The emergency operations plan (EOP) includes a communications strategy to engage the media 

to ensure accurate information is disseminated 

Yes/No 

The emergency operations plan (EOP) specifies how and when to enact a Joint Information 

System (JIS) 

Yes/No 

The emergency operations plan (EOP) provides procedures for use when normal information 

sources are lost 

Yes/No 

Emergency Alert System (EAS) activation plan is in place and is tested regularly Yes/No 

Public awareness and education plan is in place with all appropriate agencies and partners Yes/No 

Plans for Joint Information Center (JIC) include multi-jurisdictional, multi-disciplinary agencies, 

the private sector, nongovernmental organizations, and staffing JIC functions 

Yes/No 

Communications plan in place to communicate changes in threat level (in the Homeland Security 

Advisory System) to the public 

Yes/No 

Public Information Field Guide is in place Yes/No 

Public Information Field Guide includes protocols for interfacing with the media, legislative 

interests, officials and celebrities, community-citizens, and tribal, city, county, State, Federal, 

and private industry leaders 

Yes/No 

Public Information Field Guide includes a listing of homeland security and emergency 

management sources of information and updatable media lists Yes/No 

Contact information for public and private partners is current and available Yes/No 

Public Information Field Guide includes protocols for operating in Joint Information Center (JIC) Yes/No 

Crisis and emergency risk communications (CERC) plans are in place Yes/No 

Public Information Field Guide includes protocols for identification of resources and 

responsibilities in advance of an accident 

Yes/No 

Procedures are in place for rapidly deploying public affairs teams, which are self-sufficient, 

established across all Federal departments and agencies with key Homeland Security 

responsibilities, and can deploy 

Yes/No 

Procedures are in place for communicating with internal groups and individuals about disasters 

and emergencies following established standards, as appropriate (e.g. the Emergency 

Management Accreditation Program (EMAP) and the National Fire Protection Association 

(NFPA) 1600) 

Yes/No 

Procedures are in place for communicating with external groups and individuals about disasters 

and emergencies following established standards, as appropriate (e.g. the EMAP and the NFPA 

1600) 

Yes/No 
424 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Procedures and protocols to communicate and coordinate effectively with other JICs and other 

incident command system (ICS) components, structured according to the incident command, 

unified command, or area command are in place 

Yes/No 

Preparedness information is widely distributed in languages appropriate to the cultural and ethnic 

needs of the populations of the area 

Yes/No 

Information dissemination and alert/warning mechanisms are structured so that private sector 

entities receive accurate, timely, and unclassified information 

Yes/No 

Plans and procedures to update alerts/warning frequently are in place Yes/No 

Plans and procedures to receive and archive responses from stakeholders that have been 

previously notified are in place 

Yes/No 

Plans and procedures for how notification of recovery assistance information will be 

disseminated to the public are in place 

Yes/No 

Plans and procedures for a post-incident containment informational program are in place Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks 

Res.B1f 2.1.1 Develop and implement awareness training about public information 

Res.B1f 2.2 Develop and implement public information, alert/warning, and notification training and exercise 

programs 

Res.B1f 2.2.2 Incorporate public information function as part of multi-discipline response operations exercises 

Res.B1f 2.1.3 Ensure potential spokespersons identified to provide information during an emergency have been 

trained in the principles of Crisis and Emergency Risk Communication (CERC) 

Res.B1f 2.2.1 Develop tests, and exercise the plan to enhance its effectiveness 

Res.B1f 2.1.2 Develop and conduct training to improve all-hazard incident management capability 

Res.B1f 2.2.3 Conduct an after action review to determine strengths and shortfalls and develop a corrective 

plan accordingly 

Preparedness Measures Metric

Frequency with which all appropriate agencies and personnel are trained in and exercise the 

Emergency Alert System (EAS) plan 

Every 12 months 

Frequency with which Joint Information Center (JIC) deployment and operations are 

exercised 

Every 12 months 

Frequency with which plans and procedures are tested to ensure accuracy and completeness Every 12 months 

Frequency with which public awareness and education plan is updated Every 12 months 

Frequency with which emergency risk communications plan is exercised Every 12 months 

Frequency with which Emergency Operations Plans are exercised Every 12 months 

Frequency with which alert and warning systems are exercised Every 3 months 
Target Capabilities List 425 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Frequency with which exercise community-based mechanisms to support providing prompt, 

accurate information to the public in the dominant languages of the community and languages 

and formats appropriate for those with limited language proficiency, disabilities, cultural or 

geographic isolation, or vulnerabilities due to age 

Every 12 months 

Percent of relevant staff trained on public information, alert/warning, and notification policy 

and procedures 

100% 

Performance Tasks and Measures/Metrics 

Activity: Manage Emergency Public Information and Warnings 

Definition: In recognition of likely hazards provide management and coordination of public 

information, alert/warning, and notification activities 

Critical Tasks

Res.B.5.1 Activate plans, procedures, and policies for coordinating, managing, and disseminating public 

information and warnings 

Res,B1f 4.1.1 Identify public information needs and media types and utilization of the affected area 

Res.B1f 3.1.1 Coordinate internal information programs 

Res.B1f 3.1.2 Coordinate external information programs 

Res.B1f 3.1 Coordinate public emergency information 

Res.B1f 3.1.5 Implement government agency and nongovernmental organization notification protocols and 

procedures 

Res.B1f 3.4.1 Implement a community relations plan for ensuring continued communications with citizens and 

city, county, tribal, State, Federal, and private industry leaders 

Res.B1f 3.3.1 Plan and coordinate warnings, instructions, and information updates 

Res.B1f 3.3.3 Coordinate with EOC/responders for public safety concerns that need to be disseminated 

Res.B1f 3.3.4 Identify information transfer between and among Incident Command Post concerning public 

information 

Res.B1f 3.3.5 Monitor communications and information systems as needed to identify information to be 

disseminated to public 

Res.B1f 3.3.6 Coordinate with law enforcement and provide media outlets to provide the public with accurate, 

consistent, and timely information 

Res.B1f 3.3.7 Coordinate with intelligence information to provide State, local, and tribal authorities with 

clearly defined information needs based on the threat environment 

Res.B1f 3.3.8 Coordinate dissemination of incident site information within a National Incident Management 

System (NIMS) compliant framework 

Res.B1f 3.1.3 Implement international affairs operations 

Performance Measures Metric 

Time in which initial communications strategy is developed in collaboration with 

interagency partners 

Within 90 minutes 

from the incident 
426 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Frequency with which public warnings, instructions, and information updates are planned 

and coordinated during an incident 

Continuous 

Pre-established mechanisms are used to provide State, local, and tribal authorities with 

clear and easy to understand information based on the threat environment 

Yes/No 

Percent of public information, alert/warning, and notifications that are managed according 

to the established plan 

100% 

Activity: Activate Emergency Public Information, Alert/Warning, and Notification Plans 

Definition: Activate key personnel, facilities, and procedures

Critical Tasks

Res.B1f 4.4 Activate and establish Joint Information System (JIS) 

Res.B1f 4.2.6 Activate and deploy public information/affairs personnel 

Res.B1f 4.2.1 Assign Public Information Officer (PIO) 

Res.B1f 4.2.2 Identify appropriate spokesperson(s) 

Res.B1f 4.1.5 Update the Homeland Security Advisory System, as appropriate 

Res.B1f 6.1.2 Notify, as the first responding agency, both public and private partner agencies regarding Joint 

Information Center (JIC) activation 

Res.B1f 4.2 

Ensure appropriate representation of all relevant public affairs entities, to include 

nongovernmental organizations and the private sector, in any Joint Information Center (JIC) that 

is established by the government 

Res.B1f 4.3 Disseminate domestic and international travel advisories 

Performance Measures Metric

Time in which partner agencies are notified by the designated or assigned public 

information officer (PIO) at the initial responding agency 

Within 60 minutes from 

notification to respond to the 

incident 

Emergency Operations Plan is activated Yes/No 

Percent of JIC personnel registered 100% 

Percent of JIC personnel briefed 100% 

Information is delivered to stakeholders based on security clearance level and need 

to know 

Yes/No 

Time in which appropriate spokesperson is identified Within 60 minutes from 

opening of JIC 

Activity: Establish Joint Information Center 

Definition: Activate and implement a Joint Information Center (JIC) and disseminate information 

to public

Critical Tasks 
Target Capabilities List 427 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Res.B1f 5.1.1 Coordinate the provision of timely and accurate emergency public information through the Joint 

Information System (JIS)

Res.B1f 6.1 Activate Joint Information Center (JIC), to include nongovernmental and private-sector partners 

as appropriate

Res.B1f 3.2.2 Coordinate and integrate the resources and operations of external affairs organizations to provide 

accurate, consistent, and timely information through the Joint Information Center (JIC)

Res.B1f 6.2 Coordinate emergency public information through the Joint Information System (JIS).

Res.B1f 6.1.3 Provide a central contact for the media through the Joint Information Center (JIC), ensuring a 

“one accurate message, many voices” approach to information dissemination

Res.B1f 6.2.2 Coordinate among Joint Information Centers (JICs) at all levels of government

Res.B1f 6.2.1 Implement routing and approval protocols for release of information

Res.B1f 6.2.3 Provide for external media support and operations

Res.B1f 6.1.1 Establish adequate numbers of trained personnel at dispatch or communications centers to 

process and disseminate information

Performance Measures Metrics 

Time in which JIC is activated Within 2 hours from 

notification of threat or 

incident 

Percent of JIC personnel that have been vetted and credentialed 100% 

JIC chain of command and operations management chain of command are established Yes/No 

Regularly scheduled updates are provided for JIC personnel Yes/No 

Percent of major JIC activities for which written documentation or log is kept 100% 

Activity: Conduct Joint Information Center Operations 

Definition: Upon activation of the JIC, monitor media and conduct press briefings.

Critical Tasks 

Res.B1f 7.2.6.1 Correct misinformation before next news cycle 

Res.B1f 7.1.2 Receive, authenticate, and screen information for relevance at the supervisory level in a timely 

manner 

Res.B1f 7.1.4 Use a NIMS compliance framework for coordinating incident related communications 

Res.B1f 7.2.8 Provide for rumor control within information network 

Res.B1f 7.5 Prepare post-incident information 

Performance Measures Metrics 

Time in which media are alerted of JIC activation and how to access services Within 2 hours from JIC 

activation 

Time in which first formal news conference is held Within 3 hours from incident, 

as appropriate 
428 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Time in which public messages are released providing information on how to 

apply for individual assistance 

Within 24 hours from incident 

Inaccuracies are addressed prior to next news cycle Yes/No 

Time in which public information hotline is activated Within 4 hours from incident 

Frequency with which hotline information is updated to ensure that the most 

accurate information is distributed in a timely fashion 

Continuous 

Frequency with which alerts/warnings and notifications are provided to planners 

and decision makers at all levels as appropriate 

Continuous 

Information is authenticated and screened for relevance at the supervisory level 

as received 

Yes/No 

Percent of first responders notified of new and developing information as it is 

authenticated 

100% 

Activity: Issue Public Information, Alerts/Warnings, and Notifications 

Definition: Issue public information, alerts, warnings, and notifications through established 

systems to the public, coordinating officials, and incident managers and responders.

Critical Tasks

Res.B1f 5.1 Disseminate crisis and emergency risk communication emergency (CERC) information to the 

media, public, partners and stakeholders 

Res.B1f 5.2 Provide emergency public information to special needs populations and special populations 

Res.B1f 5.2.5 Provide emergency information to the public that is verified, accurate, and as up-to-date as 

possible 

Res.B1f 4.3 Disseminate domestic and international travel advisories 

Res.B1f 5.3 Ensure accurate and timely dissemination of protective action messages to general public and 

emergency personnel 

Res.B1f 5.2.1 Disseminate prompt, accurate information to the public in appropriate languages and formats that 

take into account demographics and special needs/disabilities 

Res.B1f 5.2.4 

Provide emergency public information to special, vulnerable, and at-risk populations that are 

economically disadvantaged, have limited language proficiency, have disabilities (physical, 

mental, sensory, or cognitive limitations), experience cultural or geographic isolation, or are 

vulnerable due to age 

Res.B1f 5.3.3 Activate Rapid Response Plan for rumor control and correcting misinformation 

Res.B1f 5.5.2 Disseminate critical health and safety information designed to alert the public to clinical 

symptoms and reduce the risk of exposure to ongoing and potential hazards. 

Res.B1f 5.7 Disseminate guidance for the public regarding appropriate donation methods and volunteer 

activities 

Performance Measures Metrics 

Time from threat notification to activation of warning systems Within 30 minutes from 

threat notification 

Population is notified of an emergency utilizing multiple available warning systems Yes/No 
Target Capabilities List 429 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Percent of appropriate individuals and special needs groups provided with notification 

communications in accordance with the public awareness and education plan 

100% 

Percent of alert/warning systems and media outlets monitored to assure the proper 

message is delivered 

100% 

System is in place to receive response to interagency notifications previously sent out 

(if required) 

Yes/No 

System is in place to conduct public information activities, as needed Yes/No 

Activity: Conduct Media Relations 

Definition: Upon activation of the JIC/JIS, monitor media contacts and conduct press briefings 

Critical Tasks 

Res.B1f 7.2.1 Provide periodic updates and conduct regularly scheduled media conferences 

ResB1f 7.2.5 Track media contacts and public inquiries, listing contact, date, time, query, and outcome 

Res.B1f 7.2.3 Establish relationship with non-English speaking media 

Res.B1f 7.2.4 Monitor media coverage of event to ensure that information is accurately relayed 

Activity: Provide Public Rumor Control 

Definition: Upon activation of the JIC/JIS, track inquiries for rumors 

Critical Tasks 

Res.B1f 7.2.5 Track media contacts and public inquiries, listing contact, date, time, query, and outcome 

Res.B1f 7.2.6 Issue corrective messages when errors are recognized in previous public announcements 

Res.B1f 7.2.7 Establish frequently updated public information hotline 

Activity: Demobilize Emergency Public Information and Warning 

Definition: Upon deciding public information services are no longer needed, close the JIC and 

demobilize personnel 

Critical Tasks

Res.B1f 8.2 Disseminate notice of JIC closure to all Federal, State, local, tribal, and nongovernmental 

stakeholders and the media 

Res.B1f 8.3 Archive important records of JIC activities and NIMS compliant records 

Res.B1f 8.1 Demobilize JIC personnel 

Res.B1f 8.2.1 Debrief staff and JIC partners 

Performance Measures Metric
430 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Time in which notice of JIC closure is disseminated Within 24 hours prior to JIC 

closure 

Percent of staff and JIC partners debriefed 100% 

Pertinent information and documentation is collected Yes/No 

After action review is conducted to determine strengths and shortfalls and develop a 

corrective plan accordingly 

Yes/No 

Percent of alert/warning systems returned to normal operations mode 100% 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

Emergency Public Information and Warning provides informational support and 

coordination to On-Site Incident Management, and vice versa. 

Emergency Operations 

Center Management 

Emergency Operations Center Management approves information for release by 

Emergency Public Information and Warning. 

Citizen Evacuation and 

Shelter-In-Place 

Emergency Public Information and Warning provides information, alerts, warnings, 

and/or notifications. Citizen Evacuation and Shelter-In-Place provides protective action 

information or decisions to disseminate. 

Isolation and Quarantine Emergency Public Information and Warning provides information, alerts, warnings, 

and/or notifications for Isolation and Quarantine. Isolation and Quarantine provides 

protective action information or decisions to disseminate. 

Mass Prophylaxis Emergency Public Information and Warning provides information, alerts, warnings, 

and/or notifications related to Mass Prophylaxis. Mass Prophylaxis provides protective 

action information or decisions to disseminate. 

Volunteer Management 

and Donation 

Emergency Public Information and Warning provides public announcements for 

volunteers and donations. 
Target Capabilities List 431 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Manage 

Emergency 

Public 

Information and 

Warnings

End: The Joint Information 

System is deactivated

Start: Indication of 

need for public 

notification

Need to release public statements

Ready to begin operations

The public, coordinating officials, and 

incident management and responders 

are provided all information, alerts/

warnings, and notifications

On-Site Incident 

Management

Emergency 

Operations 

Center 

Management

Demobilize 

Emergency Public 

Information and 

Warning

Immediate incident complete

Information approved 

for release

Support and coordinate

information

Transition public information 

operations to recovery

Provide protective action decisions (PADs)

Citizen Evacuation 

and Shelter-InPlace

Isolation and 

Quarantine

Mass 

Prophylaxis

Provide information/

warnings

Informed of protective 

action decisions

Volunteer 

Management 

and Donations 

Public 

announcement for 

volunteers and 

donations provided

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Capability Activity Process Flow

Emergency Public Information 

and Warning Capability

Linked 

Capabilities Relationship

Activate 

Emergency Public 

Information, Alert/

Warning, and 

Notification Plans

Issue Public 

Information, Alerts/

Warnings, and 

Notifications

Establish Joint 

Information Center

JIC declared operational

Public inquires answered

Conduct Joint 

Information 

Center Operations

Conduct Media 

Relations

Provide Public 

Rumor Control

Media contacts monitored and 

press briefings conducted

Inquiries tracked for rumors
432 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Resource Element Description 

Resource Elements Components and Description

Joint Information Center (JIC) As defined by the NRP, a facility established to coordinate all incident-related 

public information activities on-scene. It includes representatives of local, 

State, Federal, and voluntary agencies, the Governor’s Office, as appropriate, 

and JIC operations functional staff. 

Personnel: 

Deputy PAO for each PAO office manager and administrative staff 

Research team: Personnel to gather and verify information, do fact checking, 

handle writing and research. 

Media operations team: Personnel to staff news desk, handle outreach, support 

field operations, monitor the media, and handle video and photography 

Creative services (writing/research, graphic liaison, program liaison) 

Logistics team: Personnel to provide event planning, design and production, 

JIC setup and operations. 

Government 

Translators 

Rapid Response Team - Team to rapidly evaluate rumors and misinformation 

and issue corrections 

2 IT staff 

1 support administrator 

Special Projects (video, photography, event planning) 

Equipment: 

JIC Media Briefing Room: Designated media briefing area that includes 

podium/lectern, malt box, flags, seals, turtle phone, overhead projector, 

PowerPoint projector, screen – Pre-establish alerts/warnings announcements 

for citizens to take protective actions. Designated media briefing areas include 

the following: Podium/lectern, Malt box, Flags, Seals, Turtle phone, Overhead 

projector, and PowerPoint projector Screen 

JIC Office Equipment: For each PAO and PIO: 1 Cell phones with walkietalkie, chargers; 1 landline phone; Maps of updated, disaster-impacted areas 

Per JIC: Video conference capabilities, blast fax; 2 Fax machines – incoming, 

outgoing; Radio bank – with recording capability; 6 televisions with recording 

capability; 1 laptops/Computers with CD/DVD burner and appropriate 

software per staff; server; high-speed color copier; color printers (1 per 3 

people), Local telephone directories (1 per person), Office telephone directory 

(1 per person), JIC meeting space or access to a meeting room, Private room or 

access to a private room, Office supplies. 

Public Information Officer (PIO) As defined by the NRP, the PIO is a member of the Command Staff 

responsible for interfacing with the public and media at incident site and with 

other agencies with incident-related information requirements. 
Target Capabilities List 433 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

JIC/JFO Public Affairs Officer 

(PAO) 

Includes two public affairs leads at the JIC and JFO; one is the Lead Federal 

PAO and the other is the Lead State PAO. Includes at least one representative 

of each local, State, Federal, and voluntary agency, the Governor’s Office and 

the Incident Commander per JIC 

Per 2 12-hour shifts per JIC, representatives from: 

Local: 1 

State: 1 

Federal: 1 

Voluntary agency: 2 

Emergency management/ homeland security: 1 

Governor: 1 

U.S. Department of Transportation (DOT): 1 

Public health: 1 

Law enforcement: 1 

Fire: 1 

Emergency medical services (EMS): 1 

Public works: 1 

Search and rescue: 1 

Human services: 1 

Housing: 1 

Alert and Notification System An alert/warning and notification system appropriate to population, special 

needs of citizens, and hazards in a jurisdiction. 

JIC support staff training Requires ICS 100–200, NIMS IS–700 

Core base training, such as: 

Basic public information course 

Advanced public information course 

Cultural competency 

Interoperable communications 

Public and volunteers 

Risk communications 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were 

reviewed to identify required adjustments or additions to the planning factors and national targets. 

 Coordinated, accurate, timely public information will be required immediately to inform the public of 

appropriate protective and self-care actions. 

 Accurate and timely information over time must be distributed to the affected populations to control 

rumors and minimize psychological effects. This activity will be particularly important following 

CBRNE-related events. 

 All scenarios will require a multi-jurisdictional/multi-agency response to implement the Joint 

Information System (JIS) and a Joint Information Center (JIC) to ensure that public information 

activities are consistent and coordinated across agencies and jurisdictions. 

 All scenarios require that jurisdictions provide timely and accurate public information. Some 

scenarios will have advanced warning, and others will occur with no warning. All scenarios need to 
434 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

consider alternate communications means. Power outages will disrupt radio, television, the World 

Wide Web, and other power-dependent information outlets. 

 Door-to-door notification would not be feasible given scenario requirements of higher population 

densities. 

 The jurisdiction may have systems in place to conduct emergency notification. 

 Implement a public awareness program whenever people are threatened by a serious hazard. 

 The JIC will include representatives of each jurisdiction, agency, private sector, and nongovernmental 

organization (NGO) involved in incident management activities. Inclusion of liaisons from the 

various responding agencies will ensure a “one voice” approach and consistency of information 

released. A unified effort also fosters collaboration, helping to ensure all agencies’ critical messages 

are identified and appropriately addressed. 

 A single JIC location is preferable, but the system should be flexible enough to accommodate 

multiple JIC locations if required. For example, multiple JICs may be needed for a complex incident 

spanning a wide geographic area. 

 Following the command structure will ensure consistency of operations and will enhance cooperation 

among JICs, command posts, and other partners. 

 Effective warning of people with special needs or disabilities will require the media, the Emergency 

Alert System (EAS), and other communications systems to use multiple communications. 

 The amount of resources needed should be determined by each agency participating in the response, 

in coordination with the leads for the JICs. 

 Emergency public information and warning is dependent on the timely availability of accurate 

information on the type of threat or hazard presented, as indicated in the Target Capabilities List. An 

additional factor is the availability and reliability of accurate information that has been verified and is 

ready for distribution. 

 Timely, accurate information is essential to all scenarios. It is important for the incident commander 

and other critical functions included in the ICS to emphasize public information in their respective 

operations. 

 Implementation of a JIC ensures a “one message, many voices” approach that incorporates 

representatives across multiple jurisdictions. All agencies involved in disaster response must be 

represented in the JIC. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Earthquake) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement Values

Quantity of 

Resources 

Needed 

JIC Operate 7/24 in two 12-hr 

shifts per JIC 

Operate 24/7 2 teams (one per 12-

hour shift) 

Public Information 

Officer (PIO) 

Operate 7/24 in two 12-hr 

shifts per JIC 

County JIC=10 PIOs 

per county 

Regional JIC=10 PIOs 

per region 

State JIC=10 PIOs 

Federal=10 PIOs 

Public Affairs Operate 7/24 in two 12-hr Minimum of one per 1 IC command 
Target Capabilities List 435 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement Values

Quantity of 

Resources 

Needed 

Officers/Specialists 

(PAOs) 

shifts per JIC agency per level of 

government

structure per impacted 

jurisdiction=2 PAOs 

 

Alert/warning and 

notification systems 

Each jurisdiction should 

have an alert and notification 

system appropriate to 

population and hazards. 

1 per jurisdiction 1 per jurisdiction 

Approaches for Large-Scale Events 

Approaches to large-scale events are similar to Emergency Operations Center Management. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Joint Information 

Center (JIC) 

NIMS Typed 

Resource 

Organization 

1 Per jurisdictional 

EOC 

Federal/State/ 

Local 

All Activities 

Public Information 

Officer (PIO) 

Personnel 1 Per central & 

backup EOC per 12 

hour shift 

Federal/State/ 

Local 

All Activities 

JIC/JFO Lead 

PAOs 

Personnel 1 Per central & 

backup EOC per 12 

hour shift 

Local All Activities 

JIC/JFO Lead 

PAOs 

Personnel 1 Per federal Federal All Activities 

JIC/JFO Lead 

PAOs 

Personnel 1 Per state State All Activities 

JIC/JFO Deputy 

Lead PAOs 

Personnel 1 Per central & 

backup EOC per 12 

hour shift 

Local All Activities 

JIC/JFO Deputy 

Lead PAOs 

Personnel 1 Per federal Federal All Activities 

JIC/JFO Deputy 

Lead PAOs 

Personnel 1 Per state State All Activities 

Alert and 

Notification 

System 

Equipment 1 Per central & 

backup EOC per 12 

hour shift 

Federal/State/ 

Local 

Issue Emergency 

Warnings 
436 Target Capabilities List 

RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING 

References 

1. Executive Order 13407 “Public Alert and Warning System.” June 26, 2006. 

http://www.whitehouse.gov/news/releases/2006/06/20060626.html 

2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

3. National Response Plan. U.S. Department of Homeland Security. December 2004. 

4. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

5. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. Office 

for Domestic Preparedness, Department of Homeland Security. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

6. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa. 

7. NFPA 1221. Communications Systems, Installation, Maintenance, and Use of Emergency Services. 2001. 

http://www.nfpa.org/catalog/product.asp?catalog%5Fname=NFPA+Catalog&pid=122102&query=NFPA+1221

&link%5Ftype=search&src=nfpa 

8. Emergency Management Accreditation Program Standards. September 2003. 

http://www.emaponline.org/index.cfm. 

9. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program, 

http://mmrs.fema.gov 

10. Crisis and Emergency Risk Communication. CDC. October 2002. 

http://www.cdc.gov/gov/communication/emergency/erc_overview.htm 

11. Crisis and Emergency Risk Communication by Leaders for Leaders. CDC. 

http://www.cdc.gov/communication/emergency/leaders.pdf 

12. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an 

Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook 

13. Executive Order 13166, “Improving Access to Services for Persons with Limited English Proficiency.” 

http://www.usdoj.gov/crt/cor/Pubs/eolep.pdf
Target Capabilities List 437 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

EMERGENCY TRIAGE AND PRE-HOSPITAL 

TREATMENT 

Capability Definition 

Emergency Triage and Pre-Hospital Treatment is the capability to appropriately dispatch emergency 

medical services (EMS) resources; to provide feasible, suitable, and medically acceptable pre-hospital 

triage and treatment of patients; to provide transport as well as medical care en-route to an appropriate 

receiving facility; and to track patients to a treatment facility. 

Outcome 

Emergency Medical Services (EMS) resources are effectively and appropriately dispatched and provide 

pre-hospital triage, treatment, transport, tracking of patients, and documentation of care appropriate for 

the incident, while maintaining the capabilities of the EMS system for continued operations. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

ESF #1: Transportation 

ESF #8: Public Health and Medical Services 

ESF #9: Urban Search and Rescue 

ESF #10: Oil and Hazardous Materials Response 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.C1a 1.1 

Assess, categorize, and track health and medical resources at the State, regional, and local levels, 

including but not limited to trauma centers, burn centers, pediatric facilities, acute care facilities, 

and other specialty facilities 

Res.C1a 1.1.1 Ensure appropriate protective resources are available, including vaccinations, prophylaxis, and 

PPE for pre-hospital providers and their families 

Res.C1a 1.1.2 Ensure sufficient EMS personnel and resources are available to respond to day-to-day 

emergencies in the community 

Res.C1a 1.1.3 Ensure sufficient EMS personnel, supplies, and equipment are available to respond to and 

manage a catastrophic incident until Federal resources become available 

Res.C1a 1.2.1 Develop procedures for effective, reliable interoperable communications between EMS, incident 

command, public health, and healthcare facilities 

Res.C1a 1.2.2 Establish and maintain intrastate and interstate EMS communications systems 

Res.C1a 1.3.1 Develop protocols and procedures for tracking triage and pre-hospital treatment response staff 

and equipment during day-to-day operations, as well as catastrophic incidents 
438 Target Capabilities List 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

Res.C1a 1.1.4 Ensure that EMS systems include an education, licensure, and credentialing system consistent 

with national standards 

Res.C1a 1.2.3 

Identify and coordinate with public safety access points that have enhanced capabilities (e.g., 

automatic location identification) and redundancy, and are capable of handling a surge in call 

volume 

Res.C1a 1.3.2 

Establish a means to allow EMS resources to be used across jurisdictions, both intrastate and 

interstate, using the National Incident Management System (NIMS) (e.g.,, mutual aid 

agreements) 

Res.C1a 1.4 

Develop and/or maintain protocols and procedures for EMS dispatch, assessment, triage, 

treatment, transport, logistical support, medical command and coordination, safety, 

communications, and tracking of patients during day-to-day operations as well as catastrophic 

incidents 

Res.C1a 1.5 Develop mechanisms to ensure freedom of movement of medical response, transport, and 

personnel when faced with restricted travel laws, isolation/quarantine, or security measures 

Res.C1a 1.3.3 Develop plans and mechanisms for obtaining reimbursement for both public and private 

expenditures for triage and pre-hospital treatment following a declared catastrophic incident 

Preparedness Measures Metrics

State EMS personnel certification and licensure system modeled after the principles of the 

National EMS Education Agenda for the Future (and its five components) and NIMS is in 

place 

Yes/No 

Written mutual aid protocols and procedures for EMS support are in place Yes/No 

Sufficient certified/licensed EMS personnel are available to staff the current EMS system 

24 hours per day, 7 days per week, and with a response consistent with established local 

response times 

Yes/No 

Recall procedures to summon off-duty EMS personnel when needed are in place Yes/No 

Sufficient numbers of ambulance transport and support vehicles are available to handle 

routine call volume 24/7 with response consistent with established local response times 

Yes/No 

All cities have a minimum of one spare ALS vehicle available Yes/No 

Cities greater than 300,000 have at least one spare vehicle for every 100,000 maintained 

on an in-service basis (i.e., stocked and garaged) to support immediate surge needs 

Yes/No 

EMS personnel participate on a regular basis with emergency management planning and 

operations 

Yes/No 

Jurisdiction-wide EMS data collection system that complies with the National EMS 

Information System (NEMSIS) Version 2.0 or later is in place 

Yes/No 

Written protocols approved by medical control for EMS assessment, triage, transport, and 

tracking of patients during a catastrophic event are in place 

Yes/No 

Written EMS dispatch procedures include the dispatch of personnel and equipment in the 

unique circumstances of a catastrophic event 

Yes/No 

Redundant public safety answering points (PSAPs) that comply with phase II Federal 

Communications Commission (FCC) requirements for cell phone access are available and 

are capable of handling a large volume of calls 

Yes/No 

EMS plans address patient and resource transportation (i.e. helicopters and corresponding 

landing zone, ambulances and en route health care providers). 

Yes/No 

EMS plans address the treatment of EMS response personnel, site staff, and their families Yes/No 
Target Capabilities List 439 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

(e.g. medical needs, stress management strategies). 

The vehicle tracking system is consistent with a written infrastructure protection plan and 

NIMS resource typing 

Yes/No 

Written plans and procedures for coordination of the local EMS system with the National 

Disaster Medical System are in place 

Yes/No 

Sufficient PPE is available for all EMS personnel who would respond to a catastrophic or 

routine incident (scenario-specific) 

Yes/No 

A NIMS-compliant plan that enables communicable disease first responders and receivers 

to understand their roles, responsibilities, and requirements when responding to a 

communicable disease outbreak (scenario-specific) is in place 

Yes/No 

A plan for prophylaxis and issuance of PPE to non-surge first responders and first 

receivers within 24 hours from a communicable disease outbreak, including the logistical 

chain to support this effort is in place 

Yes/No 

A plan that accounts for the multi-jurisdictional pre-hospital response to a catastrophic 

incident that considers mutual aid agreements, associated equipment, staff, command and 

control, and nontraditional patient movement and transfers is in place 

Yes/No 

Compatible communications equipment and communications radio frequency plans are in 

place for common hospital diversion and bed capacity situational awareness at the local, 

State, and regional levels; 

Yes/No 

Compatible communications equipment and communications radio frequency plans are in 

place for command and control dispatch procedures for task force operations 

Yes/No 

An interoperable patient tracking system is in place that allows patient tracking from the 

first response site to a healthcare facility, and allows data to be accessible among 

geographically appropriate users 

Yes/No 

A plan to return to normal operations post-incident is in place Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.C1a 2.1.1 Conduct training of dispatch personnel in protocol and procedures for dispatch during 

catastrophic events 

Res.C1a 2.1.2 Develop and implement multi-disciplinary training programs for EMS personnel, based on local 

risk vulnerability assessments and lessons learned 

Res.C1a 2.2 Develop and implement multi-disciplinary exercise programs for EMS personnel, based on local 

risk vulnerability assessments and lessons learned 

Preparedness Measures Metric

Frequency with which exercises are conducted using scenarios based on a jurisdictionspecific risk vulnerability assessment and Homeland Security Exercise and Evaluation 

Program (HSEEP) guidelines 

Every 12 months 

Percent of field responders who received training on dispatch, triage, treatment, and 

transport protocols and procedures 

80% 

Percent of dispatchers who received training on dispatch, triage, treatment, and transport 

protocols and procedures 

80% 
440 Target Capabilities List 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

Performance Tasks and Measures/Metrics 

Activity: Direct Triage and Pre-Hospital Treatment Tactical Operations 

Definition: In response to a notification for emergency medical assets, provide the overall 

management and coordination of the Triage and Pre-Hospital Treatment Response, through to 

demobilization

Critical Tasks

Res.C1a 3.1.1 Establish Medical Branch/Group officer 

Res.C1a 3.1 Coordinate triage and pre-hospital treatment operations with on-site Incident Command 

Res.C1a 3.1.2 Coordinate and integrate triage and pre-hospital treatment operations with the National Disaster 

Medical System 

Res.C1a 3.2 Implement and coordinate effective, reliable interoperable communications between EMS, 

incident command, public health, and healthcare facilities 

Res.C1a 3.3.2 Assess need for additional medical resources/mutual aid 

Res.C1a 3.3.3 Initiate recall and/or mutual aid to staff spare ambulances and provide immediate surge 

capability 

Res.C1a 3.3.4.1 Implement and maintain accountability procedures for EMS personnel, equipment, and supplies 

Res.C1a 3.3.4.2 Provide medical support, safety considerations, and appropriate PPE for EMS responders 

Res.C1a 3.3.1 Organize and distribute resources for triage and pre-hospital treatment operations 

Performance Measures Metric

Time in which medical dispatch react and respond to the increased 

call volume 

Within 30 minutes from start of increased 

call volume 

Time in which medical coordination of on-scene EMS system 

personnel and other health resources is provided 

Within 30 minutes from initial units arrival 

on scene 

Time in which medical coordination of public health services, 

hospitals, and healthcare providers is provided 

Within 60 minutes from the establishment 

of Medical Command 

Time in which primary and secondary communication is established Within 30 minutes from the establishment 

of Tactical Operations 

Time in which recall and mutual aid agreements with State and local 

partners are executed 

Within 60 minutes from initial request for 

additional resources 

Time in which sufficient and appropriate medical equipment and 

supplies are readily available to on scene personal 

Within 2 hours from initial units arrival on 

scene 

Time in which special safety equipment is organized and made 

available to all on-scene medical personnel 

Within 60 minutes from initial units arrival 

on scene 

Procedures for the safety, health, and well-being of on-scene 

personnel are followed 

Yes/No 
Target Capabilities List 441 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

Activity: Activate Triage and Pre-Hospital Treatment 

Definition: In response to a notification, respond, mobilize, and arrive on scene to begin 

emergency medical operations

Critical Tasks

Res.C1a 4.1 Dispatch and support medical care personnel 

Res.C1a 4.2 Complete scene survey 

Res.C1a 4.2.1 Establish scene safety, based on the type and severity of the incident 

Res.C1a 4.3 Establish triage, treatment, and transport areas 

Performance Measures Metric 

Time in which EMS responders are notified and dispatched toward the 

scene 

Within 10 minutes from 911 receipt of 

initial call 

Activity: Triage 

Definition: Once on scene, provide initial and ongoing emergency medical triage of ill and injured 

patients that prioritizes their respective treatment and transport

Critical Tasks

Res.C1a 5.1 Conduct initial and on-going pre-hospital triage in accordance with a jurisdiction’s prescribed 

triage methodology (e.g., Simple Triage and Rapid Treatment (START) Triage) 

Res.C1a 5.2 Initiate a patient tracking system 

Res.C1a 5.3.1 Ensure decontamination of patients prior to treatment and transport 

Res.C1a 5.4 Move patients to safe, secure, and easily accessible treatment area(s) 

Performance Measures Metric 

Time in which triage of ill/injured patients is initiated Within 30 minutes from receipt of call 

Time in which a patient tracking system is initiated Within 30 minutes from the initiation of on scene triage 

Data management system is operational Yes/No 

 

Activity: Provide Treatment 

Definition: Provide medical treatment appropriate to the patient’s injuries and the incident

Critical Tasks

Res.C1a 6.1 Establish immediate, minor, and delayed treatment areas 

Res.C1a 6.2 Provide pre-hospital treatment appropriate to the nature of incident and number of injured/ill 

Res.C1a 6.2.1 Administer antidotes for victims of WMD attacks 
442 Target Capabilities List 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

Res.C1a 6.2.2 Provide ongoing pain management therapy as needed to victims awaiting transport 

Res.C1a 6.3 Ensure documentation of patient care and transfer, in accordance with mass casualty protocols 

Performance Measures Metric 

Time in which ill/injured patients receive initial treatment by 

appropriately credentialed on-scene medical personnel 

Within 30 minutes from initial units 

arrival on scene 

Time in which on-line medical control is notified of incident Within 10 minutes from initial patient 

triage on a not-to-interfere basis with 

immediate patient treatment 

Time in which coordination of patient treatment with on-line medical 

control is initiated 

Within 60 minutes from arrival on scene 

 

Activity: Transport 

Definition: Transport ill and injured patients via the most appropriate mode of transport available 

(e.g. Ambulances, helicopters, etc.), provide ongoing medical assessment and treatment en route 

to the designated receiving facility, and upon arrival transfer medical care of the patient(s) to the 

receiving facility’s staff

Critical Tasks

Res.C1a 7.1 Identify transport vehicles, victims, and priority of transport 

Res.C1a 7.1.1 Provide for alternative modes of transport should air or other operations be necessary (e.g. – 

helicopters along with a corresponding landing zone [LZ]) 

Res.C1a 7.2 Coordinate and transport patients to the appropriate treatment facility 

Res.C1a 7.2.1 Provide ongoing assessment and treatment en route 

Res.C1a 7.2.2 Transfer care of the patient to the medical staff at the facility 

Res.C1a 7.3 Develop local protocols that address return to service of transport vehicles (e.g. decontamination, 

stocking, and personnel) 

Performance Measures Metric 

Percent of patients transported in vehicles appropriate to each patient’s 

conditions and the nature and magnitude of the incident 

100% 

Time in which patients are transported Within 2 hours from initial units 

arrival on scene 

Time in which single patient transportation is coordinated with appropriate 

treatment facility for single patient transfer 

Within 30 minutes from initial unit 

arrival on scene 

Time in which mass casualty patient transportation is coordinated with 

appropriate treatment facility 

Within 30 minutes from EMS 

Transportation/ Communications 

Officer arrival 

Protocols are in place that address return to service of transport vehicles 

(e.g., decontamination, stocking, and personnel) 

Yes/No 

 
Target Capabilities List 443 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

Activity: Demobilize Triage and Pre-Hospital Treatment 

Definition: Upon completion of duties, clear the incident scene, reconstitute as appropriate, and 

return to service or end duty tour

Critical Tasks

Res.C1a 8.1.1 Reconstitute EMS personnel and equipment 

Res.C1a 8.1.2 Participate in incident debriefing for triage and pre-hospital treatment operations 

Res.C1a 8.3.1 Identify responder needs dependent upon their level of involvement and/or hours committed to 

the incident 

Res.C1a 8.3.2 Implement comprehensive stress management strategies and programs for all emergency 

responders and other workers 

Res.C1a 8.2 Reestablish normal EMS operations 

Res.C1a 8.3.3 Ensure post-event medical monitoring and care of pre-hospital/triage responders 

Res.C1a 8.3.4 Conduct post-event analysis, including development and dissemination of lessons learned; revise 

plan as indicated 

Performance Measures Metric 

Time in which triage and pre-hospital personnel are restored to 

normal or original operations 

Within 12 hours from start of demobilization 

Percent of triage and pre-hospital treatment personnel debriefed 100% 

Linked Capabilities 

Linked Capability Relationship 

Search and Rescue 

(Land-Based) 

Emergency Triage and Pre-Hospital Treatment receives extricated patients from Search 

and Rescue (Land-Based). 

WMD and Hazardous 

Materials Response and 

Decontamination 

Emergency Triage and Pre-Hospital Treatment receives decontaminated patients from 

WMD and Hazardous Materials Response and Decontamination. 

Fire Incident Response 

Support 

Emergency Triage and Pre-Hospital Treatment receives patients from Fire Incident 

Response Support. 

Emergency Public 

Safety and Security 

Response 

Emergency Triage and Pre-Hospital Treatment provides information on, or the location 

of, potential witnesses to Emergency Public Safety and Security Response, while 

Emergency Public Safety and Security Response provide patients to Emergency Triage 

and Pre-Hospital Treatment. 

Fatality Management Emergency Triage and Pre-Hospital Treatment notifies Fatality Management of the 

location of human remains or directly transfer these remains to Fatality Management. 

On-Site Incident 

Management 

Emergency Triage and Pre-Hospital Treatment provides patient tracking information to 

On-Site Incident Management, and they both provide situational reports to each other. 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Emergency Triage and Pre-Hospital Treatment transfers care of uninjured affected 

victims to Mass Care. 
444 Target Capabilities List 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

Linked Capability Relationship 

Medical Surge Emergency Triage and Pre-Hospital Treatment transfers medical care of injured victims 

requiring a higher-level of definitive care during surge to Medical Surge. Non-surge 

emergency medical care will need to be addressed in a future capability. 

Direct Triage 

and PreHospital 

Treatment 

Tactical 

Operations

End: Triage resources 

returned to service

Activate Triage 

and Pre-Hospital 

Treatment

Triage

Demobilize Triage 

and Pre-Hospital 

Treatment

Provide Treatment

Treatment needs of all 

patients prioritized

On-scene ready to triage

Transport

All patients treated based 

on prioritization and 

packaged for transport

All patients transported off scene

Search and 

Rescue (LandBased)

WMD/Hazardous 

Materials 

Response and 

Decontamination

Fatality 

Management

On-Site Incident 

Management

Mass Care 

(Sheltering, 

Feeding, and 

Related Services) Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Start: Initial 

call received

Medical Surge

Linked 

Capabilities Relationship

Capability Activity Process Flow

Emergency Triage and Pre-Hospital 

Treatment

Patients provided

Dispatch notification

Treatment location identified

Provide assessment to management

Track patient information

Transfer deceased

Provide patient tracking 

information

Transfer care of affected, 

uninjured victims

Transfer patients in need of 

higher medical care

Provide sitreps

Fire Incident 

Response Support

Emergency 

Public Safety and 

Security Response
Target Capabilities List 445 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

Resource Element Description 

Resource Elements Components and Description

Command, Control, 

Communication, Coordination 

(C4) Infrastructure 

NIMS compliant Emergency Medical Services (EMS) C4 component 

integrated with local, State and Federal C4 components. While any direct 

jurisdictional linkages to Federal components are not meant to bypass 

State C4 components, this may be appropriate under certain conditions 

Emergency Medical Services 

Communication System 

A State interoperable EMS communication system capable of coordinating 

cross-jurisdictional EMS operations and supporting State EMS command, 

control, and coordination. This system must enable communications among 

pre-hospital providers, EMS operations, hospital facilities, public health and 

safety, and emergency management. 

Emergency Medical Task Force Per NIMS, any combination (within span of control) of resources (e.g., 

ambulances, rescues, engines, squads) assembled for a medical mission, with 

common communications and a leader (supervisor). 

Emergency Medical Services 

preparedness assessment 

capability 

The capacity to assess national, State and local triage and pre-hospital 

treatment capabilities in support of the National Preparedness Guidelines and 

coordinated with the Federal Interagency Committee on EMS, and the ability 

to coordinate pre-event emergency preparedness efforts 

Planning Assumptions 

General 

 The primary role of the EMS system during an incident is triage, treatment and transportation of 

patients to definitive care facilities. The EMS system will have a graded response and may be 

required to adopt alternate standards of care from the norm depending on the locality, demographics, 

type of incident and number of people affected. At any point of an incident or outbreak, there could 

be spikes or reductions in pre hospital needs. 

 EMS will coordinate scene safety, security and law enforcement will investigate needs with law 

enforcement authorities. 

 Neighboring States/jurisdictions may resist accepting patients that are contaminated or infectious. 

 The national capacity requirement should focus on maintaining the integrity of the health care system 

and delivery of health care services to the general population. As the incident wears on through 

potential multiple phases, relief of medical staff will become necessary. 

 An unknown percent of EMS workers will become injured/ill during any given incident rendering 

them unavailable for duty. 

 Planning, response, and preparedness activities should focus on reducing morbidity and mortality 

rates, which will vary based upon the type of agent involved, time, geography, and availability of 

resources. 

 Non-standard dispatch, triage and treatment criteria will need to be applied due to the huge demands 

on limited health care resources. 

 Special needs populations (i.e., pediatrics, geriatrics and the disabled) will need to be given particular 

consideration. 

 Information will need to be provided in multiple languages. 
446 Target Capabilities List 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

 Public Health Emergency under HHS authority and a Stafford Act Emergency declaration will be 

declared in order to obtain needed Federal resources. 

 Response to the demand for emergency medical services will require an altered standard approach to 

treatment and transport of injured or ill patients. 

 In areas with climate extremes, EMS systems will need the ability to create sheltered (warmed or 

cooled, as needed) treatment areas. 

 EMS systems are functioning close to peak capacity at time of incident. 

 Professional responders and volunteers may fail to participate as expected due to dual roles in 

emergency care delivery and/or fear of the unknown. 

 EMS systems will have education, licensure and credentialing systems in place consistent with 

national standards. 

 States will have in place trauma and triage protocols identifying transportation of large numbers of 

victims across regional and State boundaries to assure appropriate distribution of patients. 

 Local, regional and response agencies will have access to specialized medical resources from 

public/private sector agencies and academia. 

 EMS responders will have participated in multi-disciplinary exercises with State and local emergency 

management agencies, fire-rescue, public health, hospitals, law enforcement and other related 

agencies. 

 Patient transportation to and from airheads and medical treatment facilities (MTFs) will be 

problematic due to excessive congestion on local roads and limited patient movement alternatives 

(e.g., rotary wing lift) 

Scenario Specific 

 For Biological (Communicable) events (e.g., plague, avian flu), assume 20 – 30% of the population 

is affected, with 50% of the sick requiring transport. Duration of EMS role is days to months. 

Assume 2 EMS personnel per transport vehicle. Numbers reflect 200–300 % increase in average 

daily activity 

 For Biological (Non-communicable) events (e.g., anthrax – 330,000 exposures), assume 4% of 

exposed become infected (13, 000 infected), with 25% of infected population requiring transport. 

Duration of EMS role is days to weeks. Assume 2 EMS personnel per transport vehicle. Majority of 

patient transports will occur in the first week. 

 For Chemical events, assume 100% of exposed population, with 25% of exposed population 

requiring transport (up to 75% of victims in a major incident will self-transport). Duration of EMS 

role is hours to days. Assume 2 EMS personnel per transport vehicle; each ambulance transporting 

twice. On-scene: 1:4 ratio of personnel to patients. Majority of transports will be in the first hours. 

 For Explosive events (may be multiple IEDs), assume 100 fatalities and 500 injured per each major 

IED, with 50% of injured requiring transport. Duration of EMS role is hours. Assume 2 EMS 

personnel per transport vehicle (approx. 125 ambulances, each transporting twice). On-scene: 150 

EMS personnel (1:4 ratio of personnel to patients). Majority of transports will be in the first hours. 

 For Radiological Dispersion Device events, assume 180 fatalities, 270 injuries, up to 20,000 

exposed/ potentially exposed, with 50% of injured requiring transport. Duration of EMS role is 

hours. Assume 2 EMS personnel per transport vehicle (135 ambulances - each ambulance 

transporting only one patient due to decontamination requirements). On-scene: 135 EMS personnel 
Target Capabilities List 447 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

(1:2 ratio of personnel to patients due to safety and logistic concerns). Injuries include blast, burn, 

radiological exposure, and trauma. 

 For Nuclear events (10 kiloton), assume several hundred thousand victims over thousands of square 

miles. Duration of EMS role is hours to days due to logistical issues. Assume only EMS personnel 

with specialized training and equipment can enter on-scene. EMS personnel receive decontaminated 

victims. 10s of 1000s EMS personnel will be required. Injuries include blast, burn, radiological 

exposure, and trauma. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Command, Control, 

Communications, 

and Coordination 

(C4) Infrastructure 

Resource 

Organization 

1 Per Joint Field 

Office 

Federal Direct Operations 

Activate Triage and 

Pre-Hospital 

Treatment 

Demobilize 

Command, Control, 

Communications, 

and Coordination 

(C4) Infrastructure

Resource 

Organization 

1 Per State State Direct Operations 

Activate Triage and 

Pre-Hospital 

Treatment 

Demobilize

Command, Control 

Communications, 

and Coordination 

(C4) Infrastructure

Resource 

Organization 

1 Per Jurisdiction Local Direct Operations 

Activate Triage and 

Pre-Hospital 

Treatment 

Demobilize

Emergency 

Medical Services 

Communication 

System 

Resource 

Organization 

1 Per State State Direct Operations 

Emergency 

Medical Task Force 

Resource 

Organization 

1 Minimum per State State Triage 

Provide Treatment 

Transport 

Emergency 

Medical Services 

preparedness 

assessment 

capability 

Resource 

Organization 

 As needed Federal/State/ 

Local 

Direct Operations

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 
448 Target Capabilities List 

RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Modular Emergency Medical System: Concept of Operations for the Acute Care Center. U.S. Army Soldier and 

Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003. 

5. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

6. Emergency Response Training Necessary for Hospital Physicians/Nurses That May Treat Contaminated 

Patients. Standard interpretation. Occupational Safety and Health Administration. March 1999. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22710. 

7. Emergency Response Training Requirements for Hospital Staff. Standard interpretation. Occupational Safety 

and Health Administration. April 1997. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22393. 

8. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

9. Medical Personnel Exposed to Patients Contaminated With Hazardous Waste. Standard interpretation. 

Occupational Safety and Health Administration. March 1992. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609. 

10. Training Requirements for Hospital Personnel Involved in an Emergency Response of a Hazardous Substance. 

Standard interpretation. Occupational Safety and Health Administration. October 1992. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20911. 

11. National Bioterrorism Hospital Preparedness Program, FY 2005 Continuation Guidance, HRSA Announcement 

5–U3R–05–001. U.S. Department of Health and Human Services (HHS), Health Resources and Services 

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

12. Best Practices for Hospital-Based First Receivers of Victims from Mass Casualty Incidents Involving the 

Release of Hazardous Substances. Standard interpretation. Occupational Safety and Health Administration. 

December 2004. http://www.osha.gov/pls/oshaweb/. 

13. E2413–04 Standard Guide for Hospital Preparedness and Response. ASTM International. January 2005. 

http://www.astm.org/cgibin/SoftCart.exe/DATABASE.CART/REDLINE_PAGES/E2413.htm?L+mystore+hdvu4953 

14. National Disaster Medical System. U.S. Department of Homeland Security. 2004. http://ndms.dhhs.gov/. 

15. National EMS Education Agenda for the Future: A Systems Approach. U.S. Department of Transportation, 

National Highway Traffic Safety Administration. 2000. www.nhtsa.dot.gov 

16. Protecting Emergency Responders, Volume 3. Safety Management in Disaster and Terrorism Response. 

National Institute of Occupational Safety and Health. Rand Science and Technology. 2004. 

17. Interim National Infrastructure Protection Plan. U.S. Department of Homeland Security. February 2005. 

18. Model Trauma System Planning and Evaluation. Health Resources and Services Administration, U.S. 

Department of Health and Human Services
Target Capabilities List 449 

RESPOND MISSION: MEDICAL SURGE 

MEDICAL SURGE 

Capability Definition 

Medical Surge is the capability to rapidly expand the capacity of the existing healthcare system (longterm care facilities, community health agencies, acute care facilities, alternate care facilities and public 

health departments) in order to provide triage and subsequent medical care. This includes providing 

definitive care to individuals at the appropriate clinical level of care, within sufficient time to achieve 

recovery and minimize medical complications. The capability applies to an event resulting in a number 

or type of patients that overwhelm the day-to-day acute-care medical capacity. Planners must consider 

that medical resources are normally at or near capacity at any given time. Medical Surge is defined as 

rapid expansion of the capacity of the existing healthcare system in response to an event that results in 

increased need of personnel (clinical and non-clinical), support functions (laboratories and radiological), 

physical space (beds, alternate care facilities) and logistical support (clinical and non-clinical equipment 

and supplies). 

Outcome 

Injured or ill from the event are rapidly and appropriately cared for. Continuity of care is maintained for 

non-incident related illness or injury. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports Emergency Support Function: 

(ESF) #8: Public Health and Medical Services. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.C1b 1.5.1 

Establish a healthcare system to receive and appropriately treat incident specific casualties or 

illnesses. This system should be composed of multiple resources from State, sub-State and 

community resources 

Res.C1b 1.9.7.2 Coordinate with WMD/hazmat to develop plans for managing/decontaminating self-presenting 

contaminated victims off-site 

Res.C1b 1.3.8 Identify local, State, sub-State, and interstate mental health and substance abuse professionals or 

paraprofessionals by survey 

Res.C1b 1.9.1 Integrate local, State, and regional mental health and substance abuse professionals or 

paraprofessionals in response planning, exercises, and drills 

Res.C1b 1.11.5 Ensure emergency system patient transport and tracking systems are interoperable with national 

and Department of Defense systems 
450 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

Res.C1b 1.10.3 Ensure that comprehensive stress management strategies and programs are in place and available 

to all emergency responders, support personnel, and healthcare professionals 

Res.C1b 1.4.2 Develop medical mutual aid agreements for medical facilities and equipment 

Res.C1b 1.15.4 Develop surge capacity plans for Acute Care hospitals 

Res.C1b 1.15.5 Coordinate with community healthcare systems when developing surge capacity plans for Acute 

Care hospital 

Res.C1b 1.14.2 

Ensure facility based evacuation plans include identification of receiving facilities and 

transportation assets. Transportation assets should be coordinated and planned out with response 

partners 

Res.C1b 1.14 Develop healthcare system evacuation plans to include receiving facilities and transportation 

assets that are coordinated on a regional basis 

Res.C1b 1.14.1 Identify adequate evacuation transportation assets and receiving facilities with adequate assets 

Res.C1b 1.15.3 Develop plans to mitigate identified hazards to medical treatment facilities 

Res.C1b 1.11.3 Develop electronic medical records for recording treatment provided and patient self-reporting 

Res.C1b 1.3.11 Develop plans to identify staff, and equipment and resources to operate alternate care facilities 

Res.C1b 1.15.1 Develop plan to restrict access and secure healthcare and surge facilities 

Res.C1b 1.5.6 

Develop a local/State regional pharmaceuticals management system that captures current 

inventory of Metropolitan Medical Response System, Health Resources and Services 

Administration-hospital, CHEM-PACK caches; ensures a sufficient supply of pharmaceuticals to 

provide prophylaxis for 3 days to first responders and their families, other key incident 

response/management personnel, and the general public as determined by local authorities; and 

tracks the dispensing of pharmaceuticals during the incident 

Preparedness Measures Metrics

The healthcare system has the capacity to complete triage, treatment, and initially stabilize 

500 cases per million population for patients with symptoms of acute infectious disease – 

especially smallpox, anthrax, plague, tularemia, and influenza 

Yes/No 

The healthcare system has the capacity to complete triage, treatment, and initially stabilize 

50 cases per million population for patients with symptoms of acute botulinum 

intoxication, acute chemical poisoning, and nerve agent exposure 

Yes/No 

The healthcare system has the capacity to complete triage, treatment, and initially stabilize 

50 cases per million population for patients suffering burn or trauma 

Yes/No 

The healthcare system has the capacity to complete triage, treatment, and initially stabilize 

50 cases per million population for patients manifesting the symptoms of radiationinduced injury – especially bone marrow suppression 

Yes/No 

A process is in place to project the demand for Medical Surge (e.g. how many people will 

need treatment, how long it will take to secure facilities). 

Yes/No 

A scalable patient tracking system is in place Yes/No 

Plan for community based surge hospital bed surge capacity is in place Yes/No 

A 50-bed nursing subunit – per 50,000 population – can be staffed Yes/No 

At least one healthcare facility that is identified in each defined sub-State region is able to Yes/No 
Target Capabilities List 451 

RESPOND MISSION: MEDICAL SURGE 

support initial evaluation and treatment of at least 10 total adult and pediatric patients at a 

time in negative pressure isolation within 3 hours from the event 

All acute care hospitals have capacity to maintain, in negative pressure isolation, at least 

one suspected case of a highly infectious disease or a febrile patient with a suspect rash or 

other symptoms of concern who might be developing a highly communicable disease 

Yes/No 

Sufficient supply of pharmaceuticals are stored at the healthcare facility to provide 

prophylaxis for 3 days to hospital personnel (medical and ancillary staff), ,their family 

members, and hospital based emergency first responders and their families 

Yes/No

Sufficient supplies of Personal Protective Equipment are available for current and surge 

healthcare personnel to work safely within the limits defined by their SOPs 

Yes/No

Secure and redundant communications system that provide connectivity during a 

catastrophic event among healthcare facilities and all other responder disciplines at all 

jurisdictional levels is in place 

Yes/No 

Updated medical surge plans have been developed in conjunction with critical multidisciplinary partners (public health, emergency management agency (EMA), law 

enforcement, etc.) 

Yes/No 

Plans address the use of existing facilities (e.g. hospitals, clinics, extended care facilities) Yes/No 

Plans address the identification and setting up of additional facilities (e.g. provision of 

personnel, equipment, pharmaceuticals) when needed. 

Yes/No 

Plans address patient and resource transportation (e.g. identification and availability of 

traditional and non-traditional resources). 

Yes/No 

Plans address facility based evacuation (e.g. identification of receiving facilities, 

coordination of transportation assets). 

Yes/No 

Plans to operate without public utilities for 72 hours are in place Yes/No 

Plans for the set up, staffing, and operation of alternate care facilities are in place Yes/No 

Plans address the treatment of Medical Surge personnel, site staff, and their families (e.g. 

medical needs, stress management strategies). 

Yes/No 

Plans address dissemination of accurate, timely, accessible information to public, media, 

support agencies 

Yes/No 

A data base to track the status of medical surge resources (e.g. medications, medical 

professionals) is in place or accessible 

Yes/No 

A local regional/State regional pharmaceuticals management system is in place that 

captures current inventory of Metropolitan Medical Response System, Health Resources 

and Services Administration-hospital, CHEM-PACK caches 

Yes/No 

A local regional/State regional pharmaceuticals management system is in place that 

ensures a sufficient supply of pharmaceuticals to provide prophylaxis for 3 days first 

responders and their families, and other key incident response/management personnel and 

the general public as determined by local authorities 

Yes/No 

A local regional/State regional pharmaceuticals management system is in place that tracks 

the dispensing of pharmaceuticals during the incident 

Yes/No 
452 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.C1b 2.1.6 Train designated hospital personnel in National Incident Management System (NIMS), National 

Response Plan (NRP) and Incident Command System (Hospital Incident Command System) 

Res.C1b 2.2.4 Exercise healthcare system, in compliance with appropriate national, State, and local guidance 

Res.C1b 2.2.3 Develop and/or implement training, preparedness and exercise programs based on local risk 

vulnerability assessment, and lessons learned 

Res.C1b 2.1.7 Train designated hospital personnel in recognition and treatment of chemical, biological, 

radiological, nuclear, and explosive (CBRNE) hazards 

Res.C1b 2.2.5 Exercise medical surge plans 

Res.C1b 2.1.1 Develop and conduct competency-based education and training programs for adult and pediatric 

pre-hospital, hospital, and outpatient healthcare personnel 

Res.C1b 2.1.2 Develop program to train medical and non-medical personnel 

Res.C1b 2.1.3 Develop program to train health professions students 

Res.C1b 2.2.1 Evaluate emergency management plans through training and multiple methods including drills 

and exercises at tribal, local, State and national levels 

Res.C1b 2.2.2 Exercise all plans on an annual basis to demonstrate proficiency in responding to bioterrorism, 

other infectious disease outbreaks and other public health threats and emergencies 

Res.C1b 2.1.5 Develop just-in-time training programs healthcare workers for unfamiliar critical job functions, 

and Personal Protective Equipment for specific threats 

Preparedness Measures Metric

Hospitals utilize competency-based education and training programs for all hospital 

personnel responding to a terrorist incident or other public health emergency 

Yes/No 

Percent of hospitals that are NIMS/Incident Command System compliant 100% 

Percent of acute care facilities that participate in exercises consistent with national and 

Joint Commission on Accreditation of Healthcare Organizations requirements 

75% 

Hospitals and their healthcare partners have an exercise program that conforms with Joint 

Commission on Accreditation of Healthcare Organizations, Health Resources and 

Services Administration, Center for Disease Control (CDC), NIMS, and Homeland 

Security Exercise and Evaluation Program (HSEEP) requirements 

Yes/No 

State participates in Emergency System for Advance Registration of Volunteer Health 

Professionals (ESAR-VHP) Program 

Yes/No 
Target Capabilities List 453 

RESPOND MISSION: MEDICAL SURGE 

Performance Tasks and Measures/Metrics 

Activity: Direct Medical Surge Tactical Operations 

Definition: In response to notification of mass casualty incident, provide overall management and 

coordination of medical surge operations. 

Critical Tasks

Res.C1b 3.7.1 Implement incident response communications within the healthcare system 

Res.C1b 3.4.1 Execute medical mutual aid agreements 

Res.C1b 3.6 Provide coordination and support for medical care through incident command/ emergency 

operations center in accordance with the NIMS 

Res.C1b 3.6.4.1 Coordinate public health and medical services for those individuals who have been isolated or 

quarantined 

Res.C1b 3.7.2 Provide consistent, accurate and relevant public health and medical information to clinicians, 

other responders, and the public in a timely manner 

Res.C1b 3.7.3 Coordinate with Emergency Public Information to disseminate public health and safety 

information to the public to improve provision of home healthcare 

Res.C1b 3.4.5 Implement emergency credentialing and privileging procedures 

Performance Measures Metric

Policies are implemented for security of healthcare facilities and its perimeter 

during a mass casualty incident or large scale public health emergency 

Yes/No 

Percent of hospitals in the local regional incident impact area that support the 

incident recognizing that most regions will only have a couple of hospitals 

90% 

Timely public health information is disseminated to improve provision of home 

healthcare and other personal, family, and employer actions 

Yes/No 

Time in which National Disaster Medical System (NDMS) and other hospital asset 

reporting and tracking systems are activated 

Within 60 minutes from the 

incident 

Time in which deployment actions for the Health and Human Services (HHS) 

Incident Response Coordination Team are initiated 

Within 4 hours from the 

incident 

Time in which the State medical coordinating system is activated Within 2 hours from 

notification of the incident 

Time in which Federal ESF 8 assets are activated Within 6 hours from 

notification of the incident 

Time in which deployment actions for the National Disaster Medical System 

(NDMS) Disaster Medical Assistance Teams (DMAT) are initiated 

Within 6 hours from incident 

Time in which deployment actions for the National Disaster Medical System 

(NDMS) Disaster Medical Assistance Teams (DMAT) equipment caches are 

initiated and activated 

Within 24 hours from the 

incident 
454 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

Activity: Activate Medical Surge 

Definition: In response to a mass casualty incident, activate medical surge through 

implementation of surge plan 

Critical Tasks

Res.C1b 4.1 Activate healthcare system incident command 

Res.C1b 4.4 Consider the implementation of altered standards of care 

Res.C1b 4.6 Activate medical surge plans, procedures, and protocols to ensure medical treatment for 

populations requiring specialized assistance 

Performance Measures Metric

Medical Surge plans are implemented Yes/No 

Personnel are available to augment treatment facilities Yes/No 

Time in which, for cases of a Catastrophic Incident Supplement (CIS) activation, 

Department of Veteran Affairs (VA) Primary Receiving Centers (PRCs) within 500 miles 

of an incident venue prepare to terminate non-critical medical services and redirect 

available resources for receipt of patients at VA medical facilities. Department of Defense 

(DOD) facilities in the United States will respond under the National Response Plan 

Pursuant to a Request for Assistance approved by the Secretary of Defense or when 

directed by the President. DOD facilities within close proximity of the event may be able 

to render assistance under “Immediate Response Authority.” 

Within 24 hours from 

CIS activation 

Development of a reconstitution plan is initiated upon identification of Planning Section 

Chief 

Yes/No 

Activity: Implement Surge Patient Transfer Procedures 

Definition: Transition from pre-event bed utilization to access surge capabilities 

Critical Tasks

Res.C1b 5.2 Activate alternative care sites and overflow emergency medical care facilities to manage hospital 

surge capacity 

Res.C1b 5.3 

Provide knowledge or visibility of available destination medical care facilities/services and 

tracking for mass movement of patients, ensuring patients are matched with transportation and 

destinations that provide appropriate levels of medical care 

Performance Measures Metric

Systems are in place to identify patients able to be transferred Yes/No 

Time in which patients to discharge are identified Within 6 hours from 

notification of requirement 

to move patients 

Resources are available to provide tracking and mass movement of patients Yes/No 

Patient transfers are coordinated with local or State Emergency Operations Center 

(EOC) 

Yes/No 

Time in which traditional and non-traditional emergency transport vehicles are Within 3 hours from 
Target Capabilities List 455 

RESPOND MISSION: MEDICAL SURGE 

activated notification 

Percent of level of coordination with patient tracking system 100% 

Activity: Implement Surge Staffing Procedures 

Definition: Maximize staffing levels in accordance with medical surge plans 

Critical Tasks

Res.C1b 6.1 Activate healthcare workers’ and volunteers’ call systems 

Res.C1b 6.3.1 Support medical surge capability by using volunteer resources 

Res.C1b 6.2.1 Mobilize incident-specific medical treatment personnel for pediatrics and adults 

Res.C1b 6.2.2 Mobilize non-medical support personnel 

Res.C1b 6.3 Assess initial and ongoing need for medical specialists and augment as needed 

Res.C1b 6.5 Provide just-in-time training for staff performing non-standard duties 

Res.C1b 6.4 Coordinate staff transportation and staging through the State and local EOC 

Res.C1b 6.3.2 

Coordinate response staffing with Medical Reserve Corps, Metropolitan Medical Response 

System, Federal and interstate resources, and nongovernmental organizations and faith-based 

groups 

Performance Measures Metric

Percent of healthcare organizations involved in surge that implement call-back procedures 100% 

Just-in-time materials and instructions are developed and distributed Yes/No 

Activity: Receive and Treat Surge Casualties 

Definition: Receive mass casualties and provide appropriate clinical care 

Critical Tasks

Res.C1b 7.1.2 Provide treatment appropriate to nature of incident and number of injured/ill 

Res.C1b 7.3.1 Ensure adequacy of medical equipment and supplies in support of immediate medical response 

operations and for restocking supplies/equipment requested 

Res.C1b 7.3.3 Coordinate and integrate with local, Federal, and State ESF 8 

Res.C1b 7.2.3 Implement comprehensive stress management strategies and programs for all emergency 

responders and workers 

Res.C1b 7.1.3 Provide short-term mental health and substance abuse behavioral health services to the 

community 

Performance Measures Metric

Systems are in place to accrue supplies, pharmaceuticals, and equipment to support 

facility surge capacity 

Yes/No 

Percent of patients for whom decontamination is confirmed prior to facility access 100% 
456 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

Percent of patients and responders identified, screened, and monitored after an event 100% 

Percent of patients tracked from arrival at healthcare system though duration of medical 

care 

100% 

Activity: Demobilize Medical Surge 

Definition: Prepare to return healthcare system to normal operations 

Critical Tasks

Res.C1b 8.1 Transition from surge to normal operations 

Res.C1b 8.2 Implement plan for reconstitution of healthcare system capabilities 

Res.C1b 8.3 Conduct After-Action Reviews and prepare report 

Performance Measures Metric

Percent of healthcare system conducting an After-Action Review 100% 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations 

Center Management 

Medical Surge and Emergency Operations Center Management provide one another 

with situation reports. Emergency Operations Center Management also provides 

resources to Medical Surge as needed. 

Emergency Triage and 

Pre-Hospital Treatment 

Medical Surge capability receives patients from Emergency Triage and Pre-Hospital 

Treatment. 

Medical Supplies 

Management and 

Distribution 

Medical Surge capability receives medical resources from Medical Supplies 

Management and Distribution. 

Critical Resource 

Logistics and Distribution 

Medical Surge capability receives resources from Critical Resource Logistics and 

Distribution. 

Emergency Public Safety 

and Security Response 

Medical Surge receives perimeter security from Emergency Public Safety and Security 

Response. 

WMD/Hazardous 

Materials and 

Decontamination 

Medical Surge receives decontaminated patients from WMD/Hazardous Materials and 

Decontamination. 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Medical Surge provides medical personnel to Mass Care (Sheltering, Feeding, and 

Related Services) to conduct treatment of people in shelters. 

Mass Prophylaxis Medical Surge sends patients to Mass Prophylaxis to receive appropriate protection 

(countermeasures) and treatment. 

Fatality Management Medical Surge capability provides remains to Fatality Management. 
Target Capabilities List 457 

RESPOND MISSION: MEDICAL SURGE 
458 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

Resource Element Description 

Resource Elements Components and Description 

Surge bed capacity for 

infectious disease treatment 

Beds above the daily bed capacity for triage treatment and initial stabilization for 

patients requiring hospitalization with symptoms of acute infectious disease 

Other surge bed capacity Beds above the daily bed capacity for triage treatment and initial stabilization for 

patients requiring hospitalization with: (1) symptoms of acute botulinum 

intoxication or other acute chemical poisoning; (2) suffering from burns or trauma 

or (3) symptoms of radiation-induced injury—especially bone marrow 

suppression 

Surge Healthcare Staff Unit Minimum staffing level for an acute care center (50-bed nursing subunit) per 12-

hour shift: 1 physician, 1 physician’s assistant (PA) or nurse practitioner (PN), 6 

registered nurses (RN) or a mix of RNs and licensed practical nurses (LPN), 4 

nursing assistants/nursing support technicians, 2 medical clerks (unit secretaries), 

1 respiratory therapist, 1 case manager, 1 social worker, 1 housekeeper, and 1 

patient transporter. Staffing levels will vary and be incident specific. Staffing and 

support functions will be more efficient as similar patients are treated at 

individual facilities. 

Isolation capacity 

(1-person) 

The capacity to maintain, in negative-pressure isolation, at least one suspected 

case of a highly infectious disease or a febrile patient with a suspect rash or other 

symptoms of concern who might be developing a highly communicable disease. 

Isolation capacity 

(10-person) 

The capacity to support the initial evaluation and treatment of at least 10 total 

adult and pediatric patients at a time in negative-pressure isolation. 

Regional pharmaceutical 

cache system 

A local regional/State regional pharmaceuticals management system that captures 

current inventory of Health Resources and Services Administration-hospital, 

Metropolitan Medical Response System, CHEM-PACK caches; ensures a 

sufficient supply of pharmaceuticals to provide prophylaxis for 3 days for first 

responders, their families, other key incident response/management personnel, 

and the general public as determined by local authorities; and tracks the 

dispensing of pharmaceuticals during the incident. 

Personal protective 

equipment (PPE) 

Adequate personal protective equipment to protect current and additional 

healthcare personnel. The quantity and type of PPE will be established based on a 

health vulnerability assessment (HVA) and the level of decontamination that is 

being designed. 

Secure and redundant 

communications system 

Secure and redundant communications system ensures connectivity during a 

catastrophic incident among healthcare facilities, State and local health 

departments, emergency medical services, emergency management agencies, 

public safety agencies, neighboring jurisdictions, and Federal ESF#8 elements. . 

Data reporting system System to report data 
Target Capabilities List 459 

RESPOND MISSION: MEDICAL SURGE 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Pandemic Influenza scenario. Other scenarios were 

reviewed to identify required adjustments or additions to the planning factors and national targets. 

 This capability may require support from multiple ESFs and capabilities. 

 HHS Secretary can lift Emergency Medical Treatment and Active Labor Act (EMTALA) 

requirements for 72 hours. 

 Each State should review with HHS other restrictions that may need to be lifted or minimized during 

the time of an emergency such as Critical Access Hospitals, Health Insurance Portability and 

Accountability Act and Medicare and Medicaid rules. 

 Triage done in the field will have a significant impact on the subsequent healthcare surge capacity 

system. 

 This capability applies to a wide range of incidents and emergencies including accidental or 

deliberate disease outbreaks, natural disasters, nuclear, chemical, and conventional explosive events. 

 The professionals listed in the following have basic skill sets commensurate with their professional 

training and experience qualified by professional licensure and/or industry standards. 

 There will be a significant problem locating and providing information on displaced family members 

as well as victims at treatment facilities. 

 Federal, State, and local Emergency Response Plans are activated. 

 Non-Federal hospitals of the National Disaster Medical System, as well as Department of Veteran’s 

Affairs (VA) Primary Receiving Center (PRCs) within the local vicinity of the incident are authorized 

to provide definitive care to casualties of a catastrophic mass casualty incident. DOD facility support 

is available in response to a Request for Assistance that has been approved by Secretary of Defense or 

the President 

 Public Health Emergency and Stafford declaration will be utilized to enable the Secretary of the 

Department of Health and Human Services (HHS) to invoke Emergency Hiring Authority and 

additional resources for additional healthcare assets. 

 Alternative Care Facilities (ACFs) are community based medical facilities such as ambulatory 

surgical centers, which can be rapidly mobilized for medical surge. ACFs are typically buildings that 

serve a medically-related purpose when not requisitioned for use in an emergency to house patients. 

 Ambulatory Care Centers (ACCs) are buildings of opportunity which can be resourced and staffed to 

provide medical care. The Federal Medical Contingency System (FMCS) can also be incorporated 

within this structure. These are community facilities that do not necessarily provide a medical 

function outside of an emergency, but have the space and access needed to house patients (armories, 

auditoriums, conference centers, firehouses, etc.) 

 Response to the overwhelming demand for services will require non-standard (Altered Standards of 

Care) approaches, including: discharge of all but critically ill hospital patients, expansion of hospital 

“capacity” by using all available space, less than code compliance beds, relaxation of practitioner 

licensure requirements as deemed appropriate, such as ratio of staff to patients, and utilization of 

general purpose and special needs shelters as temporary health facilities. 

 Secondary bacterial infections following any mass casualty event will stress antibiotic supplies. 

 There will be critical shortages of healthcare resources such as staff, hospital beds, mechanical 

ventilators, morgue capacity, temporary holding sites with refrigeration for storage of bodies and 

other resources. 

 Routine medical admissions for acute medical and trauma needs will continue. 

 Alternate healthcare facility plans are implemented. 
460 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

 Emergency Use Authorities will be sought. 

 Victims and responder monitoring and treatment may be required over a long time frame. 

 There may be a denigration of healthcare staff numbers for a variety of causes. 

 A large number (75 percent plus) of victims could self-present without field triage or evaluation. 

 The “normal” supply chain will likely be disrupted. 

 Hospital logistical stores will be depleted in the early hours from any large scale event. 

 Blood supplies will be taxed and significant regional shortages could materialize quickly following a 

catastrophic incident. Blood manufacturing, infectious disease-testing, and distribution of tested 

blood will be problematic. 

 There will be a significant increase and demand for specialty healthcare personnel and beds 

(biological contagious, burn, trauma, pediatrics) depending on the specific event. 

 A large number of patients may self-refer to a healthcare facility requiring decontamination. 

 Healthcare providers are subject to the effects of disasters and may need decontamination, 

prophylaxis, or immunization measures before being able to perform their response roles. 

 Patient transportation to and from airheads and medical treatment facilities (MTFs) will be 

problematic due to excessive congestion on local roads and limited patient movement alternatives 

(e.g. rotary wing lift). 

 Public anxiety related to a catastrophic incident will require effective risk communication and may 

require mental health and substance abuse services. 

 During a catastrophic incident, medical support will be required not only at medical facilities, but in 

large numbers at casualty evacuation points, evacuee and refugee points, and shelters as well as to 

support field operations. 

 The DHS National Disaster Medical System (NDMS) and HHS U.S. Public Health Service (USPHS) 

Commissioned Corps assets will be the first Federal health and medical assets to arrive on the scene 

of a catastrophic event. Although they may not arrive at all. 

 Sub-State regions are able to provide and sustain medical surge capacity in a large-scale public health 

emergency or bioterrorism event. Ideally, each sub-State region will contain one acute care hospital, 

one emergency medical services agency, and one public health department/district and work with a 

multitude of various public agencies as well as private and faith based groups, all of which would 

respond to a wide-scale event. 

Scenario-Specific 

Pandemic Influenza: 

 Pandemic is pervasive and not localized. 

 Worst case scenario would produce 733,000 patients hospitalized on any given day. 

 Up to 20 percent of those hospitalized (146,600 patients) are critical and will each require a critical 

care bed and mechanical ventilation, necessitating staff to patient ratios of 1:2 registered nurses (RN) 

(73,300 RNs), 1:10 physicians (14,660 MDs); 1:5 respiratory therapists (29,320 RTs). Ratios should 

be consistent with State/sub-State regions 

 80 percent of those hospitalized (586,400 patients) are non-critical and will require a general medical 

bed, necessitating patient to staff ratios of 1:40 physician (14,660 MDs) and 1:20 RN (29,320 RNs). 

 Vaccine availability will be insufficient and time to produce additional vaccine unacceptably long. 

 Antiviral drug production will be surged. 

 Strategic National Stockpile (SNS) will be depleted. 

 42 million outpatient visits need to be provided with antivirals, antipyretics, analgesics 

 50 million at home on self care are on over-the-counter (OTC) only. 
Target Capabilities List 461 

RESPOND MISSION: MEDICAL SURGE 

 1 percent of the hospitalized patient population (7,338) warrants transfer from one healthcare facility 

to another more than 100 miles. 

 50 percent of the transferring patient population (3,669) will require transfer during one two-month 

period; the other half (3,669) during a separate two-month period; averaging 61 patients per day, with 

surging to 200 patients per day for one week. 

 10 percent of transferring patients (total of 733 patients over/during the entire scenario) could travel 

by commercial means sans medical attendance en route. 

 50 percent are ambulatory (total 3,669) but require medical attendance en route at a rate of 1 nurse per 

50 patients. 

 40 percent are restricted to litters (total 2,936) and require medical attendance at a rate of 1 nurse per 

20 patients. 

 50 percent of litter patients are critical and require ventilation and 1 nurse per patient (1,468). 

 There is a critical need for containment measures to prevent additional disease spread. Specific 

counter measures such as social distancing, masks, and hand hygiene should be instituted. 

 Because of the limited supply and production capacity, there is a need for explicit prioritization of 

influenza vaccine based on the risk of influenza complications, the likelihood of benefit from 

vaccination, role as an influenza pandemic responder, and impact of the pandemic on maintenance of 

critical infrastructure. 

 Persons of all ages will likely need 2 doses of vaccine, 3-4 weeks apart in order to be protected. 

 Primary prevention including masks, hand hygiene, and social isolation may be the primary mode of 

preventing the spread of disease if vaccine and viral agents are not available in adequate quantities. 

Chemical: 

 Most likely route of introduction of a chemical exposure in a mass casualty event will be inhalation. 

 There will be a delay in the identification of the chemical. 

 All chemicals are toxic depending on the concentration and time spent in that concentration. 

 Medical treatment facilities have inadequate decontamination capabilities. 

 Chemical events will result in immediate and potentially life threatening injuries. 

 Appropriate response will rely on rapid decontamination and a locally deployable, pharmaceutical 

cache. ( i.e., Chempack or Metropolitan Medical Response System) 

 Many potential victims may present themselves to healthcare facilities requiring decontamination. 

Nuclear Detonation: 

 Triage will be a major issue for care providers. 

 Decontamination and monitoring will be a major issue. 

 As a rule of thumb, the sooner the onset of symptoms and the higher the dose received the less likely 

the victim will survive. 

 Generally, invasive (open) procedures should be performed within the first 48 hours on those 

receiving significant doses of radiation exposure due to follow on progressive immunocompromised 

state. 

 Critical infrastructure and personnel will be damaged and rendered ineffective for a three mile radius. 

 Tens of thousands will require decontamination and both short-term and long-term treatment. 

 The evacuated population will require shelter and food for an indefinite time. 

 Healthcare facilities and emergency workers in the affected area will be overwhelmed. 
462 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

 There will be a significant psychological impact on survivors creating long term mental health 

demands. 

 The effects of the radiation will be prevalent for years creating long term health issues. 

 Healthcare facilities involved in the affected area will have to be replaced and relocated. 

 Triage may identify a significant number of patients who have received lethal doses of radiation with 

zero chance of survivability who will require palliative care only. 

 There is a lack of palliative care resources and planning for large numbers of victims. 

 Timely and accurate emergency public health information/crisis information news releases are vital 

for mitigation and prevention of further health issues. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Pandemic Influenza) 

Resource 

Element 

Estimated 

Capacity 

Scenario 

Requirement 

Values 

Quantity of Resources Needed 

Surge bed 

capacity for 

infectious disease 

treatment 

733,000 patients 

hospitalized on a 

given day 

Bed capacity above the current daily staffed bed 

capacity to allow for triage, treatment, and initial 

stabilization for 500 cases per million population for 

patients with symptoms of acute infectious disease 

Other surge bed 

capacity 

 Bed capacity above the current daily staffed bed 

capacity to allow for triage, treatment, and initial 

stabilization for: 

50 cases per million population for patients with 

symptoms of acute botulinum intoxication, acute 

chemical poisoning, and nerve agent exposure 

50 cases per million population for patients suffering 

from burns or trauma 

50 cases per million population for patients 

manifesting the symptoms of radiation-induced 

injury—especially bone marrow suppression 

Surge Healthcare 

Staff Unit 

Staff teams 

needed per 

12-hour shift 

Regional 

pharmaceutical 

cache system 

 

Personal 

protective 

equipment (PPE) 

 The quantity and type of PPE will be established 

based on a hazardous vulnerability analysis (HVA) 

and the level of decontamination that is being 

designed 

Secure and 

redundant 

communications 

system 

 
Target Capabilities List 463 

RESPOND MISSION: MEDICAL SURGE 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Beds - Surge 

capacity for 

infectious disease 

treatment 

Equipment 500 Per million 

population 

Federal/State/ 

Local (City, 

Intrastate 

region) 

Receive and Surge 

Treat Casualties 

Beds - Surge 

capacity for other 

treatment 

Equipment 50 Per million 

population 

Federal/State/ 

Local (City, 

Intrastate 

region) 

Receive and Surge 

Treat Casualties 

Surge Healthcare 

Staff Unit (Option 

1 – for establishing 

acute care center) 

Non-NIMS 

Resource 

Organization 

2 Per 50-bed unit Local 

(Intrastate 

region) 

Receive and Surge 

Treat Casualties 

Surge Healthcare 

Staff Unit (Option 

2 - for surge 

support to existing 

healthcare facility) 

Non-NIMS 

Resource 

Organization 

1 Per surge bed 

assuming a 1:4 staff 

to patient ratio 

Local 

(Intrastate 

region) 

Implement Surge 

Staffing Procedures 

Receive and Surge 

Treat Casualties

Surge Healthcare 

Staff Unit (Option 

2 - for surge 

support to existing 

healthcare facility 

Non-NIMS 

Resource 

Organization 

1.4 Per surge bed 

assuming a 1:6 staff 

to patient ratio 

Local 

(Intrastate 

region) 

Implement Surge 

Staffing Procedures 

Receive and Surge 

Treat Casualties 

Isolation capacity 

(1-person) 

Equipment 1 Per Healthcare 

facility 

Local 

(Intrastate 

region) 

Receive and Surge 

Treat Casualties 

Isolation capacity 

(10-person) 

Equipment 1 Per Regional 

healthcare facility 

State Receive and Surge 

Treat Casualties 

Regional 

Pharmaceutical 

cache system 

Equipment 1 Per Public health 

region 

State Receive and Surge 

Treat Casualties 

Personal protective 

equipment (PPE) 

 Equipment 1 Per Healthcare 

provider (person) 

State/Local 

(City, Intrastate 

region) 

Receive and Surge 

Treat Casualties 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 
464 Target Capabilities List 

RESPOND MISSION: MEDICAL SURGE 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

5. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

6. Medical Personnel Exposed to Patients Contaminated With Hazardous Waste. Standard interpretation. 

Occupational Safety and Health Administration. March 1992. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609. 

7. OSHA Best Practices for Hospital-Based First Receivers of Victims from Mass Casualty Incidents Involving 

the Release of Hazardous Substances. Occupational Safety and Health Administration. January 2005. 

http://www.osha.gov/dts/osta/bestpractices/html/hospital_firstreceivers.html. 

8. Altered Standards of Care in Mass Casualty Events. AHRQ Publication No. 05–0043. Agency for Healthcare 

Research and Quality. April 2005. http://www.ahrq.gov/research/altstand/. 

9. DHS, Office for Domestic Preparedness. Metropolitan Medical Response System (MMRS) Program. 

http://fema.mmrs.gov 

10. Model Trauma System Planning and Evaluation, self-assessment tool for States, Department of Health and 

Human Services, Health Resources and Services Administration, http://www.hrsa.gov/trauma/model.htm, 

February 2006. 
Target Capabilities List 465 

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

MEDICAL SUPPLIES MANAGEMENT AND 

DISTRIBUTION 

Capability Definition 

Medical Supplies Management and Distribution is the capability to procure and maintain pharmaceuticals 

and medical materials prior to an incident and to transport, distribute, and track these materials during an 

incident. 

Outcome 

Critical medical supplies and equipment are appropriately secured, managed, distributed, and restocked in 

a timeframe appropriate to the incident. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

ESF #1: Transportation 

ESF #2: Communications 

ESF #5: Emergency Management 

ESF #7: Resource Support 

ESF #8: Public Health and Medical Services 

ESF #13: Public Safety and Security 

ESF #14: Long-Term Community Recovery and Mitigation 

ESF #15: External Affairs 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.C1c 1.2 Develop plans for establishing staging areas for internal and external medical response 

personnel, equipment, and supplies 

Res.C1c 1.2.3 Establish strategies for transporting materials through restricted areas, quarantine lines, law 

enforcement checkpoints and so forth that are agreed upon by all affected parties 

Res.C1c 1.3 

Obtain demographic/health-related data to plan for the types of medications, durable medical 

equipment, or consumable medical supplies that may need to be provided during an event 

(including supplies needed for populations requiring functional or medical care) 

Res.C1c 1.1.1 In coordination with the appropriate agencies, develop processes for ensuring the distribution of 

medical supplies to shelters 

Res.C1c 1.4 Establish procedures for billing and reimbursement of the medication/equipment/supplies that 

are dispensed 
466 Target Capabilities List

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Preparedness Measures Metrics

Emergency public health and medical material distribution plans are in place Yes/No 

Hazard-specific response plan identifies and prioritizes resource needs Yes/No 

Plans for the procurement, rotation and maintenance of Federal, State, local stockpiled assets 

or private/commercial inventories are implemented 

Yes/No 

Plans address storage of supplies (e.g. secure, climate controlled).\ Yes/No 

Medical treatment facilities and State, county and local governments have coordinated with 

medical distributors to develop preplanned worst-case scenario orders that reflect differing 

needs for various possible scenarios (chemical, biological attacks, natural disaster) 

Yes/No 

Frequency with which pre-plan worst-case scenario orders are reviewed and updated Every 6 months 

Processes for obtaining and distributing medication, DME, and/or CMS 

address what medication/equipment/supplies should be stockpiled versus obtained just in 

time 

Yes/No 

Processes for obtaining and distributing medication, DME, and/or CMS address sources of 

medication/equipment/supplies (e.g., vendors, medical facilities, strategic stockpiles) 

Yes/No 

Processes for obtaining and distributing medication, DME, and/or CMS address staging 

locations and distribution sites 

Yes/No 

Processes for obtaining and distributing medication, DME, and/or CMS address transport of 

medication/equipment/supplies to staging locations and distribution sites 

Yes/No 

Processes for obtaining and distributing medication, DME, and/or CMS address re-supply of 

medication/equipment/supplies 

Yes/No 

Medical treatment facilities and State, county and local government plans reflect input from 

local and regional sources of potential medical supplies and pharmaceuticals to lower 

dependency on Federal assets 

Yes/No 

Plans for assuring physical security of medical materiel in transport and distribution are in 

place 

Yes/No 

Distributors’ plans and logistical systems to identify potential sources of excess in their 

supply chains that might be diverted to higher need locations are in place 

Yes/No 

Manufacturers memoranda of understanding (MOUs) to determine collective inventory 

accessibility and to ramp up manufacturing capability as needed are in place 

Yes/No 

Frequency with which the Federal Government receives updates from distributors and 

manufacturers on the status of critical items that would prove necessary in a large scale 

incident with the focus on likely shortage and bottleneck situations 

Every 3 months 

Increased inventory levels of critical items are maintained by medical suppliers, equipment, 

and pharmaceutical manufacturers and distributors working in conjunction with the 

government 

Yes/No 

Stockpile includes supplies and pharmaceuticals for special populations (i.e. pediatrics and 

geriatrics) 

Yes/No 

Jurisdiction has identified locally available sources of critical medical supplies to use prior 

to arrival of external (State/Federal) resources 

Yes/No 

Jurisdiction has acquired and established access, through memoranda of understanding 

(MOUs), contracts or established supply depots, to effective pharmaceuticals (including 

medical gases) and medical material in accordance with forecasted needs 

Yes/No 
Target Capabilities List 467 

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Plans address unused resources and disposal of waste materials generated by medical 

supplies warehousing operations. 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.C1c 2.1.1 Provide training on various types and models of medical supplies likely to be used in an 

emergency situation through government grants and industry-sponsored workshops 

Res.C1c 2.2.1 

Establish and regularly exercise plans for transporting medical material assets at the Federal, 

State, local, and private/commercial levels with specific focus on their transfer between various 

levels or organizations 

Preparedness Measures Metric

Frequency with which NIMS-compliant courses are held to train emergency coordinators 

on plans and procedures 

Every 12 months 

Frequency with which NIMS-compliant exercise is conducted to ensure that plans and 

procedures are understood and executable 

Every 12 months 

Performance Tasks and Measures/Metrics 

Activity: Direct Medical Supplies Management and Distribution Tactical Operations 

Definition: In response to a need for medical assets, provide overall management and 

coordination for Medical Supplies Management and Distribution

Critical Tasks

Res.C1c 3.1 Provide medical supply management and distribution support to incident response operations 

according to Incident Management Team (IMT) assignments in the incident action plan (IAP) 

Res.C1c 3.2.1 Request Strategic National Stockpile assets from Centers for Disease Control 

Res.C1c 3.2.3 Coordinate and obtain external resources for sustained operations of medical supplies 

management and distribution 

Res.C1c 3.4 Maintain communications with transportation vendors during distribution of medical supplies 

Res.C1c 3.2.4 Coordinate acquisition of private source medical supplies 

Res.C1c 3.2.5 Coordinate with medical surge operations and the American Association of Blood Banks 

(AABB) Task Force to identify supply levels at the supporting medical facilities for the incident 

Res.C1c 3.3 Monitor supply usage and stockpile levels of health facilities, mass prophylaxis sites, and other 

critical care venues 

Res.C1c 3.2.7 Ensure the timely provision of medical supplies to shelters and mass care and medical facilities 

Res.C1c 3.2.8 Provide personnel for shelters and mass care and medical facilities 

Res.C1c 3.2.6 Monitor stockpiles levels of medical supplies maintained by private sources 

Res.C1c 3.3.1 Process and manage requests for additional medical supply personnel or equipment 
468 Target Capabilities List

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Res.C1c 3.2 Provide logistics support for medical supplies management and distribution 

Res.C1c 3.5 Provide for financial management and reimbursement of medical supplies 

Res.C1c 3.5.1 Coordinate with Center for Disease Control for return of unused Federal assets 

Performance Measures Metric

Time in which Strategic National Stockpile (SNS) is requested following medical 

surveillance indication of requirement 

Within 6 hours from 

indication 

Activity: Activate Medical Supplies Management and Distribution 

Definition: Upon identification of medical resource shortfalls and/or SNS deployment, activate 

warehousing operations

Critical Tasks

Res.C1c 4.1 Establish medical supplies warehouse management structure 

Res.C1c 4.2 Activate warehousing operations for receipt of medical assets 

Res.C1c 4.3 Identify needed transportation assets for medical supplies 

Res.C1c 4.4 Identify Technical Advisory Response Unit (TARU) team resource needs 

Res.C1c 4.5 Provide and coordinate the use of emergency power generation services at medical supply 

warehouse locations 

Performance Measures Metric

Time in which Federal medical assets warehouse are activated and fully staffed Within 6 hours from 

approved request 

Time in which local supplies arrive at warehouse (to be used until Federal/State assets 

arrive) 

Within 2 hours from 

request 

Percent of medical supplies and pharmaceuticals that are properly maintained and 

arrived in undamaged, serviceable condition and within the expiration date indicated 

on each container (bottle, case, vial, etc.) 

100% 

Time in which backfill of medical support packages from Strategic National Stockpile 

(SNS) is initiated 

Within 36 hours 

Activity: Establish Security 

Definition: Upon activation of warehouse, activate Medical Supplies Management and Distribution 

Security Plan

Critical Tasks

Res.C1c 5.3.1 Execute plan for credentialing medical supplies personnel 

Res.C1c 5.2.1 Ensure security meets medical assets at point of entry into State 

Res.C1c 5.3.2 Identify locations that require increased security within the warehouse (such as controlled 

substance storage areas) 

Res.C1c 5.2.2 Establish security checkpoints in vicinity of medical supplies warehouse and at staging areas 
Target Capabilities List 469 

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Performance Measures Metric 

Percent of appropriate security (e.g. U.S. Marshals, state police, county sheriff, city police) and 

credentialing provided at all steps of transportation of pharmaceuticals and supplies 

100% 

Activity: Repackage and Distribute 

Definition: After delivery of medical assets to warehouse facility, repackage pharmaceuticals and 

other assets and distribute to Points Of Distribution (PODs) and other health facilities

Critical Tasks

Res.C1c 6.2 Assemble medical supplies warehouse teams (receiving, order management, picking, packaging, 

quality control, and shipping) 

Res.C1c 6.3 Inventory medical supplies warehouse resource levels 

Res.C1c 6.4 Provide quality control/quality assurance for requested medical assets prior to shipping 

Res.C1c 6.5 Track re-supply requests for medical supplies 

Rec.C1c 6.6 Distribute medical supplies to Points of Distribution (POD), health facilities, and shelters 

Performance Measures Metric

Time in which medical resources/SNS at warehouse arrive at points of 

distribution (PODs) 

Within 12 hours from arrival at 

warehouse 

Time in which additional medical assets are delivered to POD or other 

health facility 

Within 36 hours from approval of 

request for re-supply 

Activity: Recover Medical Resources 

Definition: As warehousing activities diminish, activate plan to recover unused medical resources

Critical Tasks

Res.C1c 7.1 Ensure recovery of unused (unopened) pharmaceuticals from Receipt, Storage and Staging site 

(RSS), and unused pharmaceuticals and durable items from mass prophylaxis sites 

Res.C1c 7.2 Distribute unused but open medical resources within the local health system according to local 

policies and plans 

Performance Measures Metric

Percent of unused medical assets recovered 100% 

Activity: Demobilize Medical Supplies Management and Distribution 

Definition: Inventory, reorganize, and reconstitute stockpiles to return to pre-incident levels, and 

release personnel from Medical Supplies Management and Distribution duties

Critical Tasks

Res.C1c 8.1 Execute plan to reduce medical supplies warehouse operations as distribution needs ease 
470 Target Capabilities List

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Res.C1c 8.2 Dispose of waste materials generated by medical supplies warehousing operations 

Performance Measures Metric

Percent of medical waste materials disposed of in accordance with applicable State laws and 

regulations 

100% 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations 

Center Management 

Medical Supplies Management and the Emergency Operations Center communicate 

operational and resource needs to one another. 

On-Site Incident 

Management 

On-Site Incident Management identifies medical resource shortages and issues and 

communicates this to Medical Supplies Management. 

Emergency Public Safety 

and Security Response 

Emergency Public Safety and Security Response provides perimeter security for 

Medical Supplies and Management, including transport, warehouse, and distribution site 

security. 

Mass Care (Sheltering, 

Feeding, and Related 

Services) 

Medical Supplies Management provides the stockpiling, storage, and distribution of 

medication, durable medical equipment, and consumable medical supplies that may be 

needed at general population shelters and functional and medical support shelters. 

Critical Resource 

Logistics and 

Distribution 

Critical Resource Logistics and Distribution provides non-medical resources to Medical 

Supplies Management 

Mass Prophylaxis Following a re-supply request from Mass Prophylaxis, Medical Supplies Management 

provides the request medical resources. 
Target Capabilities List 471 

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Direct Medical 

Supplies 

Management 

and Distribution 

Tactical 

Operations

End: Return to pre-incident 

“ready” status

Activate Medical 

Supplies 

Management and 

Distribution

Start: Indication of 

local medical 

resources nearing 

depletion 

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Identify medical resource 

shortfall(s)

Ready to open warehouse

Warehouses ready to receive assets

Establish Security

On-Site Incident 

Management

Emergency 

Operations 

Center 

Management

Demobilize 

Medical Supplies 

Management and 

Distribution

Resources repackaged and 

ready for transport

Recover Medical 

Resources

Delivery of SNS and medical 

assets to warehouse

Medical resources 

returned appropriately

Provide finalized tracking report

Medical resource shortages 

and issues identified

Repackage and 

Distribute

Perimeter security provided

Critical Resource 

Logistics and 

Distribution

Non-medical 

resources provided

Non-medical resources provided

Mass 

Prophylaxis

Medical resources provided

Re-supply requested

Notification of incoming resources

Communicate needs

Re-supply requested and delivered

Medical Supplies Management and 

Distribution Capability

Capability Activity Process Flow

Linked 

Capabilities Relationship

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)

Provide the stockpiling, 

storage, and distribution 

of medical supplies 

at shelters

Emergency 

Public Safety and 

Security Response
472 Target Capabilities List

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Resource Element Description 

Resource Elements Components and Description

Stockpile Content Management 

Group 

Experts in medicine and public health to determine what is required in the 

various stockpiles or needs to be supplemented in the existing supply chain, 

e.g., Pharmaceuticals Management Group, Medical Supplies Management 

Group, Laboratory Supplies Management Group 

Strategic National Stockpile 

(including Vendor Managed 

Inventory) 

12-hour Push Package of pharmaceuticals, antidotes, and medical supplies; may 

include follow-on vendor managed inventory (VMI) supplies. Store and 

maintain medical materiel required for all hazards response. 

National Medical Equipment and 

Supplies Stockpile 

Medical equipment and supplies necessary for a comprehensive all hazards 

response that are not currently accounted for in the Strategic National Stockpile 

at quantities determined by robust modeling tools and input from experts in the 

field 

State Pharmaceutical and Supply 

Stockpiles 

Local Pharmaceutical and 

Supply Stockpiles 

SNS Technical Advisory 

Response Unit (TARU) 

The Health and Human Services Strategic National Stockpile program teams of 

emergency responders and logistics experts who arrive with the first shipment 

of the SNS to provide technical assistance related to receipts of medical material 

from SNS. Staff associated with the Strategic National Stockpile that can 

coordinate delivery and distribution of stockpile assets with State and local 

officials 

Receipt, Staging, and Storage 

(RSS) site, staff, and equipment 

The warehouse (minimum 12,000 square feet, loading dock, 

temperature/humidity control, emergency electrical power, secure area for 

controlled substances) from which the SNS materiel will be received and 

distributed. Includes staff for operations management, inventory control, 

distribution dispatch, and repackaging. Includes inventory management system 

and equipment. RSS includes: 1) staff necessary to activate and manage RSS 

and 2) Material Handling Equipment and Supplies and an inventory 

management system required to efficiently run receipt, staging, and storage site 

Interagency warehouse and team Location to house critical resources as transferred from State, donated by nongovernmental organizations (NGO) and public. Includes staff necessary to 

activate, set up and manage warehouse and inventory; includes inventory 

management equipment and systems required to efficiently run warehouse. 

Team includes: 1) staff necessary to activate, set up and manage warehouse and 

inventory and 2) inventory management equipment and systems required to 

efficiently run warehouse. 

National Tracking System National system that captures and tracks resource availability -- includes locally 

managed tracking systems to feed into the larger system 

Federal Staging Area Locations at incident site to receive Federal assets 

Transportation vehicles and 

personnel 

To move large amounts of critical resources (trucks, planes, boats, trains) 

Transportation Coordinator Per National Response Plan (NRP) Emergency Support Function #1 (ESF#1); 

coordinates critical resource transportation needs between Federal, State, local 

and private agencies and organizations 
Target Capabilities List 473 

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Resource Elements Components and Description

Security personnel Provides required physical security to pharmaceuticals and medical supplies 

while stockpiled prior to an incident, in transit to and incident and while on-site 

during an incident 

All –Hazards Core Supply 

Formulary 

Basic supplies needed for each adult casualty in any type of disaster scenario. 

Supplies may include: 

• Instruments/ Equipment (BP Cuffs, Disposable; BP Manometer; BatteriesAA, AAA, D, C, 1 gross per incident; Artificial Resuscitator Bag, 10% 

child, 5% infant). 

• Sharps: NDL/ Syringes (10cc Needless Syringes; 60cc Needless Syringes; 

3cc 23 G1” Safety Syringes; 3cc 23 G1 1/2” Safety Syringes TB Syringes; 

Insulin Syringes; Blunt Plastic Cannula; Lever Lock Cannula; 18G 11/2” 

Safety Needles; 20G 11/2” Safety Needles; Sharps Container; 20G IV 

Start Catheter; 18G Start Catheter; Winged Infusion Set 23GA &25GA). 

• Irrigation Solutions (Normal Saline Irrigation Solution- 2000cc; Sterile 

Water Irrigation Solution- 2000 cc). 

• IV Access/ Supplies (IV Start Kits; Micro Drip Tubing; Adult Drip 

Tubing; Blood Admin. Tubing; Disposable IV Pressure Bag; Metri Set 

Tubing; Arterial Line Tubing). 

• IV Solutions (LR 1000cc; NS 1000cc; Central Vein Catheter Kit; Multi 

Lumen Central Catheter Kit; Long Arm Board; Short Arm Board; 

Stopcock). 

• Linen (Disposable Sheets; Disposable Pillows; Disposable Pillow Covers). 

• Hand Hygiene (Providine/Iodine Scrub Brushes; PCMX Scrub Brushes- 1 

box per 100 casualties). 

• Patient Personal Care Supplies (Bath Basin; Emesis Basin; Facial Tissues; 

Bedpan; Urinal; Belonging Bag; Regular Soap; Mouth Care Supplies). 

• Miscellaneous (Sterile Lubricant; Alcohol Wipes; PVP Wipes; Tongue 

Depressors; 5 in 1 Connectors; Garbage Liners; Blood Glucose Testing 

Supplies; Waterproof Markers; Body Bag- 25 per 100 casualties; Blank 

Labels/ Tags; Individual Bottled Drinking Water). 

All Hazards Pediatric Supply 

Formulary 

Basic supplies needed for each pediatric casualty in any type of disaster 

scenario. Supplies may include: 

• Instruments/ Equipment (Disposable BP Cuffs- Neonatal, Infant, Child, 

Small Adult; Artificial Resuscitator Bag Masks- Ped, Infant). 

• Patient Personal Care Supplies (Bath Basin, Cotton Swabs; Facial Tissues; 

Diapers; Pacifier; Belonging Bag; Cotton Balls). 

• Respiratory System Supplies (Nasal Airways; Oral Airways; Oxygen 

Cannulas; Oxygen Masks). 

• ER/Trauma/Surgical Supplies (Scalpel #11; Sutures-to be ordered 

individually, by box; General Instruments Tray; Facial Suture Tray; Chest 

Drainage System; Buretol Tubing-60 drops; Thoracostomy Tray; Chest 

Tubes- 8, 10, 12, 24, 32; Thoracic Catheter with Tubing and Container; 

Sterile Towels; Sterile Sheets; Small Sterile Basins; Electrodes; 

Monitoring Electrodes). 

• Dressings (Bandage Scissors; 2X2 Dressings; 4X4 Dressings; Adhesive IV 

Dressing; 4” Bandage Rolls; 1” Paper Tape; Adhesive Bandages). 
474 Target Capabilities List

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Resource Elements Components and Description

• Linen (Disposable Sheets; Disposable Pillows; Disposable Pillow Covers). 

• Muscle/ Skeletal Supplies (Limb Restraints). 

• GI System Supplies (Anti-Reflux Valve- 10, 12, 14; Feeding Tubes- 5,8). 

• Sharps: NDL/ Syringes (Bulb Syringes; Safety Syringes- 21, 25; Filter 

Needles; Catheter Tip Syringe 60cc; Sharps Container; Luer Lock 

Syringes- 20cc, 60cc; Syringes- 1, 3, 5, 10cc). 

• IV Access/ Supplies (IV Start Kits; Stopcock; T-Connector; IV Start 

Catheter- 18, 20, 22, 24; Arm Boards- Infant, Child; Blood Administration 

Tubing; IV Filters-.22 micron, 1.2 micron; Syringe Pump Tubing; Micro 

Drip Tubing). 

• IV Solutions (Glucose Water; NS 10cc; NS 1000cc). 

• Irrigation Solutions (Normal Saline Irrigation Solution- 2000cc; Sterile 

Water Irrigation Solution- 2000 cc). 

• Miscellaneous (Sterile Lubricant; Alcohol Wipes; Alcohol Swab Sticks; 

Tongue Blades; Heel Warmers; Tape Measure; Body Bag; Disposable 

Linen Savers; Safety Pins; Povodine Iodine Swab Sticks; Povodine Iodine 

Wipes; Hydrogen Peroxide; Individual Bottled Drinking Water). 

Chemical Disaster Supply 

Formulary 

Supplies needed to supplement the Core or Pediatric Formulary for chemical 

disasters. Supplies may include: 

• Respiratory System Supplies (ABG Kits; Nasal Airways- 6.5, 7.0, 7.5, 8.0- 

1 box per 100; Oral Airways-3, 4, 6-1 box per 100; Oxygen Cannulas; 

Oxygen Masks; Yankauer Suction Tips; Connecting Tubing; Suction 

Kit/Cup 14FX22). 

• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers). 

• Irrigation Solution (Sterile Water Irrigation Solution 3000cc). 

• Miscellaneous (Disposable Sheet; Balanced Salt Solution). 

Biological Disaster Supply 

Formulary 

Supplies needed to supplement the Core or Pediatric Formulary for biological 

disasters. Supplies may include: 

• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers). 

• Miscellaneous (50 Micron Mask; Stomach Tube). 

Radiological Disaster Supply 

Formulary 

Supplies needed to supplement the Core or Pediatric Formulary for radiological 

disasters. Supplies may include: 

• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers). 

• Irrigation Solution (Sterile Water Irrigation Solution 3000cc). 

• Miscellaneous (Disposable Sheet; Balanced Salt Solution). 

Nuclear Disaster Supply 

Formulary 

Supplies needed to supplement the Core or Pediatric Formulary for nuclear 

disasters. Supplies may include: 

• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers). 

• Irrigation Solution (Sterile Water Irrigation Solution 3000cc). 

• Miscellaneous (Disposable Sheet; Balanced Salt Solution). 

Explosive Disaster Supply 

Formulary 

Supplies needed to supplement the Core or Pediatric Formulary for explosive 

disasters. Supplies may include: 
Target Capabilities List 475 

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Resource Elements Components and Description

• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers). 

• ER/Trauma/Surgical Supplies (Scalpel Blade Holer-#3, #4; Scalpel 

Blades- #10, #11, #15, #20; Disposable Safety Scalpel #15; Suture Sets; 

Silk & Gut Sutures- ordered in bulk by facility; Thoracostomy Tray; 

Peritoneal Lavage Tray; Chest Tubes- 12, 24, 28, 36; Chest Drainage Tube 

with Container; Sterile Towels; Sterile Sheets; Large Sterile Basin; Small 

Sterile Basin; Trocar Chest Tube; Skin Stapler; Electrodes; Tracheotomy 

Kit). 

• Dressings (Bandage Scissors; Impregnated Dressing; 3” Dressing; ABD 

Pads; 4X4 Dressing; Self Adhering Dressing; 4X4 Sponges; 4” Bandage 

Rolls; 3” Elastic Bandage; 4” Elastic Bandage; 6” Elastic Bandage; Sterile 

Cotton Applicators; 2” Porous First Aid Tape; 3” Porous First Aid Tape; 

Adhesive Bandages; 1” Paper Tape). 

• GI System Supplies (Piston Irrigation Sets; Gastric Lavage Kits; AntiReflux Valve- 8, 12, 18). 

• Irrigation Solutions (Normal Saline Irrigation Solution- 2000cc; Sterile 

Water Irrigation Solution- 2000 cc). 

• Muscle/Skeletal Supplies (Medium Slings; Large Slings; Small Cervical 

Collars; Universal Cervical Collars: Knee Immobilizers; Wrist Restraints; 

Restraint Belts; OCL Splints Plaster; Plaster Impregnated Gauze Roll 4”). 

Staff Supply Formulary Supplies needed for each hospital person in a disaster. Supplies may include: 

• Hand Hygiene (Personal Hand Foam Sanitizer). 

• Protective Gear (Sterile Gloves- all sizes- 1 box per 100 casualties; Exam 

Gloves, Medium- 1 box per 25 casualties; Latex Free Gloves Medium- 1 

box per 25 casualties; Fluid Resistant Gowns; Masks; Goggles; Shields; 

Balanced Salt Solution for Eye Wash; Isolation Gown- 4 per staff 

member; Fluid Resistant Gowns- 1 per staff member; hair Cover; Liquid 

Scrub Soap; Individual Bottled Drinking Water). 

Planning Assumptions 

 For contagious and/or pandemic diseases (and possibly other scenarios), there will be limited or no 

implementation of cooperative agreements due to quarantine or actual or perceived contamination 

and/or widespread infection. 

 Prior to dying, many people would use considerable healthcare resources because of their critical 

condition at admission. 

 Existing medical devices (e.g., ventilators, respiratory equipment) will be inadequate. Manufacturers 

of large, expensive medical devices typically manufacture product on an “as needed” basis with a 

minimum of a 2–4 week lag time. Even surge production capacity is likely to be inadequate for shortterm requirements. 

 Surge capacities of pharmaceutical and medical product manufacturers and distributors will diminish 

compared with projected capabilities due to high absenteeism in all commercial sectors resulting from 

employees being directly affected by the scenario or choosing to stay home with families. 

 Development of plans, procedures, and protocols for resource management in accordance with the 

National Incident Management System (NIMS) (Res.B.1.5) will be outlined within the Planning 

capability. 
476 Target Capabilities List

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

 Transport of medical supplies, pharmaceuticals, and laboratory supplies from federally controlled 

sources to the Federal mobilization base camp is the responsibility of the Federal Government. 

 Transport of medical supplies, pharmaceuticals, and laboratory supplies from a Federal mobilization 

base camp to the State staging area is the responsibility of the State unless otherwise negotiated with 

the Federal Government. 

 The originating entity is responsibly for transporting non-federally owned supplies to an interagency 

warehouse unless otherwise negotiated with Federal or State organizations. 

 Any of the services, performance measures, or capabilities can and should be applied to the supply 

chain for laboratory testing materials as well. Although this does not necessarily fall directly under 

medical supplies, it is crucial that the diagnostic supplies to support medical functions are not 

forgotten or ignored. 

 The capability to keep track of potential shortages of critical drugs during a large-scale event already 

exists within the Food and Drug Administration’s Center for Drug Evaluation and Research. This 

program can serve as a viable model for beginning such a program with medical supply distributors 

and manufacturers. This process absolutely must be initiated as soon as possible with the government 

providing necessary assurances to maintain commercial confidentiality. Destruction of physical 

structures over large areas will result in structures without permanent addresses which complicates or 

prohibits shipment of DEA scheduled drugs (controlled substances). Planning for alternatives should 

be initiated. 

 During large scale contaminating event (CBNRE), provisions need to be made for transition of large 

volume of medical supplies into warm/hot zones without losing use of vehicles to contamination. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Stockpile Content 

Management Group 

 Continuous open dialogue to 

determine the current requirements 

3 management groups 

Strategic National 

Stockpile (including 

vendor managed 

inventory) 

 Response capability will leverage 

both Federal stockpiles and 

commercial capabilities. 

Resource quantities needed must 

be determined by robust modeling 

tools to estimate stockpiles 

requirements based on the national 

planning scenarios and anticipated 

resultant patients/populations 

Strategic National 

Stockpile Technical 

Advisory Response 

Unit (TARU) 

 1 Technical Advisory Response 

Unit per State/municipality 

receiving stockpile assets directly 

from stockpile 

State Staging Area 

(Receipt, Staging, and 

Storage Site, RSS) 

 2 receipt, staging, and storage sites 

per State 

Minimum of 2 receipt, staging, and 

storage sites per State 

Interagency warehouse Establish warehouse sites as 

necessary based on volume of 

donated goods 

1 warehouse minimum, based on 

incident need 
Target Capabilities List 477 

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources 

Needed 

Transportation vehicles 

and personnel 

 Climate controlled and non-climate 

controlled transport capacity for all 

pharmaceuticals, and medical and 

laboratory diagnostic supplies 

Volume capacity of vehicle 

multiplied by amount of resource 

needed 

Transportation 

Coordinator 

 Scenario will require resources 

from all over to help support the 

incident, therefore coordinator will 

need to have overarching 

capability to monitor and 

troubleshoot movement of 

resources 

1 to sit in Emergency Operation 

Center (EOC) / can be component 

Emergency Support Function 

(ESF) #1 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

National Medical 

Equipment and 

Supplies Stockpile 

Equipment 1 Federal Repackage and 

Distribute 

State 

Pharmaceutical and 

Supply Stockpiles 

Equipment State Repackage and 

Distribute 

Local 

Pharmaceutical and 

Supply Stockpiles 

Equipment 20% 

increase 

Increase over usual 

supply at local 

medical treatment 

facilities 

Local Repackage and 

Distribute 

SNS Technical 

Advisory Response 

Unit (TARU) 

Federal 

Resource 

Organization 

1 Per 

State/municipality 

receiving stockpile 

assets directly from 

stockpile 

Federal Establish Security 

Repackage and 

Distribute 

Receipt, Staging, 

and Storage (RSS) 

site, staff, and 

equipment 

Resource 

Organization 

2 Minimum per State 

& territory 

State Repackage and 

Distribute 

Establish Security 

Interagency 

warehouse 

Non-NIMS 

Resource 

Organization 

1 Per incident Local Repackage and 

Distribute 

Establish Security 

National Tracking 

System 

Network 1 Nationally, 

including 

jurisdictional 

components 

Federal Direct Tactical 

Operations 

Recover Resources 
478 Target Capabilities List

RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Federal Staging 

Area 

Resource 

Organization 

 Not pre-established Federal Repackage and 

Distribute 

Establish Security 

Transportation 

Vehicles and 

Personnel 

Vehicle Depends on incident 

need 

Federal/ State/ 

Local 

Repackage and 

Distribute 

Recover Resources 

Transportation 

Coordinator 

Personnel 1 per EOC Federal/ State/ 

Local 

Repackage and 

Distribute 

Recover Resources 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Sector Specific Plan for the Healthcare and Public Health Sector. U.S. Department of Health and Human 

Services. June 2005. 

5. Modular Emergency Medical System: Concept of Operations for the Acute Care Center. U.S. Army Soldier and 

Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003. 

6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 

2004.www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

7. Strategic National Stockpile. Centers for Disease Control and Prevention. January 2005. 

www.bt.cdc.gov/stockpile. 

8. Mass Antibiotic Dispensing-Managing Volunteer Staffing. Centers for Disease Control and Prevention. 

December 2004. www.phppo.cdc.gov/PHTN/webcast/antibiotic2/default.asp. 

9. Mass Antibiotic Dispensing: A Primer. Centers for Disease Control and Prevention. June 2004. 

www.phppo.cdc.gov/phtn/antibiotic/default.asp. 

10. National Disaster Medical System. U.S. Department of Homeland Security. 2004. www.ndms.dhhs.gov/. 

11. DHS, Office for Domestic Preparedness, Major Metropolitan Response System (MMRS) Program. 

http://fema.mmrs.gov. 

12. “Medical-Surgical Supply Formulary by Disaster Scenario” Presented by the Association for Healthcare 

Resource & Material Management, the Health Industry Distributors Association, and the Health Industry Group 

Purchasing Association. 
Target Capabilities List 479 

RESPOND MISSION: MASS PROPHYLAXIS 

MASS PROPHYLAXIS 

Capability Definition 

Mass Prophylaxis is the capability to protect the health of the population through the administration of 

critical interventions in response to a public health emergency in order to prevent the development of 

disease among those who are exposed or are potentially exposed to public health threats. This capability 

includes the provision of appropriate follow-up and monitoring of adverse events, as well as risk 

communication messages to address the concerns of the public. 

Outcome 

Appropriate drug prophylaxis and vaccination strategies are implemented in a timely manner upon the 

onset of an event to prevent the development of disease in exposed individuals. Public information 

strategies include recommendations on specific actions individuals can take to protect their family, 

friends, and themselves. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the Emergency Support Function: 

(ESF) #8: Public Health and Medical Services 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.C2a 1.1 Create plans and systems for mass prophylaxis patient movement and tracking 

Res.C1c 1.1 Create plans and systems for the transport and tracking of medical supplies and equipment 

Res.C2a 1.2 Develop procedures for obtaining mass prophylaxis supplies from the receipt, staging, and 

storage (RSS) sites in coordination with the Medical Supplies and Distribution Capability 

Res.C2a 1.3 Develop plans, procedures, and protocols for mass prophylaxis dispensing operations 

Res.C2a 1.3.3 Develop the tactical communications portion of the mass prophylaxis dispensing plan 

Res.C2a 1.3.2 Develop a mass prophylaxis inventory management system 

Res.C2a 1.3.1 Develop procedures for the distribution and dispensing of mass prophylaxis 

Res.C2a 1.4 Develop processes to ensure that first responders, public health responses, critical infrastructure 

personnel, and their families receive prophylaxis prior to POD opening 

Res.C2a 1.4.1 Develop processes for coordinating with treatment centers 

Res.C2a 1.4.2 Establish protocols for individuals receiving medications (e.g., number of doses, identification 

requirements, etc.) 

Res.C2a 1.4.3 Establish processes for obtaining and distributing investigation new drug (IND) consent forms at 

POD sites 
480 Target Capabilities List

RESPOND MISSION: MASS PROPHYLAXIS 

Res.C2a 1.5 Develop credentialing mechanisms for volunteers and staff at mass prophylaxis dispensing sites 

Res.C2a 1.5.1 Develop programs to ensure security of mass prophylaxis during dispensing operations 

Res.C2a 1.6 Identify and address legal issues regarding authorizations for mass prophylaxis practitioners 

Res.C2a 1.3.3.1 

Establish processes for communicating with the public regarding nature of event and mass 

prophylaxis operations in coordination with Emergency Public Information and Warning 

Capability, 

Preparedness Measures Metric

Percent of state/local plans that contain elements included in the State/Local SNS 

Assessment Tool 

100 % 

Mass prophylaxis plan is incorporated into overall emergency response plan Yes/No 

Plan addresses requesting and receiving Mass Prophylaxis from the State and/or CDC. Yes/No 

Plan addresses the distribution of mass therapeutics (e.g. Points of Dispensing, medical 

supplies, staffing, security). 

Yes/No 

Plan addresses cultural characteristics of populations to be treated (e.g. religious needs, 

language barriers). 

Yes/No 

Plan addresses the provision of prophylaxis to special needs populations (e.g. disabled 

people, quarantined individuals, people requiring ongoing medical support). 

Yes/No 

Plan addresses infection control measures to protect staff and patients (e.g. medical 

screening is performed in separate area away from mass prophylaxis site). 

Yes/No 

Frequency with which mass prophylaxis plan is reviewed and updated Every 12 months 

Mass prophylaxis plan incorporates input from all relevant stakeholders, including health 

department, emergency management agency, public works, department of transportation, 

law enforcement, EMS, fire, hospitals, military installations, department of finance) 

Yes/No 

Treatment center point of contact is identified and documented in mass prophylaxis plan Yes/No 

Mass prophylaxis plan provides authorization for practitioners to issue standing orders 

and protocols for dispensing sites 

Yes/No 

Mass prophylaxis plan provides authorization for practitioners to dispense medications Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.C2a 2.1 Develop and implement training for mass prophylaxis operations 

Res.C2a 2.1.1 Conduct training of all key personnel on fundamentals of NRP, ICS and NIMS 

Res.C2a 2.1.2 Develop and implement training for key personnel on tactical communications during mass 

prophylaxis operations 

Res.C2a 2.1.3 Develop and implement training on public information and communication for mass prophylaxis 

operations 

Res.C2a 2.1.4 Develop and implement training on security of mass prophylaxis 

Res.C2a 2.1.5 Develop and implement training for mass prophylaxis inventory management 
Target Capabilities List 481 

RESPOND MISSION: MASS PROPHYLAXIS 

Res.C2a 2.1.6 Develop and implement training for mass prophylaxis repacking, distribution, and dispensing 

Res.C2a 2.2 Create and implement plans and drills for mass prophylaxis 

Preparedness Measures Metric

Exercises evaluate the tactical communications portion of the mass prophylaxis plan Yes/No 

Exercises evaluate the public information and communication portion of the mass 

prophylaxis plan 

Yes/No 

Exercises evaluate the mass prophylaxis plan procedures to maintain security Yes/No 

Exercises evaluate the mass prophylaxis inventory management system plan Yes/No 

Exercises evaluate the mass prophylaxis plan procedures to distribute prophylaxis Yes/No 

Exercises evaluate the mass prophylaxis dispensing procedures Yes/No 

Exercises evaluate the treatment center coordination plan Yes/No 

Frequency with which all key emergency and public health personnel to include Leaders 

and POD Managers are trained in accordance with identified training plans 

Every 12 months 

Frequency with which at least one full scale POD exercise to test Mass Prophylaxis 

capability is conducted 

 Every 12 months 

Performance Tasks and Measures/Metrics 

Activity: Direct Mass Prophylaxis Tactical Operations

Definition: In response to notification of a mass prophylaxis incident, provide overall management 

and coordination of mass prophylaxis operations

Critical Tasks

Res.C2a 3.2 Coordinate dispensing/administration of mass prophylaxis 

Res.C2a 3.4 Coordinate public information releases regarding location of PODs 

Res.C2a 3.3.1 Coordinate with the Medical Supply and Distribution Capability to ensure that medical stockpile 

warehouses can re-supply Points of Dispensing (PODs) as needed 

Res.B3b 3.2.2 Coordinate with public information agencies to disseminate health and safety information to the 

public 

Res.B3b 3.3.2 Coordinate mass prophylaxis to functional and medical support sheltering locations for special 

needs populations 

Res.C2a 3.3.4 Coordinate with law enforcement to provide security to protect medicines, supplies, and public 

health personnel 

Res.C2a 3.5 Establish and maintain tactical equipment and communication networks including establishing 

redundant systems 

Res.C2a 3.2.4 Coordinate Point of Dispensing (POD) locations and hours of operations 

Res.C2a 3.2.5 Establish shift change procedures to ensure continuity of operations 

Performance Measures Metric

Percent of public health personnel who arrive safely within target timeframe to perform 

capability 

100% 
482 Target Capabilities List

RESPOND MISSION: MASS PROPHYLAXIS 

Percent of PODs that completely deplete all medical resources prior to re-supply 0% 

Time in which public is provided with accurate and consistent information messages 

regarding POD locations 

Within 4 hours from 

POD opening 

Testing and functionality of tactical equipment and communication networks is 

demonstrated and documented 

Yes/No 

The availability of the intervention is not affected by supply chain or other logistical 

problems 

Yes/No 

Percent of population covered by PODs that are secured, open, and prepared to serve 100% 

Activity: Activate Mass Prophylaxis Dispensing Operations

Definition: Upon notification, activate points of dispensing for mass prophylaxis operation

Critical Tasks

Res.C2a 4.4 

Implement local, regional, and State plans for distributing and dispensing prophylaxis. This 

should include procedures for requesting federal SNS assets when state and local caches and 

other available resources have been depleted 

Res.C2a 4.2.1 Initiate staff call down lists for POD operations 

Res.C2a 4.3.1 Ensure POD site operations are established in accordance with POD specific plans and protocols 

Res.C2a 4.3.2 Provide internal and external security for POD sites 

Res.C2a 4.4.1 

Have or have access to information systems that support tracking mass prophylaxis allocation 

that comply with the Public Health Information Network (PHIN) functional requirements for 

Countermeasure and Response Administration 

Res.C2a 4.2.3 Assemble needed supplies and equipment for POD operations including materials to prepare oral 

suspension 

Res.C2a 4.5 Create and assemble signage for POD 

Res.C2a 4.6 Implement the plan to provide mass prophylaxis to functional and medical support sheltering 

locations for populations with disabilities, etc. 

Performance Measures Metric

Percent of sufficient, competent personnel available to staff dispensing centers or 

vaccination clinics, as set forth in SNS plans and State/local plans 

100% 

Time for all first shift staff to be at the POD Site and ready 3 hours from 

notification 

Time for all equipment and operational supplies to be in place 4 hours from 

notification 

Percent of security forces designated in the POD specific plan who report for duty 100% 
Target Capabilities List 483 

RESPOND MISSION: MASS PROPHYLAXIS 

Activity: Establish Points Of Dispensing

Definition: Set up POD to receive members of the general public, according to POD plan

Critical Tasks

Res.C2a 5.2 Implement processes for providing prophylaxis for public health responders and their families 

prior opening POD to general population 

Res.C2a 5.3 Implement processes for providing prophylaxis for first responders and critical infrastructure 

personnel and their families prior to opening POD to general population 

Res.C2a 5.1.4 Ensure adequate staffing levels for anticipated mass prophylaxis throughput 

Res.C2a 5.6 Implement processes for obtaining and distributing mass copies of IND protocol consent forms at 

POD sites 

Res.C2a 5.5 Post signage to inform and direct the public 

Res.C2a 5.1.3.1 Implement processes to ensure the mobility impaired populations have access to PODs 

Performance Measures Metric

Percent of POD staff, first responders, and critical infrastructure personnel and their families given 

prophylaxis prior to POD opening to general public 

100% 

Percent of PODs that are easily accessible and fully functional 100% 

Percent of IND drugs dispensed that have corresponding consent forms 100 % 

Percent of population directed to appropriate stations 100 % 

Activity: Conduct Triage for Symptoms 

Definition: Conduct initial screening of individuals prior to their entering the POD 

Critical Tasks

Res.C2a 6.1.2 Establish number of triage stations to commensurate with the anticipated size of the throughput 

Res.C2a 6.1.3 Ensure symptomatic individuals are directed to appropriate treatment facility 

Res.C2a 6.2.1 Transport or direct symptomatic individuals to appropriate health facility prior to their entering 

POD sites 

Res.C2a 6.2.2 Ensure that personnel conducting triage and other persons in the area are not exposed to disease 

Performance Measures Metric

Time in which clinical staff and volunteers become available at triage station Within 4 hours from 

decision to activate site 

Transportation assets are available to bring symptomatic individuals to appropriate 

treatment facility 

Yes/No 
484 Target Capabilities List

RESPOND MISSION: MASS PROPHYLAXIS 

Activity: Conduct Medical Screening

Definition: Review patient screening documentation and available medical history to determine 

proper course of treatment

Critical Tasks

Res.C2a 7.1 Ensure proper documentation is created for each individual receiving prophylaxis 

Res.C2a 7.2 Identify appropriate prophylaxis based on medical history and exposure 

Res.C2a 7.3 Ensure sufficient staffing at the POD site screening station to prevent initial bottlenecks 

Res.C2a 7.4 Take appropriate actions for individuals for whom prophylaxis is determined to be inappropriate 

Performance Measures Metric

Time in which clinical staff and volunteers become available at medical screening station Within 4 hours from 

decision to activate site 

Proper documentation secured Yes/No 

Percent of people dispensed the appropriate drug 100 % 

Activity: Conduct Mass Dispensing

Definition: Dispense oral medication/administer vaccination according to standing medical orders 

Critical Tasks

Res.C2a 8.2.6 Dispense the appropriate medication and dosage to the population, including children, infants 

and special needs populations 

Res.C2a 8.3 Maintain a system for inventory management to ensure availability of critical prophylaxis 

medicines and medical supplies 

Res.C2a 8.3.1 Ensure adequate supply of pharmaceuticals, ancillary medical supplies and drug information 

sheets 

Res.C2a 8.3.3 Ensure availability of and distribute pre-printed drug information sheets 

Res.C2a 8.3.4 Distribute IND consent forms as needed for mass prophylaxis/vaccine administration 

Res.C2a 8.1.1 Monitor patient throughput per hour 

Performance Measures Metric

Percent of dispensing centers or vaccination clinics that are able to process patients at the 

rate (persons per hour) specified in SNS Plans and State/Local Plans 

100% 

Percent of at-risk population that was successfully provided initial prophylaxis within 48 

hours of State/local decision to provide prophylaxis 

100% 

Dispensing is not interrupted due to lack of preparation, availability of forms and 

materials and equipment 

Yes/No 

Percent of patients who are transported from station to station within times specified in 

SNS Plans and State/local plans 

100% 

Percent of parents receiving appropriate dosage and/or instructions to prepare oral 

suspensions for their children according to FDA Guidelines 

100% 
Target Capabilities List 485 

RESPOND MISSION: MASS PROPHYLAXIS 

Percent of individuals receiving appropriate medication 100% 

Activity: Monitor Adverse Events 

Definition: Through monitoring, identify individuals who have an adverse reaction to prescribed 

medication and initiate appropriate medical care

Critical Tasks

Res.C2a 9.1 Continue to track outcomes and adverse events following mass distribution of prophylaxis 

Res.C2a 9.3 Provide alternate medication as ordered by clinician 

Res.C2a 9.1.1 Access information systems that support monitoring of adverse reactions that comply with the 

PHIN functional requirements for Countermeasure and Response Administration 

Res.C2a 9.1.2 Establish a call center to triage individuals to receive appropriate medical care in case of an 

adverse effect 

Performance Measures Metric

Percent of patients who receive instructions for adverse event reaction 100% 

Adverse event monitoring system is in place Yes/No 

Number of staff or mechanisms to monitor individuals is adequate based on number of 

individuals receiving prophylaxis 

Yes/No 

Activity: Demobilize Mass Prophylaxis Operations

Definition: Upon completion, stand down POD operations, return site to normal operations, and 

release or redeploy staff

Critical Tasks

Res.C2a 10.1 Debrief POD personnel 

Res.C2a 10.2 Reconstitute POD personnel and supplies 

Performance Measures Metric

Percent of staff debriefed after mass prophylaxis distribution 100% 

Linked Capabilities 

Linked Capability Relationship 

Emergency Public Information 

and Warning 

Mass Prophylaxis provides releasable public information of POD sites and other 

relevant information to Emergency Public Information and Warning for public 

notification. 
486 Target Capabilities List

RESPOND MISSION: MASS PROPHYLAXIS 

Linked Capability Relationship 

Emergency Operations Center 

Management 

Emergency Operations Center Management provides situation reports to Mass 

Prophylaxis, which provides situation reports in return. 

Medical Supplies Management 

and Distribution 

Medical Supplies Management and Distribution provides medical assets to Mass 

Prophylaxis, including the request for SNS and the receipt, staging, and storage of 

mass prophylaxis 

Emergency Public Safety and 

Security Response 

Emergency Public Safety and Security Response provides perimeter security and 

crowd/traffic control for Mass Prophylaxis. 

Epidemiology Surveillance and 

Investigation 

Epidemiology Surveillance and Investigation provides information for Mass 

Prophylaxis. 
Target Capabilities List 487 

RESPOND MISSION: MASS PROPHYLAXIS 

Direct Mass 

Prophylaxis 

Tactical 

Operations

End: PODs closed and staff 

released

Activate Mass 

Prophylaxis

Start: Indication of 

need for mass 

prophylaxis

Emergency Public 

Information and 

Warning

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Emergency 

Operations Center 

Management

Medical Supplies 

Management and 

Distribution

SNS/Staff requested

Establish Points of 

Dispensing

Conduct Medical 

Screening

Conduct Mass 

Dispensing

Monitor Adverse 

Events

SNS deployed; staff 

ready to open POD(s)

Demobilize Mass 

Prophylaxis 

Operations

All adverse effects addressed

All persons received treatment

Ready to open POD(s) to 

public

Determine proper treatment

Perimeter security and 

crowd/traffic control 

provided

Medical assets provided

Provide sitreps

Provide information for 

public release

Provide SNS/medical assets; provide site provide 

additional staff

Conduct Triage for 

Symptoms

Asymptomatic persons 

ready for medical screening

Transport symptomatic to definitive medical care

Provide inventory management

Appropriately reduce number of POD(s) and staff 

based on need

Isolation and 

Quarantine

Provide symptomatic 

persons, as appropriate

Provide site security

Notification of dispensing complete

Linked 

Capabilities Relationship

Mass Prophylaxis Capability

Capability Activity Process Flow

Epidemiology 

Surveillance and 

Investigation

Provides information for 

Mass Prophylaxis

Emergency 

Public Safety 

and Security 

Response
488 Target Capabilities List

RESPOND MISSION: MASS PROPHYLAXIS 

Resource Element Description 

Resource Elements Components and Description

Multiagency Coordination 

Systems (MACS) 

Command and control center based on incident command system (ICS) 

functions (planning, logistics, operations, finance/administration and 

information) 

Dispensing/Vaccination Centers 

(DVC) Points of Distribution 

(PODs) 

Locations where prophylaxis will be provided. Includes all equipment and 

trained and available fulltime staff and volunteers to include: clinicians/public 

health professions; ancillary support personnel, traffic control personnel, 

security personnel, inventory assistants, and staff for storing, receiving and 

distributing federal medical supplies and equipment to fully staff 24 hour 

operations at each POD 

Prophylaxis supplies and 

materials 

Pharmaceuticals, medical supplies and materials, available from local, state and 

federal stockpiles. This may include follow-on managed inventory (MI) 

supplies 

Receiving, Staging, and Storage 

(RSS) 

Technical Advisory Response 

Unit (TARU) Teams 

Adverse event monitoring 

system 

Triage call center system and personnel equipped to address affected 

populations who have had an adverse reaction. Vaccines and drugs used under 

the IND protocol require monitoring and reporting of such adverse events. 

Monitoring and reporting the adverse effects of IND vaccines and drugs are the 

joint responsibility of designated State adverse event coordinators and the CDC 

through established mechanisms 

Countermeasure Response and 

Administration system 

Planning Assumptions 

 Assume population potentially exposed and requiring prophylaxis is 2 million in one Metropolitan 

Statistical Area (MSA). Additional geographic locations would require resource considerations 

according to population estimates in affected areas. 

 Additional illnesses will occur prior to mass prophylaxis campaign. Many people are likely to 

present who fear they might have been exposed multiple unexplained physical symptoms (MUPS). 

Due to time elapsed prior to plan execution and non-informed public. Studies show that between 4 

and 50 times as many people seek medical care after an event for MUPS than for diagnosable 

symptoms treatable by medical providers. 

 State/local medicines and medical supplies are insufficient for mass prophylaxis. 

 Federal medical assets are requested and received at each location within 12 hours from the Federal 

decision to deploy assets. 

 Adequate prophylaxis is readily available from the Strategic National Stockpile; initial 10-day 

regimen with ciprofloxacin (Cipro) or doxycycline (Doxy). Amoxicillin (10-day regimen) is also 

available based on antimicrobial sensitivity results. Goal is to protect exposed or potentially exposed 

population as quickly as possible based on current Centers for Disease Control (CDC) 

recommendations for anthrax prophylaxis. 
Target Capabilities List 489 

RESPOND MISSION: MASS PROPHYLAXIS 

 Follow-on prophylaxis with vaccine and antibiotics (50-day supply) for persons at highest risk of 

exposure based on epidemiological data and current CDC recommendations for anthrax prophylaxis. 

 State/locals have sufficient personnel to fully command or staff a mass prophylaxis dispensing 

operation. This may include assistance from Federal response teams, if requested. 

 State/locals have developed and exercised both and emergency response plan and a Mass Prophylaxis 

response plan. 

 Guidelines for post exposure prophylaxis populations will be developed by public health officials and 

subject matter experts depending on epidemiological circumstances. Decision will be based on 

estimates of timing, location and conditions of exposure. 

 Point of Distribution (POD) Staffing: Number of PODs determined assumes 24 hour operation, 

population equally distributed among PODs, performance at 100% capacity at all times, constant flow 

of people, staffing is constant and adequate. PODs should be located where easily accessible to the 

public i.e., publicly owned buildings. 

 Medical Assets/Supplies – Adequate prophylaxis and medical supplies are readily available in the 

SNS. 

 Due to limited pediatric suspension, states have established MOAs with local compounding 

pharmacies and are prepared to use the FDA’s crushing guidelines to enhance pediatric prophylaxis 

capability. 

 The regulatory mechanism for providing investigational product(s) for Mass Prophylaxis may be 

under an IND or an Emergency Use Authorization. 

 States will be prepared for both IND and EUA regulatory channels. 

 Population Centers – resources readily available for largest urban areas for duration of prophylaxis 

period. 

 Receiving, Staging, and Storing (RSS) – State/local jurisdictions with mass prophylaxis plans have 

identified a site for receiving, staging, and storing Federal assets. In some worse case scenarios, more 

than one site may need to be identified. 

 Risk Factors: 

 The occurrence of multiple events could deplete the availability of Federal stockpiled medical 

assets and Federal resources i.e., staff, supplies, etc. 

 The unavailability of staff and volunteers to operate the POD system. 

 Fear and mass panic could escalate. 

 Inadequate planning for mass prophylaxis would result in delays in response and ultimately risk 

of loss of life. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

Multiagency Coordination 

Systems (MACS) 

24 hours/7 days Number/shift Number/2–3 shifts 

Dispensing/Vaccination 

Centers (DVC) Points of 

Distribution (PODs) 

47,667 patients per 

hour (PPH) 

Prophylaxis for 2 

million 

47 DVCs (PODs) 

Receiving, Staging, and Single warehouse, Prophylaxis medicines Federal assets from SNS 
490 Target Capabilities List

RESPOND MISSION: MASS PROPHYLAXIS 

Resource 

Organization 

Estimated 

Capacity 

Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

Storage (RSS) minimum 12,000 

square feet 

for 2 million based on estimated 

number of exposed 

persons 

Technical Advisory 

Response Unit (TARU) 

Teams 

12-hour response. 1 7-9 member team for 

logistics, operations, 

and communications 

1 team per single 

geographic incident 

Adverse event monitoring 

system 

24 hours Triage call center(s) 

and personnel to 

support affected 

population 

Estimates will vary 

depending on population 

receiving prophylaxis and 

who have an adverse 

reaction 

Approaches For Large-Scale Events 

The information and analysis included in this capability reflects only one of the 15 scenarios - aerosolized 

anthrax.

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Multiagency 

Coordination 

Systems (MACS) 

 1 Federal/State/ 

Local 

Command and 

Control (Mass 

Prophylaxis 

Tactical) 

Dispensing/Vaccin

ation Centers 

(DVC) Points of 

Distribution 

(PODs) 

Resource 

Organization 

1 Per population of 

42,554 

(47 DVC/PODs per 

2 million people) 

State/Local Establish POD 

Conduct Triage for 

Symptoms 

Conduct Medical 

Screening 

Conduct Mass 

Dispensing 

Conduct Adverse 

Events Monitoring 

Prophylaxis 

supplies and 

materials 

Equipment Federal/State/ 

Local/Private 

Sector 

Conduct Mass 

Dispensing 

Adverse event 

monitoring system 

Non-NIMS 

Resource 

Organization 

1+ National Federal/State/ 

Local 

Conduct Adverse 

Events Monitoring 
Target Capabilities List 491 

RESPOND MISSION: MASS PROPHYLAXIS 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Countermeasure 

Response and 

Administration 

system 

Non-NIMS 

Resource 

Organization 

1 Nationally Federal 

(HHS/CDC) 

Conduct Adverse 

Event Monitoring 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Modular Emergency Medical System: Concept of Operations for the Acute Care Center. U.S. Army Soldier and 

Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003. 

5. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

6. Emergency Response Training Necessary for Hospital Physicians/Nurses That May Treat Contaminated 

Patients. Standard interpretation. Occupational Safety and Health Administration. March 1999. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22710. 

7. Emergency Response Training Requirements for Hospital Staff. Standard interpretation. Occupational Safety 

and Health Administration. April 1997. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22393. 

8. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health 

Administration. November 2002. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765. 

9. Medical Personnel Exposed to Patients Contaminated with Hazardous Waste. Standard interpretation. 

Occupational Safety and Health Administration. March 1992. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609. 

10. Training Requirements for Hospital Personnel Involved in an Emergency Response of a Hazardous Substance. 

Standard interpretation. Occupational Safety and Health Administration. October 1992. 

http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20911. 

11. Mass Antibiotic Dispensing-Managing Volunteer Staffing. Centers for Disease Control and Prevention. 

December 2004. http://www.phppo.cdc.gov/PHTN/webcast/antibiotic2/default.asp. 

12. Mass Antibiotic Dispensing: A Satellite Web Cast Primer. Centers for Disease Control and Prevention. June 

2004. http://www.phppo.cdc.gov/phtn/antibiotic/default.asp. 

13. U.S. Postal Service May Deliver Medicine in the Event of a Catastrophic Incident. Memorandum of 

understanding between the U.S. Departments of Homeland Security and Health and Human Services and the 

U.S. Postal Service. February 2004. 

http://www.usps.com/communications/news/press/2004/pr04_015.pdf#search='U.S.%20POSTAL%20SERVIC

E%20MAY%20DELIVER%20MEDICINE. 

14. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) program, 

http://mmrs.fema.gov. 

15. Receiving, Distributing, and Dispensing Strategic National Stockpile (SNS) Assets: A Guide for Preparedness, 

Version 10 – Draft, June 2005. 
492 Target Capabilities List

RESPOND MISSION: MASS PROPHYLAXIS 

16. “Community-Based Prophylaxis. A Planning Guide for Public Health Preparedness.” Weill Medical College 

of Cornell University, Department of Public Health, August 2004. 

17. Hupert, Nathaniel. Modeling the Public Health Response to Bioterrorism: Using Discrete Event Simulation to 

Design Antibiotic Distribution Centers, in a September-October 2002 supplement to Medical Decision Making 

(Med Decis Making 2002:22(Suppl): S17-S25). 

18. “PHIN Preparedness - Countermeasure/Response Administration Functional Requirements”, Version 1.0, 

Centers for Disease Control and Prevention, April 2005. 

19. “State and Local Technical Assistance Review Tools, Centers for Disease Control and Prevention, September 

11, 2006. 
Target Capabilities List 493 

RESPOND MISSION: MASS CARE 

MASS CARE (SHELTERING, FEEDING, AND 

RELATED SERVICES) 

Capability Definition 

Mass Care is the capability to provide immediate shelter, feeding centers, basic first aid, bulk distribution 

of needed items, and related services to persons affected by a large-scale incident. Mass Care is usually 

provided by nongovernmental organizations (NGOs), such as the American Red Cross, or by local 

government. 

The capability also provides for companion animal care/handling through local government and 

appropriate animal-related organizations. 

Functional and Medical Support Shelters (formerly known as Special Needs Shelters) are addressed as a 

separate capability. However, this capability does cover those individuals who have disabilities that can 

be accommodated in general population shelters. These individuals could include the following: 

 A person requiring medication, Consumable Medical Supplies ([CMS], such as hearing aid 

batteries, incontinence supplies), or Durable Medical Equipment ([DME], such as wheelchairs, 

walkers, canes, etc); 

 A person with a stable medical or psychiatric condition; 

 A person who requires a caregiver where the regular caregiver can stay with the person; 

 A person requiring assistance with transferring from a wheelchair to a cot where the assistance 

does not require specialized training or lifting equipment; 

 A person requiring oxygen who is mobile and does not require medical attention; or 

 A person needing assistance with some activities of daily living such as cutting of food. 

This list does not include all accommodations that can be made in a general population shelter, but each 

shelter will have different capabilities based on location and available facilities at the time of the disaster 

Outcome 

Mass care services, including sheltering, feeding, and bulk distribution, are rapidly provided for the 

population and companion animals within the affected area. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

ESF #6: Mass Care, Housing, and Human Services 
494 Target Capabilities List

RESPOND MISSION: MASS CARE 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.C3a 1.3 Develop plans, policies, and procedures for the provision of mass care services to general 

populations in coordination with all responsible agencies 

Res.C3a 1.6.1.1 Develop plans, policies, and procedures for the provision of services for companion animals in 

coordination with all responsible agencies 

Res.C3a 1.3.4 

Develop processes and criteria for conducting an assessment (functional, cultural, dietary, 

medical) of the general population registering at the shelter to determine suitability for the 

shelter, and the transference of individuals and caregivers/family members, to more appropriate 

care facilities 

Res.C3a 1.9 Develop plans, policies, and procedures to ensure maximum retention of people with disabilities 

in general population shelters 

Res.C3a 1.9.1 Develop procedures to ensure that general population shelters allow individuals to bring in 

existing support systems (including service animals and care-givers) 

Res.C3a 1.9.3 Establish procedures for identifying and receiving individuals to general population shelter when 

they no longer need to be accommodated at Functional & Medical Sheltering Service location 

Res.C3a 1.3.5 Develop plans, policies, and procedures for close cooperation between general population 

shelters, Functional and Medical Support Shelters and other medical facilities 

Res.C3a 1.1 Develop plans, policies, and procedures for activation and mobilization of mass care staff 

Res.C3a 1.3.1 

Develop plans, policies, and procedures to address common issues (e.g. cultural, language, 

people with disabilities in general population shelters, etc.) as part of the mass care service 

delivery 

Res.C3a 1.2.2 

Develop plans, procedures and protocols for pre-identification of sufficient and suitable facilities 

for evacuation and post-impact shelters (to include non-traditional shelter facilities such as 

camps, hotels, etc.) 

Res.C3a 1.2.7 Enter pre-identified shelter facilities into the National Shelter System (NSS) 

Res.C3a 1.2.8 Identify accessible shelters as part of pre-identification of shelter option choices 

Res.C3a 1.2.3 Develop shelter contingency plans that allow for shelter self-sufficiency for a minimum 48 hours 

without re-supply 

Res.C3a 1.3.8 Develop shelter contingency plans that allow for shelter relocation when shelter is no longer 

habitable due to changing incident conditions (e.g., structural damage, contamination, etc.) 

Res.C3a 1.3.2 

Develop plans, procedures, and protocols for coordination of mass care services with agencies 

providing human services and housing, (e.g., welfare inquiry, transitional/interim housing 

services, other individual/family assistance programs), and family reunification 

Res.C3a 1.3.3 

Develop plans, policies, and procedures for coordination of mass care services with supporting 

agencies (e.g., conducting decontamination, citizen evacuation/shelter-in-place, volunteer 

management and donations, environmental health, and public safety and security) 

Res.C3a 1.5 Develop public education materials concerning mass care services 

Res.C3a 1.6.1 Develop criteria and guidance materials for sheltering companion animals 
Target Capabilities List 495 

RESPOND MISSION: MASS CARE 

Res.C3a 1.4.1 Develop vendor agreements, MOUs, or MOAs for critical mass care resources as appropriate 

Preparedness Measures Metrics

A mass care plan for the general population is in place Yes/No 

Mass care plan is integrated with our plans for evacuation (e.g. evacuation 

routes to shelters are identified, exercise evacuation from various locations to 

local shelters) 

Yes/No 

Mass care plan addresses cultural characteristics and needs of populations to be 

sheltered (e.g. religious needs, language barriers). 

Yes/No 

Mass care plan addresses the shelter requirements of special needs populations 

(e.g. disabled people, people requiring ongoing medical support). 

Yes/No 

Mass care plan addresses the feeding needs of affected populations (e.g. 

estimate projected need, identify distribution, preparation, and feeding sites, 

establish mobile feeding routes). 

Yes/No 

Plans for the transference of individuals with needs beyond the shelter’s 

capacity to a Functional and Medical Support Shelter or other appropriate care 

facility with their caregivers/family are in place 

Yes/No 

Plan to utilize ARC/HHS Initial Intake and Assessment Tool to assess 

individuals arriving at shelters is in place 

Yes/No 

A mass care plan for companion animals (includes provision of shelter, food, 

and animal welfare inquiry services) is in place 

Yes/No 

Shelter agreements for each jurisdiction are in place Yes/No 

Mass care plan addresses the safety and security of shelter facilities Yes/No 

The mass care plan includes MOUs with non-governmental organizations 

(NGOs) to provide personnel and equipment support following an incident 

Yes/No 

Mass care plan includes programs for recruiting volunteers Yes/No 

Local government has a companion animal care/handling plan coordinated with 

appropriate partners 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.C3a 2.1.1 Develop and implement training programs for mass care personnel to include sheltering, feeding 

and bulk distribution for general population 

Res.C3a 2.1.1.1 Develop and implement training for shelter staff 

Res.C3a 2.2.1 Develop and implement exercise programs for mass care personnel to include sheltering, feeding 

and bulk distribution for general population 

Res.C3a 2.2.3 Develop and implement exercise programs for mass care personnel for delivery of mass care 

companion animal services 

Res.C3a 2.1.3 Develop and implement training programs for mass care personnel for delivery of companion 

animal services 
496 Target Capabilities List

RESPOND MISSION: MASS CARE 

Preparedness Measures Metrics

Training and exercise program for mass care personnel is in place and covers 

sheltering, feeding and bulk distribution services 

Yes/No 

Training and exercise program addresses common mass care issues (e.g., 

culture, language, accommodating people with disabilities in general population 

shelters etc.) 

Yes/No 

Training and exercises for mass care operations occur on regular basis Yes/No 

Shelter staff are familiar with ARC/HHS Initial Intake and Assessment Tool 

that is used for initial screening of clients 

Yes/No 

Training and exercise program is in place Yes/No 

Performance Measures and Metrics and Critical Tasks (by Activity) 

Activity: Direct Mass Care Operations 

Definition: In response to requests made by agencies, provide management and coordination of 

Mass Care Capability

Critical Tasks

Res.C3a 3.1 Conduct initial and ongoing mass care needs assessment for sheltering, feeding, bulk distribution 

Res.C3a 3.1.1.1 Obtain information on population and location of potentially affected populations as part of 

planning process 

Res.C3a 3.1.2.1 Coordinate anticipated need for mass care services with agencies responsible for evacuation 

Res.C3a 3.3 Designate sites to serve as mass care facilities to include shelters, feeding sites, reception centers, 

food preparation sites, distribution points, etc. 

Res.C3a 3.1.2.2 Estimate numbers requiring sheltering services 

Res.C3a 3.1.2.3 Estimate numbers requiring feeding services 

Res.C3a 3.1.2.4 Estimate numbers requiring bulk distribution of relief items 

Res.C3a 3.7.4 Implement a daily counting and reporting system for sheltering, feeding, and bulk distribution 

items delivered 

Res.C3a 3.7.5 Activate contingency plans for shelter surge capacity, as needed 

Res.C3a 3.7.6 Activate vendor agreements/MOUs/MOAs in support of mass care activities as needed 

Res.C3a 3.7.1 Acquire and provide resources necessary to support mass care services 

Res.C3a 3.8 Provide appropriate communication systems for mass care personnel and facilities 

Res.C3a 3.4.1 Supervise and support day-to-day mass care operations 

Res.C3a 3.8.1 Disseminate accurate, timely, and accessible information to the public, media, support agencies, 

and vendors about mass care services 

Res.C3a 3.4 Coordinate mass care services for general population with appropriate agencies 
Target Capabilities List 497 

RESPOND MISSION: MASS CARE 

Res.C3a 3.4.2 Coordinate with appropriate agencies on common population issues (e.g. disability, language, 

culture, etc.) 

Res.C3a 3.4.3 Coordinate environmental health assessment of mass care operations with agencies responsible 

for environmental health 

Res.C3a 3.8.2 Disseminate notification of cessation of mass care operations 

Res.C3a 3.6 Coordinate mass care services for companion animals and owners with appropriate agencies 

Performance Measures Metric

Time in which the mass care plan is activated Within 2 hours from notification 

of need for mass care services 

Time in which the initial mass care needs assessment is completed (sheltering, 

feeding, and bulk distribution) 

Within 4 hours from notification 

of need for mass care services 

Time in which appropriate organizations are tasked to mobilize resources to 

provide mass care services 

Within 6 hours from the 

notification of need for mass care 

services 

Frequency with which reports of shelter populations and locations are received 

from all mass care facilities 

Every 24 hours 

Frequency with which mass care needs are assessed Every 24 hours 

Percent of total number of people seeking shelter who are either sheltered or 

referred to appropriate facilities 

100% 

Time in which oversight of sanitation of shelters, food service, and distribution 

operations is established 

Within 12 hours 

Activity: Activate Mass Care 

Definition: Activate and mobilize mass care personnel and resources

Critical Tasks

Res.C3a 4.2 Notify mass care staff 

Res.C3a 4.3 Mobilize needed mass care resources 

Res.C3a 4.2.1.1 Assemble mass care teams for each identified mass care facility 

Res.C3a 4.2.1 Assemble mass care teams for each identified mass care site (e.g. shelter, feeding, bulk 

distribution) 

Res.C3a 4.1 Activate emergency shelters 

Res.C3a 4.4 Mobilize veterinary and animal shelter services 

Res.C3a 4.4.1 Assemble teams for each identified companion animal site 

Performance Measures Metric

Time in which mass care staff are notified Within 2 hours from notification 

of need for mass care services 
498 Target Capabilities List

RESPOND MISSION: MASS CARE 

Percent of mass care staff mobilized within timeframe designated in SOPs 100% 

Time in which to determine availability of shelter and staff within jurisdiction Within 4 hours from activation of 

mass care plan 

Activity: Establish Shelter Operations

Definition: Staff and equip shelter in preparation to receive displaced persons

Critical Tasks

Res.C3a 5.1 Determine whether areas are located in a safe area as determined by appropriate government 

agencies 

Res.C3a 5.2.1 Staff shelter with appropriately trained personnel 

Res.C3a 5.2 Set-up shelter for operations 

Res.C3a 5.2.2 Establish self-sufficiency (water/food/staffing) of shelter for minimum of 48 hours 

Res.C3a 5.2.3 Ensure adequate communication systems are available for shelter staff 

Res.C3a 5.3 Conduct regular communications with mass care management 

Res.C3a 5.2.4 Provide regular updates on shelter needs and capacity 

Res.C3a 5.3.1 Coordinate provision of mass care services within the shelter 

Res.C3a 5.4 Coordinate provision of shelter support services with appropriate agencies 

Res.C3a 5.4.1 Ensure shelter facility is accessible or provides temporary accessibility solutions where feasible 

Res.C3a 5.5 Coordinate with appropriate government agency to conduct an environmental health assessment 

for mass care operations 

Res.C3a 5.2.1 Coordinate with appropriate government agency to ensure any necessary decontamination is 

provided for shelter residents prior to entering shelter facility 

Res.C3a 5.6 

Coordinate dissemination of information about locations of different kinds of shelter, including 

companion animal shelters, general population shelters, and Functional and Medical Support 

Shelters 

Performance Measures Metric

Time in which shelters are opened with appropriate staff Within 6 hours from activation of mass care plan 

Activity: Shelter General Population 

Definition: Provide temporary shelter for those individuals displaced during an incident 

Critical Tasks

Res.C3a 6.1 Conduct shelter registration for general population 

Res.C3a 6.1.1 Conduct initial assessment of population registering at shelter ensure appropriate shelter services 

are provided 
Target Capabilities List 499 

RESPOND MISSION: MASS CARE 

Res.C3a 6.1.4 

Conduct detailed assessments to identify types and levels of support needed to maintain 

functional independence of those individuals with disabilities and determine whether these needs 

can be met in general population shelters 

Res.C3a 6.4.1 Coordinate with Functional and Medical Support Shelter Capability to ensure that individuals are 

referred to appropriate settings and appropriate functional and medical care is provided 

Res.C3a 6.1.2 Establish processes to address issues identified in the assessment of shelter registrants 

Res.C3a 6.1.3 Make arrangements to transfer individuals and caregivers/family members to appropriate care 

facilities when necessary 

Res.C3a 6.4 Request additional resources and equipment necessary to support shelter operations 

Res.C3a 6.2.1 Implement mechanisms for daily reporting of shelter population and locations 

Res.C3a 6.2.4 Coordinate to provide security services if needed 

Res.C3a 6.2.5 Coordinate feeding services for general populations in shelters 

Res.C3a 6.2.5.1 Provide culturally and restricted diet appropriate feeding services when possible 

Res.C3a 6.3.1 Provide regular updates on shelter needs and capacity 

Res.C3a 6.3.2 Assess ongoing medical and public health needs of shelter population and refer as appropriate 

Res.C3a 5.5.1 Coordinate environmental health assessment of mass care operations 

Performance Measures Metric

Percent of general population shelters that have access to the ARC/HHS Initial Intake and 

Assessment Tool 

100% 

Time in which all individuals at general population shelters are evaluated for health and 

mental health services 

Within 12 hours from 

arrival 

Percent of population initially assessed and referred to appropriate accommodation within 

24 hours of seeking shelter 

100% 

Percent of shelter population registered within 24 hours of residing in shelter 100% 

Frequency with which shelter population is reported Every 24 hours 

Time in which shelter is able to provide 2 meals per day Within 24 hours from 

shelter opening 

Activity: Shelter Companion Animals

Definition: Provide temporary shelter for companion animals of displaced owners or those 

companion animals who are abandoned

Critical Tasks

Res.C3a 7.1.2 Establish companion animal shelter 

Res.C3a 7.1.3 Arrange for companion animal care/handling services 

Res.C3a 7.3 Operate companion animal care/handling facilities 

Res.C3a 7.3.1 Coordinate provision of veterinary medical services with appropriate agencies 
500 Target Capabilities List

RESPOND MISSION: MASS CARE 

Res.C3a 7.2.1 Coordinate with entities responsible for search and rescue for transference of companion animals 

into animal shelters 

Res.C3a 7.2.2 Coordinate message regarding companion animal evacuation with agencies responsible for 

issuing evacuation orders 

Res.C3a 7.3.2 Coordinate animal shelter operations with agencies responsible for environmental health 

Res.C3a 7.4.3 Coordinate acquisition of needed companion animal resources with appropriate agencies 

receiving donations 

Res.C3a 7.2.3 Coordinate transportation of companion animals with appropriate agencies 

Res.C3a 7.3.3 Identify any special procedures necessary for the intake of companion animals (e.g., 

decontamination) 

Res.C3a 7.3.4 Identify and implement special procedures (e.g., decontamination) for companion animal intake 

Res.C3a 7.3.5 Implement procedures for companion animal intake/registration 

Res.C3a 7.3.6 Implement tracking system for intake and export of companion animals in compliance with local 

holding regulations 

Res.C3a 7.4.1 Provide feeding services that ensure adequate nutrition for companion animals 

Res.C3a 7.4.2 Establish guidance for staff on integrating volunteers while maintaining health and safety for 

staff, companion animals, and volunteers 

Res.C3a 7.3.7 Manage shelter facility maintenance 

Performance Measures Metric

Time in which shelters are opened for staff and set-up Within 8 hours from 

mobilization 

Companion animal import/export process complies with local holding regulations Yes/No 

Percent of companion animals sheltered and/or referred to appropriate responsible 

authority 

100% 

Activity: Close Shelter 

Definition: Deactivate shelter and staff upon determination that immediate shelter needs have 

been met or if the shelter is no longer suitable to meet mission needs

Critical Tasks

Res.C3a 8.2.1 Ensure appropriate referral information is provided to shelter residents 

Res.C3a 8.1 Transport and/or coordinate with agencies responsible for transportation of shelter population to 

residence or temporary/interim housing 

Res.C3a 8.2 Disseminate notification to close shelter operations to shelter residents, appropriate government 

agencies, and other partners 

Res.C3a 8.3 Conduct closing inspection and walk-through of shelters 

Performance Measures Metric
Target Capabilities List 501 

RESPOND MISSION: MASS CARE 

Percent of shelter residents transitioned from shelter to their residence or to 

alternative accommodations prior to shelter closure 

100% 

Time in which shelter closure notification is provided Within 48 hours prior to shelter 

closure 

Activity: Establish Feeding Operations

Definition: Identify availability of resources for feeding operations

Critical Tasks

Res.C3a 9.1 Estimate projected feeding services required 

Res.C3a 9.2.1 Identify kitchens, vendors, and other capabilities to prepare and distribute food 

Res.C3a 9.2.2 Identify additional mobile feeding resources necessary to meet feeding need 

Res.C3a 9.2.3 Assess number of pre-packaged meals needed to augment feeding services 

Res.C3a 9.2 Develop a strategy to meet projected feeding need 

Res.C3a 9.3.1 Conduct inspection of identified food operation facilities to determine structural integrity, 

capability, and suitability 

Res.C3a 9.3.2 Ensure kitchen facilities are in compliance with local health regulations 

Res.C3a 9.3.3 Staff kitchens with appropriately trained personnel 

Res.C3a 9.3.4 Acquire foodstuffs for feeding operations 

Res.C3a 9.4 Determine mobile feeding routes 

Res.C3a 9.5 Implement reporting mechanism for daily meal counts 

Res.C3a 9.6 Coordinate with shelter managers to ensure adequate feeding is conducted at shelters 

Performance Measures Metric

Time in which strategy is developed to meet demand for feeding 

services 

Within 6 hours from notification of need 

for mass care services 

Time in which feeding services are mobilized Within 12 hours from activation of mass 

care plan 

Time in which locations are identified for effective service delivery to 

meet feeding needs 

Within 36 hours from activation of mass 

care plan 

Frequency with which reassessment of feeding strategy is conducted Every 24 hours 
502 Target Capabilities List

RESPOND MISSION: MASS CARE 

Activity: Prepare and Distribute Food

Definition: Prepare and distribute meals to affected general populations

Critical Tasks

Res.C3a 10.1 Implement strategy to meet feeding needs of affected population 

Res.C3a 10.4 Evaluate effectiveness of ongoing feeding operations 

Res.C3a 10.1.2 Conduct food preparation and distribution using safe food handling protocols 

Res.C3a 10.2 Conduct mass feeding operations, including mobile and fixed 

Res.C3a 10.3.1 Conduct food preparation and distribution using safe food handling protocols 

Res.C3a 10.1.3 Provide culturally and diet-restriction appropriate feeding services as available 

Res.C3a 10.1.4 Ensure adequate nutrition is provided for shelter populations 

Res.C3a 10.4.1 Report accurate count of meals and snacks served 

Res.C3a 10.4.2 Disseminate notification of end to feeding operations 

Performance Measures Metric

Percent of anticipated need for feeding services met 100% 

Time in which initial food is provided Within 6 hours from activation 

Time in which notification of end to feeding services is provided 48 hours prior to end of 

operations 

Activity: Establish Bulk Distribution Operations

Definition: Establish bulk distribution sites and prepare them to distribute items to the affected 

population

Critical Tasks

Res.C3a 11.1.2 Establish distribution sites and routes 

Res.C3a 11.2.1 Conduct inspection of identified mass care bulk distribution facilities to determine structural 

integrity, capability, and suitability 

Res.C3a 11.2.2 Staff bulk distribution site with appropriately trained personnel 

Res.C3a 11.2.3 Ensure adequate communication systems are available for bulk distribution staff 

Res.C3a 11.2.3.1 Conduct communications with mass care management 

Res.C3a 11.2.4 Establish reporting mechanisms for daily distribution count 

Res.C3a 11.2 Establish bulk distribution operations at fixed sites 

Res.C3a 11.1.1 Determine mobile bulk distribution routes 

Res.C3a 11.3 Acquire items for bulk distribution, ensuring coordination with logistics resources 
Target Capabilities List 503 

RESPOND MISSION: MASS CARE 

Res.C3a 11.1 Coordinate with appropriate agencies to determine bulk distribution needs of affected 

population 

Res.C3a 11.3.1 Coordinate with agencies receiving donations to acquire items needed for bulk distribution, 

including supplies for companion animals 

Performance Measures Metric

Time in which operational sites receive logistics support to maintain service 

delivery 

Within 24 hours from site 

activation 

The locations of distribution centers are accurately and clearly communicated to 

the public 

Yes/No 

Activity: Conduct Bulk Distribution Operations

Definition: After establishing bulk distribution operations, distribute items to the affected 

population

Critical Tasks

Res.C3a 12.1 Conduct bulk distribution of relief items at fixed sites 

Res.C3a 12.1.1 Conduct mobile bulk distribution operations 

Res.C3a 12.1.2 Report daily distribution count and number of people served 

Res.C3a 12.2 Disseminate notification of end to bulk distribution operations 

Performance Measures Metric

Time in which facilities can receive and distribute disaster relief items Within 24 hours from site activation 

Time in which notification of end to bulk distribution services is 

provided 

Within 48 prior to end of operations 

Activity: Demobilize Mass Care Operations

Definition: Upon completion of assigned mission, demobilize mass care resources

Critical Tasks 

Res.C3a 13.1 Coordinate demobilization of mass care resources with participating agencies 

Res.C3a 13.2 Disseminate notification of demobilization of mass care resources/services 

Res.C3a 13.4 Demobilize mass care resources 

Res.C3a 13.5 Provide staff briefing 

Res.C3a 13.6 Deactivate staff from operations 

Performance Measures Metric 

Percent of participating agencies notified of demobilization 100% 

Percent of staff debriefed 100% 
504 Target Capabilities List

RESPOND MISSION: MASS CARE 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations 

Center Management 

Mass Care coordinates with Emergency Operations Center Management on resource 

requests and situation reports. 

On-Site Incident 

Management 

Mass Care coordinates with On-Site Incident Management on resource requests and 

situation reports. 

Isolation and Quarantine Mass Care relies on Isolation and Quarantine to provide quarantine information to mass 

care personnel. 

WMD/Hazardous 

Materials Response and 

Decontamination 

Mass Care relies upon WMD/Hazardous Materials Response and Decontamination to 

provide decontamination to persons and companion animals prior to shelter entry. 

Triage and Pre-Hospital 

Treatment 

Mass Care notifies Triage and Pre-Hospital Treatment of sick or injured people in need 

of transport. 

Public Safety and 

Security Response 

Mass Care relies upon Public Safety and Security Response to provide security at mass 

care facilities, including companion animal shelters. 

Environmental Health Mass Care relies upon Environmental Health to provide a health assessment of 

facilities, food, persons, and companion animals. 

Medical Surge Mass Care relies upon Medical Surge to provide alternative care facilities for people 

needing medical care. 

Fatality Management Mass Care notifies Fatality Management of remains. 

Citizen Evacuation and 

Shelter-In-Place 

Mass Care coordinates with the Citizen Evacuation and Shelter-In-Place Protection 

capability to ensure mass care services are in place for evacuating populations. 

Volunteer and 

Donations Management 

Mass Care relies upon Volunteer and Donations Management to provide volunteers and 

donations at mass care facilities. 

Search and Rescue 

(Land-Based) 

Mass Care coordinates with Search and Rescue (Land-Based) for transference of 

rescued companion animals. 
Target Capabilities List 505 

RESPOND MISSION: MASS CARE 
506 Target Capabilities List

RESPOND MISSION: MASS CARE 

Resource Element Description 

 

Resource Elements Components and Description

Volunteer Agency Shelter 

Management Team (Type I) 

For 1,000 shelter residents: personnel (8 shelter managers, 16 assistant shelter 

managers, 8 logistics supervisors, 8 feeding managers, 3 health services 

workers, 12 mental heath services workers, 12 safety & asset protection 

workers) 

Volunteer Agency Shelter 

Management Team (Type II) 

For 750 shelter residents: personnel (6 shelter managers, 12 assistant shelter 

managers, 6 logistics supervisors, 2 feeding managers, 6 health services 

workers, 9 mental heath services workers, 9 safety & asset protection workers) 

Volunteer Agency Shelter 

Management Team (Type III) 

For 500 shelter residents: personnel (4 shelter managers, 8 assistant shelter 

managers, 4 logistics supervisors, 4 feeding managers, 6 health services 

workers, 10 mental heath services workers, 6 safety & asset protection 

workers) 

Volunteer Agency Shelter 

Management Team (Type IV) 

For 250 shelter residents: personnel (2 shelter managers, 4 assistant shelter 

managers, 2 logistics supervisors, 2 feeding managers, 3 health services 

workers, 5 mental heath services workers, 3 safety & asset protection workers) 

Voluntary Food Service 

Delivery Unit (Type I) 

Personnel (2 drivers); 1,500 vehicles (converted Ford F-450 with dual wheels, 

22’ x 10’); food equipment (including 2 12-inch tongs, 2 6-ounce solids, 2 4-

ounce solids, 4 4-ounce slotted, 1 food thermometer); emergency equipment (2 

fire extinguishers and 1 first aid kit); tools (including 2 flathead screwdrivers, 2 

phillips screwdrivers, 1 allen or star wrench, 2 crescent wrench, 1 set of 

open/closed end wrench, 1 pliers, 1 tire gauge); miscellaneous equipment 

(including 1 mesh barrier/door, 1 visor organizer, 2 flashlights, 6 food cambros, 

6 5-gallon beverage cambro, 1 satellite tracking unit, 6 cambro clips, 3 cambro 

molds, 6 cargo straps, 3 road reflectors, 1 100-foot electrical extension, 1 lug 

wrench, 1 jumper cable, 2 wheel chocks, 2-4 drainage plugs) 

Voluntary Agency Field Kitchen 

(Type I) 

Personnel (40 workers capable of producing 30,000 meals); electrical 

equipment (1 box fan, 1 propane space heater(s), 1 100kw generator, vendor 

agreements for daily refueling of generators; 1 electrical drop/generator, 2 

portable lighting system(s)); sanitation equipment (1 power washer, 12 portable 

toilets, 1 hand wash stations, 1 public water system connection); transportation 

equipment (10 rental truck(s)/van(s), 2 hand truck(s), 2 pallet jack(s), 1 3000-

3500 lbs outside forklift(s), 1 kitchen support trailer); emergency equipment (2 

first-aid kit/supplies, 6 fire extinguishers); storage equipment (300 cs cambro 

liners, 1 portable office trailer, 1 gray water storage system, 1 potable water 

storage system & bulk water, 30 wood pallets, 2 dry storage drop trailer(s), 2 

refrigerated drop trailer(s), 2 stretch wrap for palletizing); cleaning equipment 

(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster, 

1 steam jenny); administrative equipment (16 chairs, 4 tables); communication 

equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio 

system, 1 phone lines/satellite system, 6 cell phones, 1 fax machine/copier); 

miscellaneous equipment (support material shipment, 2 drag chain w/ hooks, 8 

padlocks, keyed alike, 2 wall tent/canopy, 10 tarps) 

Voluntary Agency Field Kitchen 

(Type II) 

Personnel 30 workers capable of producing 20,000 meals); electrical 

equipment (1 box fan, 1 propane space heater(s), 1 100kw generator, vendor 

agreements for daily refueling of generators; 1 electrical drop/generator, 2 

portable lighting system(s)); sanitation equipment (1 power washer, 10 portable 

toilets, 1 hand wash stations, 1 public water system connection); transportation 
Target Capabilities List 507 

RESPOND MISSION: MASS CARE 

Resource Elements Components and Description

equipment (6 rental truck(s)/van(s), 1 hand truck(s), 1 pallet jack(s), 1 3000-

3500 lbs outside forklift(s), 1 kitchen support trailer); emergency equipment (2 

first-aid kit/supplies, 4 fire extinguishers); storage equipment (20 cs cambro 

liners, 1 portable office trailer, 1 gray water storage system, 1 potable water 

storage system & bulk water, 20 wood pallets, 1 dry storage drop trailer(s), 1 

refrigerated drop trailer(s), 1 stretch wrap for palletizing); cleaning equipment 

(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster, 

1 steam jenny); administrative equipment (12 chairs, 3 tables); communication 

equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio 

system, 1 phone lines/satellite system, 4 cell phones, 1 fax machine/copier); 

miscellaneous equipment (support material shipment, 2 drag chain w/ hooks, 6 

padlocks, keyed alike, 2 wall tent/canopy, 8 tarps) 

Voluntary Agency Field Kitchen 

(Type III) 

Personnel (20 workers capable of producing 10,000 meals); electrical 

equipment (1 box fan, 1 propane space heater(s), 1 100kw generator, vendor 

agreements for daily refueling of generators; 1 electrical drop/generator, 1 

portable lighting system); sanitation equipment (1 power washer, 4 portable 

toilets, 1 hand wash stations, 1 public water system connection); transportation 

equipment (4 rental truck(s)/van(s), 1 hand truck(s), 1 pallet jack(s), 1 3000-

3500 lbs outside forklift(s), 1 kitchen support trailer); emergency equipment (1 

first-aid kit/supplies, 2 fire extinguishers); storage equipment (10 cs cambro 

liners, 1 portable office trailer, 1 gray water storage system, 1 potable water 

storage system & bulk water, 10 wood pallets, 1 dry storage drop trailer(s), 1 

refrigerated drop trailer(s), 1 stretch wrap for palletizing); cleaning equipment 

(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster, 

1 steam jenny); administrative equipment (8 chairs, 2 tables); communication 

equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio 

system, 1 phone lines/satellite system, 3 cell phones, 1 fax machine/copier); 

miscellaneous equipment (support material shipment, 1 drag chain w/ hooks, 4 

padlocks, keyed alike, 1 wall tent/canopy, 6 tarps) 

Voluntary Agency Field Kitchen 

(Type IV) 

Personnel (15 workers capable of producing 5,000 meals); electrical equipment 

(1 box fan, 1 propane space heater(s), 1 100kw generator, vendor agreements 

for daily refueling of generators; 1 electrical drop/generator, 1 portable lighting 

system(s)); sanitation equipment (1 power washer, 2 portable toilets, 1 hand 

wash stations, 1 public water system connection); transportation equipment (4 

rental truck(s)/van(s), 1 hand truck(s), 1 pallet jack(s), 1 3000-3500 lbs outside 

forklift(s), 1 kitchen support trailer); emergency equipment (1 first-aid 

kit/supplies, 2 fire extinguishers); storage equipment (5 cs cambro liners, 1 

portable office trailer, 1 gray water storage system, 1 potable water storage 

system & bulk water, 20 wood pallets, 1 dry storage drop trailer(s),1 

refrigerated drop trailer(s), 1 stretch wrap for palletizing); cleaning equipment 

(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster, 

1 steam jenny); administrative equipment (8 chairs, 2 tables); communication 

equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio 

system, 1 phone lines/satellite system, 3 cell phones, 1 fax machine/copier); 

miscellaneous equipment (support material shipment, 1 drag chain w/ hooks, 4 

padlocks, keyed alike, 1 wall tent/canopy, 6 tarps) 

Voluntary Agency Field Support 

Unit (Type I) 

1 vehicle (48-53’ trailer); 2 drivers 

Voluntary Agency Mobile 

Kitchen (Small) (Type I) 

3 workers (capable of producing 800 meals) [Commensurate with Salvation 

Army Canteen] 

Voluntary Agency Warehouse 1 facility (100,000 sq ft) with personnel (1 manager, 4 supervisors, 12 team 
508 Target Capabilities List

RESPOND MISSION: MASS CARE 

Resource Elements Components and Description

Team (Type I) leads, 33 workers) 

Voluntary Agency Warehouse 

Team (Type II) 

1 facility (25,000 sq ft) with personnel (1 manager, 4 supervisors, 15 workers) 

Voluntary Agency Warehouse 

Team (Type III) 

1 facility (15,000 sq ft) with personnel (1 manager, 3 supervisors, 11 workers) 

Voluntary Agency Warehouse 

Team (Type IV) 

1 facility (10,000 sq ft) with personnel (1 manager, 2 supervisors, 7 workers) 

Voluntary Agency Drop Trailer 

Team 

1 dry box trailer, 1 refrigerated trailer, 1 tractor, 1 driver, 1 forklift 

Prepackaged meals Meal, Ready to Eat (MRE) via mission assignment and other private 

corporations such as HeaterMeal 

Shelter Childcare Team (Type 1) 1 worker per 3 infants and 1 worker per 5 non-infants; or 1 team per 250 

shelter residents 

Meals from contractors (e.g., 

vendors, caterers) 

Contracted caterers and vendors 

Type 1 Small Animal Sheltering 

Team 

Per NIMS, there are Type I, II, and III Small Animal Sheltering Teams 

Small Animal Transportation 

Team 

Per NIMS, there is a Type I Small Animal Transport Team 

Animal Incident Response Team Per NIMS, there is a Type I, II, and III Incident Management Team for Animal 

Protection 

Planning Assumptions 

 General population shelters management will make every attempt to accommodate people with 

disabilities in general population shelters. In such cases where an individual cannot be 

accommodated, care should be taken to ensure appropriate referral to a Functional and Medical 

Support Shelter (formerly known as special needs shelter) or other appropriate facility. 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Major Earthquake scenario. Other scenarios were 

reviewed to identify required adjustment or additions to the planning factors and national targets. 

 This capability applies to a wide range of incidents and emergencies, including major hurricanes, 

improvised explosives, pandemic influenza, and improvised nuclear devices. 

 An immediate and sustained need for bulk distribution of relief supplies will be required. 

Requirements will depend on the nature of the human needs produced by the incident. 

 Populations likely to require mass care services include the following: 1) Primary victims (with 

damaged or destroyed homes; 2) Secondary and tertiary victims (denied access to homes); 3) 

Transients (visitors and travelers within the affected area); and 4) Emergency workers (seeking 

feeding support, respite shelter(s), and lodging). 
Target Capabilities List 509 

RESPOND MISSION: MASS CARE 

 In the initial phase (hours and days) of a catastrophic disaster, organized and spontaneous sheltering 

will occur simultaneously within and at the periphery of the affected area as people leave the area. 

Additional congregate sheltering may be required for those evacuating to adjacent population centers. 

 Mass care may need to be setup pre-incident for some types of incidents such as a hurricane where 

evacuations occur prior to landfall. In other instances, the need for mass care may not emerge until 

after an incident has occurred. 

 Depending on the nature of the incident, additional services such as decontamination may need to be 

arranged prior to admission into a shelter facility. 

 The type of incident will affect when mass care services are required (e.g. hurricane may necessitate 

mass care services being set-up pre-landfall for evacuees, an earthquake would be post-incident). 

 The location of the incident will affect the time needed for arrival on-scene. 

 The type of incident affects the time needed to verify shelter availability after evaluating structural 

factors (e.g. accessibility, structural integrity, and level of contamination). 

 The type of incident will determine the timeliness of establishing feeding operations due to 

accessibility of affected populations. 

 The population density will affect the demand for feeding at centralized sites. 

 The type of incident will determine the accessibility of affected populations in need of bulk 

distribution services, and determine the availability of resources needed to conduct bulk distribution. 

 Shelters will likely experience large numbers of elderly with specific medication requirements and 

other evacuees on critical home medical care maintenance regimens. 

 Significant numbers of Functional and Medical Support Shelters (formerly known as special needs 

shelters) will likely be required as nursing homes and other similar care facilities are rendered 

inoperable and are unable to execute their evacuation mutual aid plans and agreements with other 

local facilities.

 Family reunification within the affected area will be an immediate and significant concern as many 

family members may be separated at the time of the event. 

 Populations with the resources to help themselves will be encouraged to take independent action. 

 Assume 763,000 people need mass care support: 313,000 will need shelter and feeding (3 meals a 

day for the 313,000 people would equal 939,000 meals a day for shelters) immediately, and an 

additional 450,000 people remaining in the affected area will need feeding. Shelter population will 

vary between low during the day and higher at night. 

 More people will initially flee and seek shelter from terrorist attacks involving CBRNE agents that for 

natural catastrophic disaster events. They will also exhibit a heightened concern for the health-related 

implications related to the disaster agent. 

 Substantial numbers of trained mass care personnel will be required for an extended period of time to 

sustain mass care sheltering and feeding activities. 

 Timely logistical support to shelters and feeding sites will be essential and required for a sustained 

period of time. Food supplies from the U.S. Department of Agriculture (USDA) positioned at various 

locations across the country will need to be accessed and transported to the affected area in a timely 

manner. 

 Census data indicate that 20 percent of the population have a disability, 15 percent of people needing 

mass care support have a physical or cognitive disability that will require some level of functional 

care (i.e. personal care assistance, sign language interpreter, mobility assistance, etc.). 
510 Target Capabilities List

RESPOND MISSION: MASS CARE 

 Twenty-five percent of the self-evacuee population will seek shelter out of the area. 

 Approximately 37,000 trained workers will be needed to support the general population (worker to 

recipient ratio—1:30): 32,500 for shelter operations (30,000 within the affected area, 2,500 outside 

the area) and 4,500 for other human services. 

 As a result of the incident, many local emergency personnel – paid and volunteer – that normally 

respond to disasters may be dead, injured, involved with family concerns, or otherwise unable to 

reach their assigned posts. 

 State and local resources will immediately be overwhelmed; thus, Federal assistance will be needed 

immediately. 

 The event will exceed local capacity for trained mass care staff. 

 Service delivery to affected populations by voluntary agencies and NGOs will occur in locations 

deemed safe by appropriate government officials. 

 Immediately following major CBRNE events, decontamination facilities may not be readily available 

in all locations during the early stages of self-directed population evacuations. Unaware 

contaminated persons therefore may seek entry to shelters. These facilities may, as a result, become 

contaminated, adversely affecting resident health and general public trust. 

 The average population per shelter will rise with a catastrophic event (estimate 1,000 residents per 

shelter, versus 250 residents typically) because fewer facilities will be available than the preplanning 

estimation. 

 Public health and medical care will be a significant challenge as local emergency medical services 

(EMS) resources and medical facilities will likely be overwhelmed quickly. The deployment of 

public health and medical personnel and equipment to support medical needs will need to be 

immediate and sustained by the U.S. Department of Health and Human Services. 

 Mental health services will be needed by victims and responders in and near the affected area, as well 

as (on a lesser scale) throughout the nation. 

 Some previously identified structures will not be able to be shelters due to actual or potential damage. 

 Significant disruption of the affected area’s infrastructure, particularly power, transportation, and 

communications systems, may occur. 

 Timely logistical support to shelters and feeding sites will be essential and required for a sustained 

period of time. 

 Close liaison and coordination with numerous voluntary and nongovernmental organizations (NGOs) 

will be necessary on the Federal, regional, state, and local levels. 

 Disaster welfare information may be a priority concern for family members throughout the nation. 

 Transient populations such as tourists, students, and foreign visitors, within the affected areas will 

require assistance. 

 Coordination of information will be extremely important, including informing the public of different 

types shelters available (e.g. companion animal shelter, Functional, and Medical Support Shelter). 

 Immediate response activities focusing on meeting urgent mass care needs should be located in safe 

areas. 

 Adjacent communities need to be prepared to deal with significant numbers of evacuating persons 

from the affected area. (Those host communities will also need significant mass care support.) 

 Co-located but separate companion animal shelters and general population shelters are desired. 
Target Capabilities List 511 

RESPOND MISSION: MASS CARE 

 If the general population shelter is not located near the companion animal shelter, more support staff 

will be necessary in the animal shelter to feed, walk, and care for the animals. 

 The evacuation policy of an affected area will determine the number of companion animals arriving at 

companion animal shelters. 

 Sixty percent of the affected population will have companion animals. 

 Scenarios typically count the number of persons in shelters as the basis for computing the number of 

companion animals (CAs). In a scenario with many dead and injured people (which varies by type of 

event), additional sheltering of CAs will be required. Some CAs will have perished in the same event 

that killed or injured humans. The assumption is made that the number of animals needing shelter 

will rise by 10 percent because their owners are either dead or injured. 

 Assume 14,000 workers (includes some owners and volunteers) will be needed for companion animal 

care. 

 Companion (small) animal sheltering team requirements assume that the shelters will house only 

animals. “Pet friendly” shelters (that include owner families with their companion animal) will have 

a reduced need for staff after the initial setup. 

 USDA will coordinate Federal activities in support of companion animals. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant Demand for 

the Capability (Major Earthquake) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of Resources 

Needed 

Voluntary Agency Shelter 

Management Team (Type 

IV) 

Capable of managing 1 

shelter of 250 shelter 

residents 

(Note: In a catastrophic 

event, the average number 

of residents per shelter will 

rise to an average of 1,000 

per shelter, changing target 

levels and type of Shelter 

Team used to a Type I 

Shelter Management 

Team) 

313,000 people 

needing shelter 

1,252 Type IV Shelter Teams 

(an average of 250 people in 

each shelter) 

Voluntary Food Service 

Delivery Unit (Type I) 

Capable of distributing 

1,500 meals per day in 

accordance with safe food 

handling requirements 

1.5 million meals 

delivered per day 

1,000 food service/delivery 

units (1,000 x 1,500 meals = 

1,500,000) 

Voluntary Agency Field 

Kitchen (Type IV) 

Capable of providing 5,000 

meals per day 

1.5 million meals 

needed per day 

300 Voluntary Agency Field 

Kitchens (Type IV) (300 x 

5,000 meals = 1,500,000) 

Voluntary Agency Field 

Kitchen (Type III) 

Capable of providing 

10,000 meals per day, 

1.5 million meals 

needed per day 

150 Voluntary Agency Field 

Kitchens (Type III) (150 x 

10,000 meals = 1,500,000) 

Voluntary Agency Field 

Kitchen (Type II) 

Capable of providing 

20,000 meals per day 

1.5 million meals 

needed per day 

75 Voluntary Agency Field 

Kitchens (Type II) (75 x 
512 Target Capabilities List

RESPOND MISSION: MASS CARE 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of Resources 

Needed 

20,000 meals = 1,500,000 

Voluntary Agency Field 

Kitchen (Type I) 

Capable of providing 

30,000 meals per day 

1.5 million meals 

needed per day 

50 Voluntary Agency Field 

Kitchens (Type I) (50 x 30,000 

= 1,500,000) 

Voluntary Agency 

Mobile Kitchen (Type I) 

Capable of providing 800 

meals per day 

1.5 million meals 

needed per day 

1,875 Voluntary Agency 

Mobile Kitchens (1,875 x 800 

meals = 1,500,000) 

Voluntary Agency Field 

Support Unit (Type I) 

1 per Type IV kitchen 

2 per Type III kitchen 

3 Per Type II kitchen 

4 per Type I kitchen 

300 Type IV 

kitchens 

150 Type III 

kitchens 

75 Type II kitchens 

50 Type I kitchens 

300 Field Support Units for 

Type IV 

300 Field Support Units for 

Type III 

150 Field Support Units for 

Type II 

200 Field Support Units for 

Type I 

Voluntary Agency 

Warehouse Team (Type 

I) 

Capable of providing 

100,000 square feet 

Need 100,000 

square feet of space 

1 Voluntary Agency Warehouse 

Teams (Type I) 

Voluntary Agency 

Warehouse Team (Type 

II) 

Capable of providing 

25,000 square feet 

Need 100,000 

square feet of space 

4 Voluntary Agency Warehouse 

Teams (Type II) 

Voluntary Agency 

Warehouse Team (Type 

III) 

Capable of providing 

15,000 square feet 

Need 100,000 

square feet of space 

7 Voluntary Agency Warehouse 

Teams (Type III) 

Voluntary Agency 

Warehouse Team (Type 

IV) 

Capable of providing 

10,000 square feet 

Need 100,000 

square feet of space 

10 Voluntary Agency 

Warehouse Teams (Type IV) 

Voluntary Agency Drop 

Trailer Team Each kitchen site needs 

each needing 1 drop trailer 

for dry goods and 1 drop 

trailer for refrigerated 

goods 

Maximum of 300 

kitchen sites 

300 Voluntary Agency Drop 

Trailer Teams (1 dry goods 

trailer x 300 kitchen sites max 

plus 1 refrigerated goods trailer 

x 300 kitchen sites = 600 

trailers) 

Prepackaged meals 1 meal per person 1.5 million meals 

needed per day 

1.5 million prepackaged meals 

Shelter Childcare Team 

(Type 1) 

Capable of supporting 

average 250 shelter 

residents 

313,000 people 

needing shelter 

1,252 Shelter Childcare Teams 

(an average of 250 people in 

each shelter) 

Meals from contractors 

(e.g., vendors, caterers) 

1 meal per person 1.5 million meals 

needed per day 

1.5 million meals from 

contractors 

Type 1 Small Animal 

Sheltering Team 

Capable of handling 300 

companion animals per 

Shelter Team 

193,000 animals 

displaced 

643 Type 1 Small Animal 

Sheltering Teams 

Animal Shelter 

Management 

Capable of managing and 

coordinating 5-7 Shelter 

193,000 animals 

displaced 

90-130 Animal Shelter 

Management Coordination 
Target Capabilities List 513 

RESPOND MISSION: MASS CARE 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of Resources 

Needed 

Coordination Team Teams per team Teams 

 (5-7 Animal Shelter 

Coordination Teams x 90-130 = 

643 Type 1 Small Animal 

Sheltering Teams) 

Small Animal 

Transportation Team 

2 Small Animal 

Transportation Teams each 

per Type 1 Small Animal 

Sheltering Team 

193,000 animals 

displaced 

1,286 Small Animal 

Transportation Teams 

Animal Incident 

Response team 

4 animal incident response 

teams per Type 1 Small 

Animal Sheltering Team 

193,000 animals 

displaced 

2,725 Animal Incident 

Response Teams 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

6 Per Jurisdiction with 

population ≤10K 

15 Per Jurisdiction with 

population <10-25K 

30 Per Jurisdiction with 

population <25-50K 

60 Per Jurisdiction with 

population <50-100K 

150 Per Jurisdiction with 

population <100-250K 

Volunteer 

Agency Shelter 

Management 

Team (Type IV) 

NIMS Typed 

Resource 

Organization 

300 Per Jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Activate Mass Care 

Direct Mass Care 

Operations 

Establish Shelter 

Establish Feeding 

Operations 

Shelter General 

Population 

Close Shelter 

Demobilize 

3 Per jurisdiction with 

population ≤10K 

6 Per jurisdiction with 

population 10K-25K 

12 Per jurisdiction with 

population 25K-50K 

23 Per jurisdiction with 

population <50-100K 

56 Per jurisdiction with 

population <100-250K 

Type 1 Small 

Animal 

Sheltering Team 

NIMS Typed 

Resource 

Organization 

111 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Federal/State/ 

Local/NGO/ 

Private Sector 

Shelter Companion 

Animals 
514 Target Capabilities List

RESPOND MISSION: MASS CARE 

Resource 

Element Unit 

Type of 

Element 

# of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

5 Per jurisdiction with 

population ≤10K 

12 Per jurisdiction with 

population 10K-25K 

23 Per jurisdiction with 

population 25K-50K 

45 Per jurisdiction with 

population <50-100K 

111 Per jurisdiction with 

population <100-250K 

Small Animal 

Transportation 

Team 

NIMS Typed 

Resource 

Organization

222 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Shelter Companion 

Animals 

9 Per jurisdiction with 

population ≤10K 

23 Per jurisdiction with 

population 10K-25K 

45 Per jurisdiction with 

population 25K-50K 

89 Per jurisdiction with 

population <50-100K 

222 Per jurisdiction with 

population <100-250K 

Animal Incident 

Response Team 

NIMS Typed 

Resource 

Organization

444 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Shelter Companion 

Animals 

1 Per jurisdiction with 

population ≤10K 

2 Per jurisdiction with 

population 10K-25K 

3 Per jurisdiction with 

population 25K-50K 

6 Per jurisdiction with 

population <50-100K 

16 Per jurisdiction with 

population <100-250K 

Voluntary agency 

field kitchen 

Type IV 

NIMS Typed 

Resource 

Organization 

30 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Feeding 

Operations 

Prepare and 

Distribute Food 

1 Per jurisdiction with 

population <10K-25K 

2 Per jurisdiction with 

population <25K-50K 

Voluntary agency 

field kitchen 

 Type III 

NIMS Typed 

Resource 

Organization 

3 Per jurisdiction with 

population <50-100K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Feeding 

Operations 

Prepare and 

Distribute Food 
Target Capabilities List 515 

RESPOND MISSION: MASS CARE 

Resource 

Element Unit 

Type of 

Element 

# of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

8 Per jurisdiction with 

population <100-250K 

15 Per jurisdiction with 

population <250-500K 

1 Per jurisdiction with 

population <25K-50K 

2 Per jurisdiction with 

population <50-100K 

4 Per jurisdiction with 

population <100-250K 

Voluntary agency 

field kitchen 

Type II 

NIMS Typed 

Resource 

Organization 

8 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Feeding 

Operations 

Prepare and 

Distribute Food 

1 Per jurisdiction with 

population <25K-100k 

2 Per jurisdiction with 

population <100-250K 

Voluntary agency 

field kitchen 

Type I 

NIMS Typed 

Resource 

Organization 

4 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Feeding 

Operations 

Prepare and 

Distribute Food 

4 Per jurisdiction with 

population ≤10K 

10 Per jurisdiction with 

population <10K-25K 

20 Per jurisdiction with 

population <25K-50K 

38 Per jurisdiction with 

population <50-100K 

100 Per jurisdiction with 

population <100-250K 

Voluntary agency 

mobile kitchen 

(Type I) 

NIMS Typed 

Resource 

Organization 

188 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Feeding 

Operations 

Prepare and 

Distribute Food 

1 Per jurisdiction with 

population ≤10K-50K

2 Per jurisdiction with 

population <50-250K

Voluntary 

Agency 

Warehouse Team 

(Type IV)

Non-NIMS 

Resource 

Organization

3 Per jurisdiction with 

population <250-500K

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Bulk 

Distribution 

Operations

Conduct Bulk 

Distribution 

Operations 

1 Per jurisdiction with 

population ≤10K-100K

2 Per jurisdiction with 

population <100-250K

Voluntary 

Agency 

Warehouse Team 

(Type III)

Non-NIMS 

Resource 

Organization

3 Per jurisdiction with 

population <250-500K

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Bulk 

Distribution 

Operations

Conduct Bulk 

Distribution 

Operations 
516 Target Capabilities List

RESPOND MISSION: MASS CARE 

Resource 

Element Unit 

Type of 

Element 

# of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

1 Per jurisdiction with 

population ≤10K-250K

Voluntary 

Agency 

Warehouse Team 

(Type II)

Non-NIMS 

Resource 

Organization 2 Per jurisdiction with 

population <250-500K

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Bulk 

Distribution 

Operations

Conduct Bulk 

Distribution 

Operations 

Voluntary 

Agency 

Warehouse Team 

(Type I)

Non-NIMS 

Resource 

Organization

1 Per jurisdiction with 

population ≤500K

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Bulk 

Distribution 

Operations

Conduct Bulk 

Distribution 

Operations 

2 Per jurisdiction with 

population ≤10K 

4 Per jurisdiction with 

population <10K-25K 

8 Per jurisdiction with 

population <25K-50K 

15 Per jurisdiction with 

population <50-100K 

38 Per jurisdiction with 

population <100-250K 

Voluntary 

Agency Drop 

Trailer Team 

Non-NIMS 

Resource 

Organization 

75 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Establish Bulk 

Distribution 

Operations 

Conduct Bulk 

Distribution 

Operations 

3,000 Per jurisdiction with 

population ≤10K 

7,500 Per jurisdiction with 

population <10K-25K 

15,000 Per jurisdiction with 

population <25K-50K 

30,000 Per jurisdiction with 

population <50-100K 

75,000 Per jurisdiction with 

population <100-250K 

Prepackaged 

meals 

Equipment 

150,000 Per jurisdiction with 

population <250-500K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Prepare and 

Distribute Food 

6 Per jurisdiction with 

population ≤10K 

15 Per jurisdiction with 

population <10K-25K 

30 Per jurisdiction with 

population <25K-50K 

Voluntary 

Agency Shelter 

Childcare Team 

(Type I) 

Non-NIMS 

Resource 

Organization 

60 Per jurisdiction with 

population <50-100K 

Federal/State/ 

Local/NGO/ 

Private Sector 

Shelter General 

Population 
Target Capabilities List 517 

RESPOND MISSION: MASS CARE 

Resource 

Element Unit 

Type of 

Element 

# of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

150 Per jurisdiction with 

population <100-250K 

300 Per jurisdiction with 

population <250-500K 

Meals from 

contractors (e.g., 

vendors, caterers) 

Resource 

Organization 

1.75M Nationally (1.5 Million 

plus 250,000 capacity 

needed to respond to 

concurrent disasters) 

Federal/State/ 

Local/NGO/ 

Private Sector 

Prepare and 

Distribute Food 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 
518 Target Capabilities List

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Target Capabilities List 519

RESPOND MISSION: FATALITY MANAGEMENT 

FATALITY MANAGEMENT 

Capability Definition 

Fatality Management is the capability to effectively perform scene documentation; the complete 

collection and recovery of the dead, victim’s personal effects, and items of evidence; decontamination of 

remains and personal effects (if required); transportation, storage, documentation, and recovery of 

forensic and physical evidence; determination of the nature and extent of injury; identification of the 

fatalities using scientific means; certification of the cause and manner of death; processing and returning 

of human remains and personal effects of the victims to the legally authorized person(s) (if possible); and 

interaction with and provision of legal, customary, compassionate, and culturally competent required 

services to the families of deceased within the context of the family assistance center. All activities 

should be sufficiently documented for admissibility in criminal and/or civil courts. Fatality management 

activities also need to be incorporated in the surveillance and intelligence sharing networks, to identify 

sentinel cases of bioterrorism and other public health threats. Fatality management operations are 

conducted through a unified command structure 

Outcome 

Complete documentation and recovery of human remains and items of evidence (except in cases where 

the health risks posed to personnel outweigh the benefits of recovery of remains). Remains receive 

surface decontamination (if indicated) and, unless catastrophic circumstances dictate otherwise, are 

examined, identified, and released to the next-of-kin’s funeral home with a complete certified death 

certificate. Reports of missing persons and ante mortem data are efficiently collected. Victims’ family 

members receive updated information prior to the media release. All hazardous material regulations are 

reviewed and any restrictions on the transportation and disposition of remains are made clear by those 

with the authority and responsibility to establish the standards. Law enforcement agencies are given all 

information needed to investigate and prosecute the case successfully. Families are provided incidentspecific support services. 

Relationship to National Response Plan ESF Annex 

This capability supports the following Emergency Support Functions (ESFs): 

ESF #4: Firefighting 

ESF #8: Public Health and Medical Services 

ESF #9: Urban Search and Rescue 

ESF #10: Oil and Hazardous Materials Response 

ESF #13: Public Safety and Security 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Res.C4a 1.1 Identify entity responsible for developing and maintaining plans, procedures, programs and 

systems across all hazards 
520 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Res.C4a 1.1.1 Involve Medical Examiner/Coroner (ME/C), emergency preparedness, public health, hospitals, 

and funeral directors, at a minimum, in the development of plans and procedures 

Res.C4a 1.1.2 Develop and maintain comprehensive fatality management mission critical list (i.e., facilities, 

personnel and agencies) 

Res.C4a 1.1.3 Develop contingency plan for obtaining surge personnel for fatality management 

ResC4a 1.2 Develop plans, procedures, protocols, and systems for Scene Operations 

ResC4a 1.3 Develop plans, procedures, protocols, and systems for Morgue Operations 

ResC4a 1.4 Develop plans, procedures, protocols, and systems for Antemortem Data Management 

ResC4a 1.5 Develop plans, procedures, protocols, and systems for Victim Identification 

ResC4a 1.6 Develop plans, procedures, protocols, and systems for Final Disposition 

ResC4a 1.6.6 Develop contingency plans for final disposition of remains 

ResC4a 1.7 Develop plans, procedures, protocols, and systems for Fatality Surge 

Preparedness Measures Metrics

A comprehensive fatality management plan is in place Yes/No 

Fatality management plan addresses management of facilities (e.g. morgue locations, 

portable and temporary morgues, decontamination, storage) 

Yes/No 

Fatality management plan addresses management of family relations (e.g. notification, grief 

services, antemortem information) 

Yes/No 

Fatality management plan addresses victim identification (e.g. conduct DNA, 

finger/palm/foot print analysis; compare morgue and Family Assistance Center information) 

Yes/No 

Fatality management plan addresses antemortem data management (e.g. establish record 

repository and its housing facility, conduct DNA collection of family members, enter 

interview data into library, balance victim needs with those who have lost family members) 

Yes/No 

Fatality management plan addresses personnel needs (e.g. medical, psychological, financial 

assistance) 

Yes/No 

Fatality management plan addresses documenting on-site Fatality Management operations 

(e.g. photographing, measuring, obtaining witness statements) 

Yes/No 

Frequency with which the comprehensive fatality management mission critical list (i.e., 

facilities, personnel and agencies) is reviewed and updated 

Every 12 months 

Frequency with which contingency plans with local, State, and private entities regarding 

final disposition of remains (e.g., contaminated, unclaimed remains) are updated 

Every 2 years 

Frequency with which contingency plans with local, State, and private entities regarding 

surge (e.g., pandemic flu, natural disasters, terrorism) are updated 

Every 2 years 

Frequency with which the collection, storage and management of antemortem data is 

updated 

Every 2 years 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Res.C4a 2.1 Develop and implement training programs for fatality management 
Target Capabilities List 521

RESPOND MISSION: FATALITY MANAGEMENT 

Res.C4a 2.2 Develop and implement exercise programs for fatality management 

Preparedness Measures Metric

Frequency with which training is conducted for augmented fatality management personnel 

(i.e., law enforcement, fire, dental ID team, anthropologists, funeral directors) 

Every 2 years 

Frequency with which exercises are conducted contingency plans with local, State, and 

private entities regarding final disposition of remains (i.e., contaminated, unclaimed 

remains) 

Every 2 years 

Frequency with which exercises are conducted for contingency plans with local, State, 

and private entities regarding surge (i.e., pandemic flu, natural disasters, terrorism) 

Every 2 years 

Frequency with which training is conducted on the collection, storage and management of 

antemortem data 

Every 2 years 

Performance Tasks and Measures/Metrics 

Activity: Direct Fatality Management Tactical Operations 

Definition: Direct all internal Fatality Management Operations, coordinating with other capabilities 

as needed

Critical Tasks

Res.C4a 3.1 Coordinate Fatality Management 

Res.C4a 3.6.1 Coordinate Federal mortuary/morgue services 

Res.C4a 3.6.2 Coordinate with local legal authority in mortuary affairs 

Res.C4a 3.4.3 Coordinate State assistance for next-of-kin notification and collection of antemortem information 

Res.C4a 3.1.1 Identify medico-legal authority 

Res.C4a 3.1.2 Coordinate with medical facility/Department of Public Health/general medical community 

Res.C4a 3.2.1 Develop fatality management inputs to an incident action plan (IAP) by evaluating previously 

developed plans, procedures, protocols, and systems 

Res.C4a 3.1.4 

Coordinate with public health and regulatory agencies to develop plans, procedures, and 

protocols to protect fatality management personnel from infectious diseases, environmental, 

radiological, chemical, and other hazards when handling remains 

Res.C4a 3.3.1 Identify key morgue staff 

Res.C4a 3.4.1 Identify Medical Examiner/Coroner staff for antemortem data collection in Family Assistance 

Center 

Res.C4a 3.5.1 Coordinate regional and State assistance for victim identification and mortuary services, and the 

processing, preparation, and disposition of remains 

Performance Measures Metric

Surge morgue resources are activated Yes/No 

Time in which suitable facilities for fatality management activities are located 

Within 18 hours from 

report of deceased 

victims 
522 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Activity: Activate Fatality Management Operations 

Definition: Notify and mobilize appropriate personnel

Critical Tasks

Res.C4a 4.1 Activate scene operations 

Res.C4a 4.2.1 Mobilize medical examiner/coroner 

Res.C4a 4.2.5 Provide primary care physician with medico-legal authority 

Res.C4a 4.3.1 Deploy portable morgue as appropriate 

Res.C4a 4.2 Activate and implement fatality surge plan 

Res.C4a 4.3.2 Determine morgue location 

Res.C4a 4.4 Request activation of DMORT as appropriate 

Performance Measures Metric

Appropriate number of physicians with medical legal authority are available based on 

incident needs 

Yes/No 

Time in which functional morgue facilities (e.g., portable morgue) are set up Within 24 hours from 

arrival on-scene 

Time in which surge resources and personnel are operational Within 12 hours from 

callout 

Time in which DMORT arrives on-scene and sets up Within 72 hours from 

callout 

Activity: Conduct On-scene Fatality Management Operations

Definition: Conduct scene evaluation, document, and remove fatalities from scene

Critical Tasks

Res.C4a 5.1 Conduct scene survey for fatality management operations 

Res.C4a 5.2 Document scene for fatality management operations 

Res.C4a 5.2.2 Document (photograph, measure, obtain witness statements) in a manner consistent with the 

Medical Examiner/Coroner’s incident plan 

Res.C4a 5.3.1 Gather forensic evidence for fatality management operations 

Res.C4a 5.5 Remove remains to staging 

Res.C4a 5.4 Decontaminate remains 

Res.C4a 5.5.2 Recover human remains in a dignified manner 

Res.C4a 5.5.3 Transport remains to staging 

Res.C4a 5. Transfer remains from staging to morgue operations 
Target Capabilities List 523

RESPOND MISSION: FATALITY MANAGEMENT 

Performance Measures Metric

Time in which initial scene survey is completed Within 2 hours from 

notification 

Time in which appropriate refrigerated storage units arrive on-scene Within 48 hours from 

notification 

Activity: Conduct Morgue Operations

Definition: Store remains temporarily, and conduct multi-specialty forensic analysis of human 

remains to determine the cause and manner of death

Critical Tasks

Res.C4a 6.1 Implement morgue operations 

Res.C4a 6.3 Receive remains at morgue 

Res.C4a 6.4 Store human remains 

Res.C4a 6.6.2 Package personal effects found with remains for return to next of kin (if possible) 

Res.C4a 6.5 Perform autopsies 

Performance Measures Metric

Percent of remains tracked through morgue 100% 

Percent of personal effects tracked with appropriate set of remains 100% 

Percent of complete and accurate records following quality control procedure 100% 

Activity: Manage Antemortem Data

Definition: Initiate plan for the collection and management of antemortem information from family 

members and other sources

Critical Tasks

Res.C4a 7.1 Activate antemortem data collection activities 

Res.C4a 7.1.1 Establish antemortem record repository and its housing facility 

Res.C4a 7.2 Conduct collection of antemortem information 

Res.C4a 7.2.3 Conduct DNA collection of family members 

Res.C4a 7.4 Enter data obtained in interviews into library 

Res.C4a 7.3 Implement a balanced approach to address the needs of victims versus those families who have 

lost family members 

Performance Measures Metric

Time in which a communications system is activated for the general public to report 

missing persons 

Within 60 minutes 

from incident 

Time in which first public announcement is made of missing persons reporting Within 4 hours from 

incident 
524 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Time in which Jurisdictional Medical Examiner/Coroner (ME/C) participates in the 

family assistance center (if one is established) 

Within 2 hours from 

Family Assistance 

Center establishment 

Time in which the antemortem information collection process is activated and staffed Within 48 hours from 

incident 

Time in which the repository/library is ready to receive antemortem victims’ records from 

establishment of Family Assistance Center (FAC) 

Within 48 hours from 

incident 

Activity: Conduct Victim Identification

Definition: Compile antemortem records of missing individuals and compare those to the 

repository of postmortem data collected through On-scene and Morgue Operations

Critical Tasks

Res.C4a 8.1 Activate victim identification operations 

Res.C4a 8.2.5 Compare data from morgue and Family Assistance Center 

Res.C4a 8.2.1 Conduct DNA analysis as indicated 

Res.C4a 8.2.2 Conduct fingerprint/palmprint/footprint analysis 

Res.C4a 8.2.3 Check with local/State/Federal/international databases 

Res.C4a 8.3 Identify remains 

Performance Measures Metric

Percent of recovered remains identified 100% 

Time in which antemortem and postmortem medical, dental, and fatality management 

databases are ready to receive records from establishment of Family Assistance Center 

(FAC) 

Within 48 hours from 

FAC establishment 

Activity: Conduct Final Disposition

Definition: Return the human remains and personal effects to the families or designated legal 

authority (ie, ME/C, Sheriff) for final disposition following recovery, decontamination, 

determination of the cause and manner of death and positive identification

Critical Tasks

Res.C4a 9.1 Activate final disposition operations 

Res.C4a 9.1.1 Issue death certificate 

Res.C4a 9.2 Notify next-of-kin 

Res.C4a 9.2.1 Release remains to next-of-kin or local authorities if no next-of-kin are identified 

Res.C4a 9.2.4 Return affects to next-of-kin 

Performance Measures Metric

Percent of deceased individuals for whom death certificate is issued 100% 
Target Capabilities List 525

RESPOND MISSION: FATALITY MANAGEMENT 

Activity: Demobilize Fatality Management Operations

Definition: Return all fatality management assets and resources to pre-incident readiness levels

Critical Tasks

Res.C4a 10.2 Reconstitute fatality management personnel and equipment 

Res.C4a 10.2.1 Participate in operational review of fatality management operations 

Res.C4a 10.3.1 Identify fatality management staff post-operational needs 

Res.C4a 10.3.2 Provide information to fatality management personnel on where and how to obtain medical, 

psychological, and financial assistance 

Performance Measures Metric

Time in which irretrievable resources are re-ordered Within 48 hours from 

start of demobilization 

Percent of fatality management personnel participating in operational review 100% 

Linked Capabilities 

Linked Capability Relationship 

On-Site Incident 

Management 

Fatality Management integrates itself into the local Incident Command/Unified 

Command system. On-Site Incident Management also provides the initial notification 

of deaths to Fatality Management. 

Search and Rescue 

(Land-Based) 

Fatality Management receives deceased victims from Search and Rescue (Land-Based) 

personnel. 

Emergency Triage and 

Pre-Hospital Treatment 

Fatality Management receives deceased victims from Emergency Triage and PreHospital Treatment personnel. 

WMD and Hazardous 

Materials Response and 

Decontamination 

Fatality Management receives deceased victims from HazMat personnel. 

Fire Incident Response 

Support 

Fatality Management receives decease victims from Fire Incident Response Support 

personnel. 

Emergency Public Safety 

and Security Response 

Fatality Management receives deceased victims from Emergency Public Safety and 

Security Response personnel. This capability also provides perimeter security for 

Morgue Operations. 

Emergency Public 

Information and Warning 

Emergency Public Information provides information on family assistance to next-of-kin 

Counter-Terror 

Investigation and Law 

Enforcement 

Fatality Management receives access to law enforcement databases to aid the victim 

identification. 

Epidemiological 

Surveillance and 

Investigation 

Fatality Management coordinates with Epidemiological Surveillance and Investigation 

in determining if a death is the result of an exposure or disease. 
526 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Direct Fatality 

Management 

Tactical 

Operations

Conduct Victim 

Identification

Manage 

Antemortem Data

Notification of deaths

Conduct 

On-scene Fatality 

Management 

Operations

Autopsy 

warranted?

Conduct Final 

Disposition

Demobilize Fatality 

Management 

Operations

End: Remains identified and 

returned to family, death 

certificates issued

Estimate number of anticipated fatalities

Identify location and hazards

Provide location 

of Family 

Assistance Center

Utilize Law Enforcement databases

Provide number of remains recovered

Cause of death determined

Provide cause of 

death information if 

communicable 

disease suspected

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Start: 

Notification 

of deaths

On-Site Incident 

Management

Search and 

Rescue (LandBased)

Emergency 

Triage and PreHospital 

Treatment

WMD/Hazardous 

Materials 

Response and 

Decontamination

Remains provided

Database information 

provided

Epidemiological 

Surveillance and 

Investigation

Remains documented and 

transported to morgue

Victim identified, 

cause of death 

determined, death 

certificate issued

No

Yes

Remains identified

All recovered remains identified and 

returned to next of kin or legal authority

Remains 

transported 

to morgue

Remains provided

Provide perimeter 

security

Emergency Public 

Information and 

Warning

Location 

of Family Assistance 

Center provided

Resources requested

Personnel identified, mobilized, and 

on-scene ready to begin operations

Capability Activity Process Flow

Fatality Management Capability

Linked 

Capabilities Relationship Activate Fatality 

Management 

Operations

Conduct Morgue 

Operations

Fire Incident 

Response Support

Counter-Terror 

Investigation and 

Law Enforcement

Emergency 

Public Safety 

and Security 

Response
Target Capabilities List 527

RESPOND MISSION: FATALITY MANAGEMENT 

Resource Element Description 

Resource Elements Components and Description 

Department of Defense Mortuary 

Disaster Mortuary Operational Response Team 

(DMORT) – Type 1 

Per NIMS 

DMORT - WMD Per NIMS 

DMORT-Family Assistance Center (FAC) Personnel: Family Assistance Center (FAC) manager, DNA 

specialist, data entry, administrative, FAC core support 

elements, scheduler, medical records specialist, interview 

specialist, language interpreter (all necessary languages), 

antemortem IT/communications team, notification team, 

social services rep/Chaplain, ME/C public affairs officer 

Deployable Portable Morgue Unit (DPMU) Per NIMS 

Morgue Operations Team Personnel: Funeral director or embalmer, body tracker (should 

be funeral directors, medico-legal investigators (MLI) or 

similar), forensic odontologist team, fingerprint specialist, XRay technician or radiologist, postmortem IT manager, postmortem data entry clerk, forensic anthropologist, DNA 

specialist, forensic pathology team, PE technician (MLI), 

evidence technician (LEO), lab technicians, security team, 

safety officer 

Morgue Security Team 

DOJ/FBI Evidence Response Team Unit 

Body Recovery Unit 

Medical Support Team 

Field Investigative Unit Per DPMU. Personnel: Medico-Legal Investigator (MLI), 

Law Enforcement Investigative Unit, Photographer (Photo), 

Scribe/GPS coordinates (Scribe), Anthropologists, Dental 

Team

Scene Logistics Team 

Escort Security Team (provided by ESF 13) 

FM Staging Security Team 

Incident Historian 

Remains Decontamination Team 

Underwater Recovery Team 

(provided by ESF 9) 

Jurisdictional Medical Examiner/Coroner 

(ME/C) 

Refrigerated storage 

Mortuary Officers (Funeral Directors) 

Family Assistance Center (FAC) 
528 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Resource Elements Components and Description 

personnel/Antemortem Data Collection Team 

Medical Examiner/Coroner Public Affairs 

Officer 

ME/C Public Information Officer 

Scene operations personnel/Recovery Team: 

(per 12 hr shift) 

Safety Officer 

Scene Communications Team 

Storage Officer 

FAC Manager 

DNA Specialist 20 personnel from law enforcement or DNA specialists per 

shift 

Data entry 

Administrative 

Scheduler 

Medical Records Specialist 

Interview Specialist 

Language Interpreter (all necessary languages) 

Antemortem IT/Communications Team 

Notification Team 

Social services representative /chaplain 

Law Enforcement 

Embalming Section 

Body Tracker One or more Funeral Directors, MLIs, or similar personnel 

Dental Section 

Fingerprint Section 

Radiology Section (digital equipment) 

Postmortem IT Manager 

Post-Mortem Data Entry Clerk 

Anthropology Section 

DNA Section 

Pathology Section 

Personnel Effects and Photography Section 

Logistics Section 

Safety Officer 

Medical Team 
Target Capabilities List 529

RESPOND MISSION: FATALITY MANAGEMENT 

Resource Elements Components and Description 

City Engineers/Inspectors 

State Dental Association (Response Team) 

State ME/C Association (Response Team) 

State Funeral Director Association (Response 

Team) 

NTSB Family Assistance Team 

DHS National Disaster Medical System’s 

(NDMS) Disaster Medical Assistance Teams 

(DMAT) 

DHS Nuclear Incident Support Teams (NIST) 

Planning Assumptions 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the Improvised Nuclear Device (IND) scenario. Other 

scenarios were reviewed to identify required adjustments or additions to the planning factors and 

national targets.

 This Capability applies to a wide range of incidents and emergencies, accidental or deliberate 

including disease outbreaks, geological and meteorological disasters, nuclear, hazardous materials 

(hazmat) or conventional events and all manners of transportation incidents (land, air, marine). 

 Family members will mobilize to the incident scene to search for loved ones. 

 Families will surge for information on unaccounted family members and share information on 

unaccounted family members. 

 Recovery and identification of remains is expected to continue for multiple years. 

 Active duty military will be victims in the event. Therefore, the military’s Casualty Assistance Office 

will be involved. 

 Emergency workers, including those necessary for fatality management, may not report to duty due to 

evacuating their families or because they have been injured or killed. 

 Sceneops: After the recovery process begins, a Recovery team (consisting of Field Investigation and 

Body Handling Units) will process 3 bodies/hour (for a 12-hr shift). 

 Under ideal circumstances (non-contaminated, physically identifiable, and intact remains), the Dover 

Mortuary – at full resource activation (12 (Medical Examiner/Coroner (ME/C), plus support staff and 

logistic support) – can handle 100 cases per day. 

 Antemortem Data Collection In The Family Assistance Center (FAC) A 2-person interview team in 

the FAC requires 2 hours/family interview (+ breaks). 5 families can be interviewed over the course 

of a 12-hour shift by one team. Additional support elements handle the collection and management of 

specimens (DNA) and records (medical). 

 Morgueops: One 35-member Morgue Operations team can process and positively identify 5 

bodies/day (based on historical data – see attachment A) 

 The National Association of Medical Examiners recommends that a pathologist can adequately 

perform 250-350 autopsies per year. 

 Scene hazards such as structural collapse, explosives and chemical hazards are communicated to the 

ME/C upon notification and/or arrival. 
530 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

 Fatality management staffing includes ME/C, funeral service personnel, cemetery and crematorium 

personnel, dentist, anthropologist, crime lab technician, and any other person whose responsibility 

involves direct handling of human remains. 

 The ME/C is defined as the agency chief and all staff authorized to act on behalf of his/her authority 

(e.g., Medico Legal Investigators [MLI]). 

 Community leaders will support the time requirements to conduct a safe, efficient, methodical, and 

complete collection of human remains and evidence for the purposes of crime scene investigation for 

law enforcement (LE) and victim ID for the ME/C. 

 As worker safety permits, remains, personal effects and items of evidence will be processed by 

fatality management personnel in accordance with incident action plan (IAP). 

 Deaths will be protracted and require medical treatment facilities to report deaths to ME/C. 

 There will be multiple sites for managing fatalities in multiple jurisdictions. 

 ME/C may have to institute a unified command with other ME/C. 

 ME/C may have to institute a decentralized approach due to lack of communications and 

geographical distribution. 

 Different jurisdictions have different laws about public health emergencies and who has authority. 

 Different jurisdictions have different laws pertaining to the issuance of death certificates when there 

is no scientific evidence of an individual’s remains. 

 Different jurisdictions may have different standards for processing remains, identifying remains, 

ruling out atypical cases, those requiring autopsy and establishing cause and manner of death. 

 There may be a large discrepancy in the identification and release of bodies among jurisdictions. 

 In the event of widely dispersed mass fatalities, significant damage to infrastructure, and/or where the 

risks posed to Fatality Management personnel outweigh the benefit of conducting scene operations, 

performance of critical tasks will take longer to accomplish 

 IND in a single event located in a major urban area. 

 The explosion and electromagnetic pulse have disrupted/destroyed infrastructure, taking out 

communications, electrical grids, water, transportation, and computers at ground zero. Electrical 

outages may cascade down the stem causing blackouts on the entire Eastern seaboard. 

 There may be simultaneous transportation accidents due to flash blindness or permanent retinal 

damage in operators. 

 The Federal Government would be severely impacted with cascading implications. 

 There will be up to 229,270 fatalities. 

 Due to the severity of the explosion, no remains will be found in the crater (30 percent of fatalities = 

68,781). However, appropriate legal document will be required to be generated by the medical-legal 

authority (death certificate by judicial decree). 

 Some remains will be in areas of high levels of fallout. (20 percent of fatalities = 45,854). These 

remains in the hot zone will not begin to be recovered until between 3 and 14 days after incident at 

which time the radiation level should be approximately 0.1 percent of its initial level following the 

detonation of the IND. 

 The majority of remains available for immediate processing (50 percent of fatalities = 114,635) will 

be burn victims in areas where radiation is not hazardous. 

 The local ME/C is no longer operationally functional due to the effects of the IND. Mutual aid with 

the adjoining medical examiner system will respond to assist the local medical examiner. 
Target Capabilities List 531

RESPOND MISSION: FATALITY MANAGEMENT 

 Decontamination: At present, decontamination assets are at the Federal level and consist of one 

Department of Defense (DOD) team and one Disaster Mortuary Operational Response Team – 

Weapons of Mass Destruction (DMORT-WMD) team. These resources would take 12 – 24 hours to 

arrive on-scene after receiving orders and could process up to 25 bodies/hour. This assumption does 

not include the actual recovery of the contaminated remains. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability 

Resource Organization Estimated 

capacity 

Scenario 

Requirement 

values 

Quantity of 

resources needed 

Disaster Mortuary Response 

Team (DMORT) 

 

DMORT-WMD 

DMORT Family Assistance 

Team 

 

Deployable Portable Morgue 

Unit (DPMU) 

2 2 2 

Morgue operations Team Time frames are 

based on 1.5 hrs 

to perform each 

autopsy. 

112,000 set of remains 

to autopsy. 

A morgue ops team this 

size can process 100 sets of 

remains per day (12 hour 

shift per morgue) 

Security Team (provided by 

ESF 13) 

 

Body Recovery Unit 1 Body Recovery 

Unit for each 

Field 

Investigative 

Unit. 4 body 

handlers per 

team 

15 units per 12 hr shift 

(5 units suiting, 5 in 

field and 5 coming out 

of field) 

414 days 

Medical Support Team 

Field Investigative Unit Each unit can 

recover 36 

bodies per shift 

15 units per 12 hr shift 

(5 units suiting, 5 in 

field and 5 coming out 

of field) 

414 days 

Scene Logistics Team 1 per incident 1 per incident 414 days 

Escort Security Team 

(provided by ESF 13) 

1 per field 

investigative 

unit, 1 per body 

recovery unit 

10 teams per 12 hr shift 414 days 

FM Staging Security Team 2 teams, one for 

hot and cold 

 414 days 
532 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Resource Organization Estimated 

capacity 

Scenario 

Requirement 

values 

Quantity of 

resources needed 

staging areas 

Incident Historian 1 team per 

incident 

1 team per incident 1 team 

Remains Decontamination 

Team 

2 remains per 1 

hr per 35 

member team 

16 teams per day 388 days 

Underwater Recovery Team 

(provided by ESF 9) 

 

Jurisdictional Medical 

Examiner/Coroner (ME/C) 

1 per jurisdiction 1 per jurisdiction 1 for each jurisdiction 

affected 

Family Assistance Center 

(FAC) personnel/Antemortem 

Data Collection Team 

Historical data 

shows 10 family 

members will 

present at the 

FAC for each 

victim. 

If FACs are established 

for the IND scenario we 

assume 1,000,000 will 

present at FACs/FAC.) 

However, it may well be 

that antemortem 

information will be 

collected telephonically. 

Medical Examiner/Coroner 

Public Affairs Officer 

1 per shift 2 per day 6 per day 

ME/C Public Information 

Officer 

1 1 1 

Scene operations 

personnel/Recovery Team: 

(per 12 hr shift) 

 

Safety Officer 1 per incident 1 per incident 414 days 

Scene Communications Team 1 per incident 1 per incident 414 days 

Storage Officer 1 per incident 1 per incident 414 days 

FAC Manager 1 per FAC 1 per FAC 1 per affected jurisdiction = 

3 

DNA Specialist each specialist 

can collect 2 

samples per hour 

40 per day for each FAC 120 per day 

Data entry 50-60 personnel 120 per day for each 

FAC 

360 per day 

Administrative 5 per shift 10 per day 30 per day 

Scheduler 2 personnel 4 per day 12 per day 

Medical Records Specialist 10 personnel per 20 per day 60 per day 
Target Capabilities List 533

RESPOND MISSION: FATALITY MANAGEMENT 

Resource Organization Estimated 

capacity 

Scenario 

Requirement 

values 

Quantity of 

resources needed 

shift 

Interview Specialist 100 teams of 2 

each per shift – 

each team can 

interview 5 

families per day 

200 per day - 600 per day 

Language Interpreter (all 

necessary languages) 

As situation 

dictates 

 

Antemortem 

IT/Communications Team 

5 personnel per 

team per shift 

10 per day 30 per day 

Notification Team 20 per daytime 

shift 

20 per day 60 per day 

Social services representative 

/chaplain 

As determined 

by social 

services/chaplain 

 

Law Enforcement As determined 

by law 

enforcement 

 

Embalming Section 4 personnel per 

station 

48 personnel (8 

embalmings per shift) 

1100 days 

Body Tracker (should be 

Funeral Directors, MLI’s or 

similar) 

8 personnel per 

shift 

16 personnel per day 1100 days 

Dental Section 5 personnel per 

station 

10 personnel per day 1100 days 

Fingerprint Section 2 personnel per 

station 

4 per day 1100 days 

Radiology Section 

(digital equipment) 

2 personnel per 

station 

4 per day 1100 days 

Postmortem IT Manager 1 = section 

leader 

2 per day 1100 days 

Post-Mortem Data Entry Clerk 3 per section 6 per day 1100 days 

Anthropology Section 2 personnel per 

section 

4 per day 1100 days 

DNA Section 2 personnel per 

section 

4 per day 1100 days 

Pathology Section 3 personnel per 

section 

6 per day 1100 days 
534 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Resource Organization Estimated 

capacity 

Scenario 

Requirement 

values 

Quantity of 

resources needed 

Personnel Effects and 

Photography Section 

4 personnel per 

section 

8 per day 1100 days 

Logistics Section 4 personnel per 

shift 

8 per day 1100 days 

Safety Officer 1 per shift 

Medical Team 1 per morgue 

City Engineers/Inspectors 

State Dental Association 

(Response Team) 

 

State ME/C Association 

(Response Team) 

 

State Funeral Director 

Association (Response Team) 

 

NTSB Family Assistance 

Team 

 

DHS National Disaster 

Medical System’s (NDMS) 

Disaster Medical Assistance 

Teams (DMAT) 

 

DHS Nuclear Incident Support 

Teams (NIST) 

 

Approaches for Large-Scale Events 

(Please see introduction to Fatality Management Target Capability document as well as discussion of IND 

earlier in this document). 

Pandemic Influenza 

 Personnel involved in fatality management should be considered as critical and be given as the same 

priority group determination as first responders for the distribution of limited antiviral medications 

and vaccines. 

 Because pandemic influenza is a natural disease event, the Medical Examiner/Coroner (ME/C) may 

or may not have the lead responsibility to manage fatalities. In some areas, local jurisdictional 

authorities in coordination with hospitals, funeral homes, and EMS and law enforcement responders 

will likely manage the remains. In some jurisdiction, the Medical Examiner/Coroner’s (ME/C) 

primary role may be to assist in the identification process. 

 The influenza pandemic would spread quickly across the United States, affecting most communities 

virtually simultaneously for purposes of planning. The use of assets at the Federal Government 

would likely be relatively small related to the local demands for its voluntary DMORT members. 

Similarly, DOD assets would likely be stretched very thin. 
Target Capabilities List 535

RESPOND MISSION: FATALITY MANAGEMENT 

 Among working aged adults, about 20 percent to 25 percent will become ill during the pandemic 

wave. About 10 percent will be sick or caring for ill family members during the peak of the 

community outbreak. Rates could be higher in some communities or work settings. 

Aerosol Anthrax 

 Fatalities would be victims of crime (terrorism) 

 Most would die in medical facilities; could be dispersed geographically 

 ME/C in coordination with law enforcement would need to establish what level of evidence would 

need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number) 

 Fatality Management workers should be treated as first responders are with respect to personal 

protective equipment (PPE) and medications/vaccinations. 

 The need for restrictions on final disposition, if any, e.g. cremation should be addressed in the 

planning process and implemented in the response. 

Pneumonic Plague 

 Criminal event (terrorism). 

 ME/C in coordination with law enforcement would need to establish what level of evidence would 

need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number) 

 Due to person-to-person transmission, some of the same issues as pandemic influenza. 

 The need for restrictions on final disposition (cremation), precautions for transportation of remains, 

decontamination of transport vehicles, and other issues should be addressed in the planning process 

and implemented in the response. 

 Fatality Management workers should be treated as first responders are with respect to PPE and 

medications/vaccinations. 

Blister Agent 

 Criminal event so ME/C would be heavily involved. 

 Fatalities would need to be decontaminated unless this had occurred en route to medical treatment. 

Toxic Industrial Chemical 

 Fatalities would need to be decontaminated unless this had occurred en route to medical treatment. 

 State, Regional, or Federal assets may be needed depending on the jurisdiction in which it occurs. 

Nerve Agent 

 ME/C in coordination with law enforcement would need to establish what level of evidence would 

need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number) 

 Fatalities would need to be decontaminated unless this had occurred en route to medical treatment. 

 Due to the large number of fatalities, all levels of governmental response would likely be activated. 

Chlorine Tank Explosion 

 ME/C in coordination with law enforcement would need to establish what level of evidence would 

need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number) 

 Fatalities would need to be decontaminated unless this had occurred en route to medical treatment. 

 Due to the large number of fatalities, all levels of governmental response would likely be activated. 

Major Earthquake 

 Search & Rescue (Land-Based) would be heavily involved in extracting remains from collapsed 

structures. The rate of recovery would influence the mortuary workload. 
536 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

 The severe damage to infrastructure as well as large number of infrastructure makes it likely that a 

centralized call center outside the region would be established to collect missing persons reports and 

help reunite families/friends and determine those likely dead. This would also reduce the strain posed 

by bringing personnel into an area already strapped for shelter, food, etc. Antemortem data could be 

collected telephonically as needed. These capabilities could be returned to the State as infrastructure 

is re-established. 

 While this is a natural event, ME/C would likely be heavily involved in the identification process of 

remains. 

Radiological Dispersal 

 Due to criminal nature of event, ME/C and law enforcement would work together closely. 

 Those who are killed by the explosion would need decontamination. Those dying later in a medical 

facility should not require this. 

Improvised Explosive Device 

 Due to criminal nature of event, ME/C and law enforcement would work together closely. 

 Depending on the location, the number of fatalities could require State, regional, and, perhaps, 

Federal assistance to manage the surge. 

Food Contamination 

 ME/C in coordination with law enforcement would need to establish what level of evidence would 

need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number) 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported 

by Element 

Department of 

Defense Mortuary 

Federal 

Resource 

Organization 

1 Nationally Federal Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Manage 

Antemortem Data 

Conduct Victim 

Identification 

Conduct Final 

Disposition 

Demobilize 

Disaster Mortuary 

Operational 

Response Team 

(DMORT) – Type 

1 

NIMS 

Resource 

Organization 

 Nationally (DHS 

FEMA NDMS) 

Federal Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Conduct Morgue 

Operations 

Demobilize 
Target Capabilities List 537

RESPOND MISSION: FATALITY MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported 

by Element 

DMORT - WMD NIMS 

Resource 

Organization 

 Nationally (DHS 

FEMA NDMS)

Federal Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

DMORT-Family 

Assistance Center 

(FAC) 

Non-NIMS 

Resource 

Organization 

 Nationally (DHS 

FEMA NDMS)

Federal Activate Fatality 

Management 

Operations 

Manage 

Antemortem Data 

Demobilize 

Deployable 

Portable Morgue 

Unit (DPMU) 

NIMS 

Resource 

Organization 

3 Nationally (DHS 

FEMA NDMS)

Federal 

(DHS/FEMA) 

Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

Deployable 

Portable Morgue 

Unit (DPMU) 

NIMS 

Resource 

Organization 

1 Per every 5 States State Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

Morgue Operations 

Team 

Non-NIMS 

Resource 

Organization 

1 Per Federal 

Deployable Portable 

Morgue Unit 

Federal Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

Morgue Operations 

Team per DPMU 

Non-NIMS 

Resource 

Organization 

1 Per State 

Deployable Portable 

Morgue Unit 

State Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

Morgue Security 

Team 

Non-NIMS 

Resource 

Organization 

1 Per Federal or State 

Deployable Portable 

Morgue Unit 

State/Local Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

DOJ/FBI Evidence 

Response Team 

Unit 

Non-NIMS 

Resource 

Organization 

 Federal Activate Fatality 

Management 

Operations 

Conduct On-
538 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported 

by Element 

scene Operations 

Demobilize 

Body Recovery 

Unit 

Non-NIMS 

Resource 

Organization 

30 Per Federal or State 

Deployable Portable 

Morgue Unit 

Federal/State Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Medical Support 

Team 

Non-NIMS 

Resource 

Organization 

1 Per Federal or State 

Deployable Portable 

Morgue Unit 

Federal/State Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Field Investigative 

Unit 

Non-NIMS 

Resource 

Organization 

30 Per Federal or State 

Deployable Portable 

Morgue Unit 

Federal/State Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Scene Logistics 

Unit 

Non-NIMS 

Resource 

Organization 

1 Per Federal or State 

Deployable Portable 

Morgue Unit 

Federal/State Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Escort Security 

Team 

Non-NIMS 

Resource 

Organization 

30 Per Federal or State 

Deployable Portable 

Morgue Unit 

Federal/State Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Fatality 

Management 

Staging Security 

Team 

Non-NIMS 

Resource 

Organization 

1 Per staging area (26) State/Local Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Incident Historian 

Team 

Non-NIMS 

Resource 

Organization 

1 Per State State Direct Fatality 

Management 

Tactical 

Operations 

Activate Fatality 

Management 

Operations 

Conduct On-
Target Capabilities List 539

RESPOND MISSION: FATALITY MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported 

by Element 

scene Operations 

Conduct Morgue 

Operations 

Manage 

Antemortem Data 

Conduct Victim 

Identification 

Demobilize 

Remains 

Decontamination 

Team 

Non-NIMS 

Resource 

Organization 

16 Per State 

Deployable Portable 

Morgue Unit 

State/Local Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Conduct Morgue 

Operations 

Demobilize 

Dive (underwater) 

Recovery Team 

Non-NIMS 

Resource 

Organization 

28 Nationally at predetermined 

locations 

Federal Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Dive (underwater) 

Recovery Team 

Non-NIMS 

Resource 

Organization 

1 Per State State Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Demobilize 

Medical Examiner/ 

Coroner 

Personnel 1 Per State State Direct Fatality 

Management 

Tactical 

Operations 

Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Conduct Morgue 

Operations 

Conduct Victim 

Identification 

Conduct Final 

Disposition 

Demobilize 

Medical Examiner/ 

Coroner 

Personnel 1 Per jurisdiction Local Direct Fatality 

Management 
540 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported 

by Element 

Tactical 

Operations 

Activate Fatality 

Management 

Operations 

Conduct Onscene Operations 

Conduct Morgue 

Operations 

Conduct Victim 

Identification 

Conduct Final 

Disposition 

Demobilize 

Refrigerated 

storage (to 

accommodate 200 

remains) 

Equipment 1 Nationally Federal Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

Refrigerated 

storage (to 

accommodate 100 

remains) 

Equipment 1 Per State State Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

Refrigerated 

storage 

(accommodate 

remains) 

Equipment 1 Per 10% of local 

population 

Local Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Demobilize 

Mortuary Officers 

(Funeral Directors) 

Personnel Federal/State/L

ocal 

Direct Fatality 

Management 

Tactical 

Operations 

Activate Fatality 

Management 

Operations 

Conduct Morgue 

Operations 

Conduct Victim 

Identification 

Conduct Final 

Disposition 

Demobilize 
Target Capabilities List 541

RESPOND MISSION: FATALITY MANAGEMENT 

Resource 

Element Unit 

Type of 

Element 

# of Units Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported 

by Element 

Antemortem Data 

Collection Team 

within Family 

Assistance Center 

Non-NIMS 

Resource 

Organization 

3 Nationally Federal Activate Fatality 

Management 

Operations 

Manage 

Antemortem Data 

Demobilize 

Antemortem Data 

Collection Team 

within Family 

Assistance Center 

Non-NIMS 

Resource 

Organization 

1 Per State State Activate Fatality 

Management 

Operations 

Manage 

Antemortem Data 

Demobilize 

Antemortem Data 

Collection Team 

within Family 

Assistance Center 

Non-NIMS 

Resource 

Organization 

1 Per UASI Local Activate Fatality 

Management 

Operations 

Manage 

Antemortem Data 

Demobilize 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative. 

U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004. 

http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf 

5. OSHA Technical Manual. U.S. Department of Labor. January 1999. 

6. Biological and Chemical Terrorism: Strategic Plan for Preparedness and Response. Centers for Disease Control 

and Prevention. April 2000. http://www.cdc.gov/mmwr/preview/mmwrhtml/rr4904a1.htm 

7. First Responders Guidelines for Mass Casualty Decontamination during a Terrorist Chemical Agent Incident. 

United States Army Soldier and Biological Chemical Command. 2000. 

http://www1.va.gov/vasafety/docs/July25-2000-DASHOCall.pdf. 

8. Mass Fatality Incidents: A Guide for Human Forensic Identification. Special report. Technical Working Group 

for Mass Fatality Forensic Identification. U.S. Department of Justice, Office of Justice Programs, National 

Institute of Justice. June 2005. NCJ 199758. 

9. Capstone Document: Mass Fatality Management for Incidents Involving Weapons of Mass Destruction. 

Department of the Army, Research Development and Engineering Command, Military Improved Response 

Program and U.S. Department of Justice, Office of Justice Programs, Office for Domestic Preparedness. 

February 2005 (forthcoming 2005). 

10. Mass Fatality Plan. National Association of Medical Examiners. 

http://www.thename.org/Library/NAME%20Mass%20Fatality%20Plan%20with%20appendices.pdf. 
542 Target Capabilities List 

RESPOND MISSION: FATALITY MANAGEMENT 

11. Death Investigations System Descriptions. Centers for Disease Control and Prevention. 

http://www.cdc.gov/epo/dphsi/mecisp/death_investigation.htm
Target Capabilities List 543

Recover Mission Area 

Target Capabilities 
544 Target Capabilities List 

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Target Capabilities List 545 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

STRUCTURAL DAMAGE ASSESSMENT

Capability Definition 

Structural Damage Assessment is the capability to conduct damage and safety assessments of civil, 

commercial, and residential infrastructure and to perform structural inspections, and mitigation activities. 

The capability includes being able to provide contractor management, construction management, cost 

estimating, technical assistance, and other engineering services to support and manage response and 

recovery operations. 

Outcome 

Accurate situation needs and damage assessments occur. The full range of engineering, building 

inspection, and enforcement services are implemented, managed, and coordinated in a way that 

maximizes the use of resources, aids emergency response, implements recovery operations, and restores 

the affected area to pre-event conditions. Mitigation projects to lessen the impact of similar future events 

are identified and prioritized. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports Emergency Support Function (ESF) #3: Public Works and Engineering. 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Rec.C3a 1.3.4 Develop standards and procedures to identify qualified contractors offering recovery/restoration 

services 

Rec.C3a 1.1.2 Develop damage assessment procedures 

Rec.C3a 1.4 Develop mitigation plans and procedures 

Rec.C3a 1.4.1 Identify mitigation measures and emergency restoration procedures 

Rec.C3a 1.5 Develop qualification and certification standards for paid and volunteer staff 

Rec.C3a 1.1.3 Maintain situation and damage assessment plans 

Preparedness Measures Metrics

Damage assessment procedures are in place Yes/No 

Procedures address identifying and mobilizing personnel to support structural damage 

assessment operations 

Yes/No 

Procedures address required forms, reports, documentation, and follow-up notation Yes/No 

Procedures address conducting inspections and assessments Yes/No 

Procedures address post-incident assessments and follow-up Yes/No 
546 Target Capabilities List 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

Procedures address demobilization of structural damage assessment operations Yes/No 

Mitigation plans and procedures are in place Yes/No 

Mitigation measures and emergency restoration procedures are in place Yes/No 

Procedures address identifying qualified contractors offering recovery/restoration service Yes/No 

Relevant qualifications and certification standards for paid and volunteer staff are in place Yes/No 

Situation and damage assessment plans are in place Yes/No 

Code enforcement activities are conducted Yes/No 

Street maps are available for determining alternate routes Yes/No 

Critical Resource List is in place Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Rec.C3a 2.1.2 Conduct training on damage assessment procedures 

Rec.C3a 2.1.3 Conduct training on mitigation plans and procedures 

Rec.C3a 2.2.1 Exercise damage assessment procedures 

Rec.C3a 2.2.2 Exercise mitigation plans and procedures 

Preparedness Measures Metric

“Just-in-time” training for personnel is developed and implemented Yes/No 

Damage assessment procedures are exercised Yes/No 

Mitigation plans and procedures are exercised Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Activate Structural Damage Assessment 

Definition: Alert assessment staff to the potential need for services and conduct notifications, 

dispatch, and other staff mobilization activities necessary to begin assessment activities 

Critical Tasks 

Rec.C3a 4.1 Conduct emergency dispatch and notification for structural damage and mitigation assessment 

personnel 

Rec.C3a 4.2 Dispatch secondary response agencies 

Performance Measures Metric 

Time in which damage assessment personnel are mobilized after the observed end of the 

incident 

Within 24 hours from 

notification 
Target Capabilities List 547 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

Activity: Direct Structural Damage Assessment Operations 

Definition: In response to a notification for recovery assets, provide the overall management and 

coordination of the response, through to demobilization

Critical Tasks

Rec.C3a 3.1.2 Coordinate resources to conduct building inspections and damage assessment 

Rec.C3a 3.7 Support incident response operations according to incident management team (IMT) assignments 

on the inputs to the incident action plan (IAP) 

Rec.C3a 3.1.3 Recommend prioritization schedule of critical infrastructure services, facilities, and assets 

restoration based on structural damage and mitigation assessments 

Rec.C3a 3.6 Develop standards and procedures to identify qualified contractors offering recovery/restoration 

services 

Rec.C3a 3.7.1 Report and document the incident by completing and submitting required forms, reports, 

documentation, and follow-up notation 

Rec.C3a 3.5 Integrate appropriate private-sector entities into incident response activities 

Performance Measures Metric

Private sector entities participate in recovery efforts Yes/No 

Time in which prioritization schedule for critical infrastructure is developed Within 24 hours from assessment 

completion 

FEMA and non-FEMA mitigation activities are identified and prioritized 

concurrent to development of individual project worksheets for specific 

repair/reconstruction projects 

Yes/No 

Activity: Conduct Inspections and Assessments

Definition: Conduct safety inspections to support the safety of first responders and to assess the 

habitability of residences. Support assessments of public facilities, lending civil, structural, and 

mechanical engineering support to affected entities and other assessment staff 

Critical Tasks 

Rec.C3a 5.4.3 Assist in the identification of incident response coordination centers for rebuilding property 

Res.B1a 5.3 Conduct debris assessment 

Res.B1a 5.3.1 Assess the requirement for decontamination or safe demolition, removal, and disposition of 

contaminated debris. 

Rec.C3a 5 Conduct building inspections and damage assessments of public and private structures 

Rec.C3a 5.4.1 Assessment the need for emergency flood protection and/or emergency erosion control 

Rec.C3a 5.2.2 Identify the need for additional engineering and assessment resources from other Federal 

agencies and issue mission assignments to activate such resources 

Rec.C3a 5.4.2 Assist with the assessment to determine the requirement to relocate affected essential services to 

back-up locations 

Rec.C3a 5.3.1 Assess buildings and private structures to determine occupancy eligibility 
548 Target Capabilities List 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

Rec.C3a 5.3.2 Provide geo-coded status report of community, homes and facilities identified as safe or unsafe 

to re-enter and re-occupy 

Rec.C3a 5.4.4 Determine need for recovery programs 

Performance Measures Metric 

Situation assessments are conducted using one of following methods: (1) 

aerial reconnaissance; (2) remote sensing; (3) computer modeling (e.g., 

HAZUS); (4) rapid field assessments/windshield surveys 

Yes/No 

Results of situation assessments are compared and contrasted to provide best 

initial estimate 

Yes/No 

Time in which situation assessment is conducted and provides results Within 24 hours from the incident 

Time in which a detailed situation assessment is conducted, to include 

information on buildings that are in imminent danger of collapse and critical 

resources of infrastructure are threatened 

Within 48 hours from the 

conclusion of the disaster 

Time in which building safety inspections are conducted for habitability 

(green, yellow, and red tags) 

Within 4 weeks from the event 

Time in which an emergency work damage assessment and public works (PW) 

preparation is conducted 

Within 6 months from end of the 

incident period 

Time in which a permanent work damage assessment and public works (PW) 

preparation (FEMA and non-FEMA) is conducted 

Within 12 months from end of the 

incident period 

Activity: Provide Mitigation and Technical Assistance 

Definition: Support recovery personnel as they work to develop scopes of work and costs for 

restoring public buildings and infrastructure. Participate in the identification of mitigation 

opportunities that may be factored into repair, restoration, and recovery efforts.

Critical Tasks 

Rec.C3a 6.1.8 Coordinate, fund, and implement contracts for construction management and inspection 

Rec.C3a 6.1.5 Coordinate, fund, and implement contracts for emergency repair of utilities and other services 

Rec.C3a 6.1.6 Manage, monitor, and/or provide of technical advice on debris management and 

reestablishment of ground and water routes into the affected area 

Rec.C3a 6.1.7 

Assist with the implementation and management of Federal Emergency Management Agency 

(FEMA) Public Assistance Program (PA) to support the repair and restoration of public 

property 

Rec.C3a 6.1.9 

Participate in post-incident assessments of structures, public works and infrastructure to 

develop cost estimates, complete written project worksheets, determine priority 

repair/reconstruction projects, and help to prioritize engineering and construction resources 

Performance Measures Metric 

Time in which jurisdiction provides technical assistance to responders Within 24 hours from the end 

of the disaster 

Time in which all FEMA project worksheets are processed and eligibility and 

other reviews are completed 

Within 14 days from the 

project worksheet entry 
Target Capabilities List 549 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

Time in which 200 applicants’ briefings for FEMA’s Public Assistance Program 

applicants are completed (based on estimate: 100,000 category E Projects, at 10 

buildings per applicant) 

Within 2 months 

Activity: Demobilize Structural Damage Assessment 

Definition: Account for all personnel and assets utilized and safely return them to their original 

location and function

Critical Tasks 

Rec.C3a 7.1 Develop a demobilization plan for structural damage and mitigation assessment 

Rec.C3a 7.2 Restore personnel and equipment to normal operations 

Rec.C3a 7.3 Complete appropriate documentation 

Performance Measures Metric 

Personnel and equipment are returned to normal operations Yes/No 

Percent of appropriate documentation completed in timely manner 100% 

Linked Capabilities 

Linked Capability Relationship 

Emergency Operations 

Center Management 

Structural Damage Assessment and Emergency Operations Center Management provide 

situation reports to each other. 

Restoration of Lifelines Structural Damage Assessment provides initial lifeline damage assessment to 

Restoration of Lifelines, while Restoration of Lifelines provides technical expertise to 

Structural Damage Assessment. 
550 Target Capabilities List 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 
Target Capabilities List 551 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

Resource Element Description 

Resource Elements Components and Description

Public Assistance Teams: 

buildings 

A Public Assistance Team, led by a Public Assistance Coordinator, manages 

the processing of all of the applicant's recovery projects. The Public 

Assistance Coordinator is a NIMS-typed resource. 

Public Assistance Teams: debris, 

emergency measures 

See above 

Public Assistance Teams: other 

permanent work 

See Above 

Rapid Needs Assessment Teams Per NIMS, a team of specialists (e.g., HazMat, medical, mass care, 

infrastructure) that provides a rapid assessment capability immediately 

following a major disaster or emergency. 

Disaster Assessment Teams Per NIMS, there are Type I, II, and III Disaster Assessment Teams. NIMS also 

defines Individual Assistance Disaster Assessment Teams. 

Engineering service Teams A team of engineers that includes safety engineers 

Home and Business Assessment 

Teams 

Teams that include staff who are SBA Verifiers 

DOC NIST National 

Construction Safety Team 

National Institute of Standards and Technology (NIST) teams that are 

authorized to investigate building failures. 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were 

reviewed to identify required adjustments or additions to the planning factors and national targets.

 Federal funding to State and local governments is dependent upon Presidential Disaster Declaration.

 Management of significant debris removal operations, emergency protective measures for the public, 

and the restoration of transportation routes will take immediate precedence over building and 

structural assessments. 

 Requirement for Federal support will be increased because significant numbers of State, local, and 

private sector personnel in the impacted area will not be available to support structural damage 

assessment and mitigation activities. 

 Public Assistance Teams, Disaster Assessment Teams, and Engineering Services resources could be 

based regionally (using 10 standard Federal Regions) or at the national level, given the longer 

timeline of their missions. 

 Initial safety assessments will be required before deploying additional resources to conduct building, 

structural, and mitigation assessments. The Federal Government can provide assistance to State and 

local governments with building inspections to protect public health and safety. 

 Sufficient resources from Federal agencies and the private sector will be available for assessment and 

recovery operations. 

 Appropriate and trained professional staff could be mobilized within 48 hours from multiple 

locations, nationwide. 
552 Target Capabilities List 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

 All operations would be managed out of a Joint Field Office (JFO) established for the disaster 

incident. 

 Initial meetings with impacted State/local governments would result in the formation of teams to 

complete: 

 Emergency inspections (health/safety) 

 Repair/reconstruction project worksheets for public structures and mitigation activities. 

 Additional teams would be established by the private sector (including the insurance industry) to 

focus on inspection/recovery for the private sector, to include mitigation activities. Government 

should coordinate with these entities. 

Scenario-Specific 

 Of the 1 million buildings moderately damaged, 200,000 were commercial buildings, 100,000 were 

public buildings, and 700,000 were residences (300,000 red tagged unsafe for habitation). Of these 

1,000 were large office buildings that were partially collapsed and where victims were trapped. 

 The scenario identifies earthquake damage to more than 1 million buildings. For purposes of 

quantifying this capability, the indefinite amount above the 1 million was assumed to be statistically 

insignificant. 

 Total number of Public Assistance Projects: 300,000. 

 Port facilities in the affected area are significantly damaged, cargo throughput is reduced by 50 

percent. 

 Transit system is unavailable by 50 percent. 

 Rail system cargo throughput is reduced by 50 percent. 

 Highest probability U.S. earthquake areas are: Arkansas, Arizona, California, Colorado, Hawaii, 

Idaho, Illinois, Kentucky, Missouri, Montana, Nevada, Oregon, South Carolina, Tennessee, Utah, and 

Washington, according to the United States Geological Survey (USGS). There are approximately 64 

metropolitan statistical areas (MSA) with populations greater than 100,000 in these States. 

 Rapid Needs Assessment Teams would need to be located in close proximity to these 64 MSAs to 

perform necessary tasks immediately following the incident. 

 FEMA’s principal responsibility under this capability will be to prepare project worksheets for the 

100,000 damaged public buildings in order to implement the Public Assistance Grant Program. 

 Assume that damaged building projects represents 33 percent of total number of FEMA eligible 

projects with other categories as follows: 

 Debris – 15% 

 Emergency measures – 25% 

 Roads/bridges – 12% 

 Flood control - <1% 

 Utilities – 10% 

 Other – 5% 

 Rapid Needs Assessment Teams – 30 for this scenario 

 Population of affected area in this scenario – 10,000,000 

 Ratio of teams to population 3 teams/1 million people 

 From the Census Bureau’s Metropolitan Area Rankings 1997 press release, 69,704,815 people 

live within the 64 MSA with populations greater than 100,000 that are located in States with the 

highest earthquake probability. 

 Therefore, the total number of Rapid Needs Assessment Teams is 210. 

 Moderately damaged means that the impacted building is less than 50 percent damaged. 
Target Capabilities List 553 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

 Normal deployment time for required response personnel increased by 24-48 hours. 

 300,000 project worksheets for approximately 10,000 applicants 

 50 applicants will participate in each applicant’s briefing 

 20 of the Rapid Needs Assessment (RNA) Teams will be deployed to the county with the greatest 

amount of damage, while the other affected counties will require only two RNA teams each. 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Major Earthquake) 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of 

Resources 

Needed 

Public Assistance 

Team: buildings 

35 public structures 

per team, per week 

100,000 public structures 

[(100000 structures 

7 days/week)/ 

(35structures/team/week 

*365days)] 

55 Public Assistance 

Teams for 

completion within 

365 days 

Public Assistance 

Team: debris, 

emergency measures 

30 PWs per team per 

week 

120,000 projects 

[ (30 PWs/team/week *180 

days/7 days)] 

155 Public 

Assistance Teams 

Public Assistance 

Team: other permanent 

work 

30 PWs per team per 

week 

80,000 projects 

[(80,000 PWs)/(30 

PWs/team/day * 365 days/7 

days)] 

51 Public Assistance 

teams 

Rapid Needs 

Assessment Team 

1.4 teams per counties 

per day 

Six counties impacted; 1,000 

buildings partially collapsed 

30 Rapid Needs 

Assessment teams 

Disaster Assessment 

Team 

30 structures per day, 

per team 

200,000 private/commercial 

structures; 700,000 residences 

[900,000 structures/(30 

structures/team/day * 30 days)] 

1,000 teams 

Engineering Service 

Teams 

30 structures per day, 

per team 

100,000 public buildings with 

15,000 destroyed; require 

inspection to determine safety 

(e.g., need for “Red Tag”). 

[100,000 structures/(30 

structures/team/day * 30 days)] 

112 teams 

Home and Business 

Assessment 

 3,300 SBA Verifiers 

Approaches for Large-Scale Events 

 By extending the time for public building inspections/project worksheets to be completed from one to 

two years, the workload will be reduced by 50 percent. 

 By extending the time for private building inspections to be completed from one month to two or 

more months, the workload is reduced by at least 50 percent. 
554 Target Capabilities List 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

 By extending the time for building inspections to be completed from one month to two or more 

months, the workload is reduced by at least 50 percent. 

Target Capability Preparedness Level 

Resource 

Element Unit 

Type of 

Element 

Number 

of Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Public Assistance 

Teams: Buildings 

NIMS Typed 

Resource 

Organization 

110 Per incident 

(with composition 

apportioned 80% 

Federal, 20% 

State/local reps) 

Federal/State/ 

Local 

Provide Mitigation 

and Technical 

Assistance 

Public Assistance 

Teams: Debris, 

emergency 

measures 

NIMS Typed 

Resource 

Organization 

310 Per incident 

(with composition 

apportioned 80% 

Federal, 20% 

State/local reps) 

Federal/State/ 

Local 

Provide Mitigation 

and Technical 

Assistance 

Public Assistance 

Teams: Other 

permanent work 

NIMS Typed 

Resource 

Organization 

102 Per incident 

(with composition 

apportioned 80% 

Federal, 20% 

State/local reps) 

Federal/State/ 

Local 

Provide Mitigation 

and Technical 

Assistance 

Rapid Needs 

Assessment Teams 

NIMS Typed 

Resource 

Organization 

210 Per incident 

(with composition 

apportioned 33% 

Federal, 66% 

State/local reps) 

Federal/State/ 

Local 

Conduct 

Inspections and 

Assessments 

Disaster 

Assessment Teams 

NIMS Typed 

Resource 

Organization 

1,000 Per incident 

(with composition 

apportioned 78% 

State/local, 22% 

private reps) 

State/Local/ 

Private Sector 

Conduct 

Inspections and 

Assessments 

Engineering 

Service Teams 

Non-NIMS 

Resource 

Organization 

112 Per incident Federal Conduct 

Inspections and 

Assessments 

Provide Mitigation 

and Technical 

Assistance 

Home and Business 

Assessment 

Personnel 3,000 Per incident Federal Provide Mitigation 

and Technical 

Assistance 

National 

Construction Safety 

Team 

Federal 

Resource 

Organization 

 Federal 

(DOC/NIST) 

Conduct 

Inspections and 

Assessments 
Target Capabilities List 555 

RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. National Strategy for Homeland Security. The White House, Office of Homeland Security. July 2002. 

http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf. 

5. The National Strategy for the Physical Protection of Critical Infrastructures and Key Assets. The White House. 

February 2003. http://www.whitehouse.gov/pcipb/physical_strategy.pdf. 

6. Protected Critical Infrastructure Information Program. U.S. Department of Homeland Security. 2004. 

http://www.dhs.gov/dhspublic/display?theme=92&content=3755. 

7. Public Works and Terrorism Response: Black Sunday. Mann, P., and Scott, T. American Public Works 

Association. May 2005. http://www.apwa.net/documents/advocacy/IssueBrief_05052005.pdf. 

8. Risk Management: An Essential Guide to Protecting Critical Assets. National Infrastructure Protection Center. 

November 2002. http://www.iwar.org.uk/comsec/resources/risk/risk-mgmt.pdf. 

9. Instrumentation and Monitoring Methods for Radiation Protection. NCRP Report # 57. National Council on 

Radiation Protection and Measurement. 1978. 

10. Post-Emergency Response Resources Guide. U.S. Nuclear Regulatory Commission and Federal Emergency 

Management Agency. 1991. 

11. Manual of Protective Action Guides and Protective Actions for Nuclear Incidents. EPA 400–R–92–0001. U.S. 

Environmental Protection Agency. 1991. 

12. Radiological Sources of Potential Exposure and/or Contamination. USACHPPM Tech Guide 238. Aberdeen 

Proving Ground, MD. 1999. 

13. Emergency Response to Terrorism Job Aid. Edition 2.0. Federal Emergency Management Agency and U.S. 

Department of Justice. February 2003. http://biotech.law.lsu.edu/blaw/FEMA/ert-ja.pdf. 

14. Code of Federal Regulations. Title 10, Part 835; Volume 4; Parts 500 to end. U.S. Government Printing Office. 

2000. http://www.access.gpo.gov/nara/cfr/waisidx_03/10cfr835_03.html 
556 Target Capabilities List 

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Target Capabilities List 557 

RECOVER MISSION: RESTORATION OF LIFELINES 

RESTORATION OF LIFELINES 

Capability Definition 

Restoration of Lifelines is the capability to initiate and sustain restoration activities. This includes 

facilitating the repair/replacement of infrastructure for oil, gas, electric, telecommunications, drinking 

water, wastewater, and transportation services. 

Outcome 

Lifelines to undertake sustainable emergency response and recovery activities are established. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

ESF #1: Transportation 

ESF #2: Communication 

ESF #3: Public Works and Engineering 

ESF #12: Energy 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Program, and Systems 

Critical Tasks 

Rec.C1a 1.1.1 Ensure lifeline restoration personnel can access and remain in the affected areas to complete 

restoration activities 

Rec.C1a 1.1.2 

Coordinate with State and local emergency management officials to determine what credentials 

lifeline restoration personnel will need to produce to enter potentially restricted areas and fulfill 

their responsibilities 

Rec.C1a 1.1.3 

Create a mechanism to provide any incident-specific lifeline restoration contract personnel with 

the necessary credentials to ensure unnecessary access issues will not impede them from 

completing their responsibilities 

Rec.C1a 1.1.4 Identify a sector/company-specific point of contact (POC) for police or emergency management 

officials to contact to verify the credentials of lifeline restoration personnel 

Rec.C1a 1.1.5 

Create a plan to ensure that the sector/company-specific POC for credentialing issues has up-todate data on all personnel—contract and regularly-employed—involved in lifeline restoration 

activities 

Rec.C1a 1.1.6 Discuss measures that can be taken to ensure the safety of lifeline restoration personnel and 

equipment working in affected areas with State and local emergency management officials 

Rec.C1a 1.1.7 Identify the procedure for requesting safety measures (such as police escorts) for lifeline 

restoration personnel 

Rec.C1a 1.2. Develop Mechanisms to Communicate and Coordinate restoration of lifelines information and 

activities 
558 Target Capabilities List 

RECOVER MISSION: RESTORATION OF LIFELINES 

Rec.C1a 1.2.1 

Identify a lifeline Emergency Operations Center (EOC)/Joint Field Office (JFO) liaison or liaison 

mechanism to ensure that lifeline restoration information and current situational updates can be 

shared by all parties 

Rec.C1a 1.2.2 

Coordinate with local/State/Federal emergency management officials to ensure that lifeline 

companies have an official contact person in each EOC/JFO to ensure situational awareness and 

coordination 

Rec.C1a 1.2.3 

Create a mechanism to share restoration information among all the different lifeline 

companies/sectors, i.e., create local/State/regional utility workgroups/associations to coordinate 

emergency restoration operations across sectors and share best practices 

Rec.C1a 1.2.4 Identify interdependencies among all the lifelines 

Rec.C1a 1.2.5 Create reporting guidelines to ensure that all company/sectors department heads report important 

event-specific information to the company/sector EOC/JFO liaison 

Rec.C1a 1.2.6 Disseminate reporting guidelines—along with contact information for the company/sector 

EOC/JFO liaison—to all appropriate (lifeline and government) personnel 

Rec.C1a 1.2.7 Coordinate with State and local emergency management officials to determine which radio 

frequencies lifeline restoration personnel can use to support restoration activities 

Rec.C1a 1.3 Develop plans/mechanisms to assist in the allocation of constrained resources 

Rec.C1a 1.3.1 Consider pre-staging equipment and identify barriers or gaps in developing this capability 

Rec.C1a 1.3.2 Develop contingent contracts 

Rec.C1a 1.3.3 Develop mutual aid networks within each lifeline 

Rec.C1a 1.3.4 Develop mutual aid networks between lifelines and government 

Rec.C1a 1.3.5 

Develop a plan to deal with the distribution of fuel after an event to include lifeline restoration 

activities. Consider the prioritization of primary infrastructure so there is less of a reliance on 

back-up or secondary measures 

Rec.C1a 1.3.6 Develop a plan to deal with the distribution of other critical components that facilitate the 

restoration of primary infrastructure and processes 

Rec.C1a 1.3.7 consider the essential needs of the lifeline restoration personnel when developing housing 

strategies 

Rec.C1a 1.3.8 Consider impacts on areas outside the area physically impacted 

Rec.C1a 1.4 Pursue opportunities to solidify post-event regulatory relief 

Rec.C1a 1.4.1 Investigate anti-trust regulations that prohibit some sectors from communicating during a disaster 

Rec.C1a 1.4.2 Agree upon appropriate waivers to facilitate the restoration activities 

Rec.C1a 1.4.3 Solidify appropriate waivers to facilitate restoration activities 

Rec.C1a 1.4.4 Develop cross jurisdictional agreements to standardize regulatory requirements and post-disaster 

waivers 

Rec.C1a 1.4.5 Develop inter-State post-disaster reciprocity for certifications, qualifications, licenses, etc. 

Preparedness Measures Metric

Credentialing procedures to allow repair personnel access to critical sites are in place Yes/No 

Procedures for identifying affected lifelines (entities and structures) are in place Yes/No 
Target Capabilities List 559 

RECOVER MISSION: RESTORATION OF LIFELINES 

Procedures for assessing and prioritizing affected lifelines are in place Yes/No 

Interdependencies among lifelines have been identified Yes/No 

Procedures are in place for mobilizing personnel and equipment for the restoration of lifelines. Yes/No 

Procedures address housing and essential services for mobilized personnel Yes/No 

EOC/JFO liaison has been identified Yes/No 

Lifeline companies/sectors and government coordinated emergency planning and operations Yes/No 

Contingent contracts and mutual aid agreements for personnel and equipment are in place Yes/No 

Plans address establishing key transportation avenues (e.g. best routes for personnel and 

equipment to access disaster locations, etc.). 

Yes/No 

Plans address demobilization of Restoration of Lifeline operations (e.g. consideration of 

personnel and equipment for permanent repair operations, personnel and equipment are returned 

to normal operations, appropriate documentation is completed, etc.). 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks

Rec.C1a 2.2 Coordinate with other lifelines companies/sectors to create cross-sector exercises to test 

restoration plans 

Rec.C1a 2.2.1 Ensure participation of lifeline sectors in established exercise programs 

Rec.C1a 2.3 Share corrective actions and lessons learned with lifeline restoration personnel and government 

entities 

Rec.C1a 2.3.1 Incorporate corrective actions and lessons learned into restoration plans 

Rec.C1a 2.1 Provide training to government entities regarding the restoration of lifelines process 

Rec.C1a 2.3.2 Make best practices easily available 

Rec.C1a 2.2.2 Create exercise elements that require the weighting of the benefits of lifeline restoration activities 

verses the prioritization of constrained resources 

Rec.C1a 2.1.1 Develop common definitions for essential services, credentialing, and access 

Rec.C1a 2.1.2 Educate lifelines customers on what to expect after an event 

Rec.C1a 2.1.3 Create a mentoring program that will allow disaster-experienced lifeline restoration personnel 

(from states like California and Louisiana, for example) to support lesser experienced personnel 

Rec.C1a 2.1.4 Provide training regarding the implications to the private sector of “hijacking” contracted 

resources 

Preparedness Measures Metric

Exercises include lifeline sectors Yes/No

Best practices are available Yes/No 

Information has been disseminated to lifeline customers regarding what they should 

expect after an event 

Yes/No 

Training occurred on lifeline restoration processes Yes/No 
560 Target Capabilities List 

RECOVER MISSION: RESTORATION OF LIFELINES 

Performance Tasks and Measures/Metrics 

Activity: Direct Mechanisms to Facilitate the Restoration of Lifelines 

Definition: Coordinate activities between lifeline operations and government operations. Facilitate 

communication to maximize the efficiency and effectiveness of restoration activities. Continually 

update restoration status with the EOC and other impacted capabilities. (For exercise purposes 

only) 

Critical Tasks

Rec.C1a 3.1 Develop a common operating picture (COP) concerning lifeline restoration and government 

operations 

Rec.C1a 3.1.1 Identify entities affected by the loss of lifeline infrastructure 

Rec.C1a 3.1.2 Identify resources required to manage and restore lifeline operations 

Rec.C1a 3.2 Coordinate the dissemination of status and priority information on lifeline restoration activities 

Rec.C1a 3.2.1 Coordinate between lifeline restoration EOC/JFO liaison and government EOC/JFO 

Rec.C1a 3.3 Disseminate information about the required credentials for lifeline restoration personnel to police 

and other on-the-ground government personnel 

Rec.C1a 3.4.1 Discuss incident-specific safety measures for lifeline restoration personnel 

Rec.C1a 3.4 Disseminate coordinated radio frequency information to all emergency responders and lifeline 

restoration personnel, in order to prevent communications disruptions

Rec.C1a 3.4.2 Coordinate fuel and critical resource distribution plan for lifeline restoration activities 

Rec.C1a 3.4.3 Coordinate housing strategy for lifeline restoration personnel 

Rec.C1a 3.5 Disseminate established information on regulatory relief for lifeline restoration activities 

Rec.C1a 3.6 Provide and coordinate alternate means for providing critical lifeline services 

Performance Measures Metric

Entities affected by the loss of lifeline infrastructure are identified Yes/No 

Resources required to manage and restore lifeline operations are identified Yes/No 

Dissemination of status and priority information are coordinated Yes/No 

Obstacles to the restoration of lifelines are removed Yes/No 

Coordination between lifeline services’ EOCs and government EOC/JFO is 

conducted 

Yes/No 

Alternate means for providing critical lifeline services are coordinated Yes/No 

Activity: Activate Restoration of Lifelines

Definition: Initiate the process for getting the appropriate personnel and equipment to the disaster 

locations (for exercise purposes only)

Critical Tasks 

Rec.C1a 4.1 Notify appropriate lifeline restoration personnel 
Target Capabilities List 561 

RECOVER MISSION: RESTORATION OF LIFELINES 

Rec.C1a 4.2 Deploy EOC/JFO liaison for lifeline restoration activities 

Rec.C1a 4.3 Mobilize appropriate lifeline restoration personnel 

Rec.C1a 4.4 Mobilize equipment and resources needed for lifeline restoration activities and appropriate for 

the incident 

Rec.C1a 4.4.1 Begin using information-sharing mechanisms to support lifeline restoration activities 

Performance Measures Metric 

Appropriate lifeline restoration personnel are notified Yes/No 

Appropriate lifeline restoration personnel are mobilized Yes/No 

Equipment and resources appropriate for the incident are mobilized Yes/No 

Activity: Implement Restoration of Lifelines 

Definition: Execute the restoration effort using established priorities, in a manner that maximizes 

the efficiency and effectiveness of the response and recovery process (for exercise purposes 

only)

Critical Tasks 

Rec.C1a 5.1 Use mutual aid resources to increase the pace of lifeline restoration operations 

Rec.C1a 5.2 Conduct lifeline restoration operations 

Performance Measures Metric 

Lifeline restoration operations are in process Yes/No 

Activity: Demobilize Restoration of Lifelines Operations

Definition: Account for all assets utilized and return them safely to their original locations and 

functions (for exercise purposes only)

Critical Tasks 

Rec.C1a 6.1 Implement a demobilization plan for lifeline restoration 

Rec.C1a 6.2 Restore personnel and equipment used for lifeline restoration to normal operations 

Rec.C1a 6.3 Document restoration activities, as needed 

Performance Measures Metric 

Demobilization plan is implemented Yes/No 

Personnel and equipment used for lifeline restoration are restored to normal operations Yes/No 

Restoration activities are documented as needed Yes/No 
562 Target Capabilities List 

RECOVER MISSION: RESTORATION OF LIFELINES 

Linked Capabilities 

Linked Capability Relationship 

Structural Damage 

Assessment 

Restoration of Lifelines provides technical expertise to Structural Damage Assessment, 

while Structural Damage Assessment provides initial lifeline damage assessment to 

Restoration of Lifelines 

Emergency Operations 

Center Management 

Restoration of Lifelines and Emergency Operations Center Management both provide 

situation reports to each other 

Economic and 

Community Recovery 

Restoration of Lifelines provides lifeline infrastructure assessment to Economic and 

Community Recovery 

Environmental Health Environmental Health provides information to Restoration of Lifelines regarding the 

safety considerations for assessment and repair crews in the impacted area 

Critical Resource 

Logistics and 

Distribution 

Critical Resource Logistics and Distribution provides resource support to Restoration of 

Lifelines 

Critical Infrastructure 

Protection 

Critical Infrastructure Protection provides information to assist with the prioritization of 

restoration activities 

Epidemiological 

Surveillance and 

Investigation 

Epidemiological Surveillance and Investigation provides waterborne disease outbreak 

information to Restoration of Lifelines 

Laboratory Testing Laboratory Testing provides water quality test results to Restoration of Lifelines 

On-Site Incident 

Management 

On-Site Incident Management and Restoration of Lifelines coordinate information 

Emergency Public 

Information and Warning 

Emergency Public Information and Warning and Restoration of Lifelines coordinate 

messages 

Emergency Public Safety 

and Security Response 

Emergency Public Safety and Security Response provides protection of personnel and 

assets during Restoration of Lifelines 

Restoration of Economy 

and Institutions 

Restoration of Lifelines provides information to Restoration of Economy and 

Institutions 
Target Capabilities List 563 

RECOVER MISSION: RESTORATION OF LIFELINES 

Capability Activity Process Flow

Linked 

Capabilities Relationship Restoration of Lifelines Capability

Start: Damage/

destruction of 

critical services/

systems

Direct 

Restoration of 

Lifelines 

Operations

Activate 

Restoration of 

Lifelines

Implement 

Restoration 

Procedures for 

Critical Facilities

Demobilize 

Restoration of 

Lifelines 

Operations

End: Sufficient lifeline services 

are available to safely support 

ongoing recovery activities.

Provide EOC liaison

Ready to implement

Lifeline restoration 

operations are initiated 

and sustained

Situational awareness provided

Obstacles identified and removed

Structural Damage 

Assessment

Emergency 

Operations Center 

Management

Economic and 

Community 

Recovery

Environmental 

Health

Critical Resource 

and Logistics 

Distribution

Critical 

Infrastructure 

Protection

Epidemiological 

Surveillance and 

Investigation

On-Site Incident 

Management

Emergency Public 

Information and 

Warning

Restoration of 

Economy and 

Institutions

Provide technical expertise

Provide situational 

awareness and input

Response and restoration 

efforts coordinated

Provide information

Safety information provided 

Logistical support provided

Information provided

Waterborne disease 

outbreak information provided

Water quality test 

results provided

Coordination between 

capabilities provided

Communication and 

coordination of 

messages provided

Protection of personnel 

and assets provided

Provide information

Lifelines include: oil, gas, 

electric, telecommunications, 

drinking water, wastewater, and 

transportation services.

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Laboratory 

Testing

Emergency 

Public Safety and 

Security Response

 
564 Target Capabilities List 

RECOVER MISSION: RESTORATION OF LIFELINES 

Resource Element Description 

Resource Elements Components and Description

EOC/JFO Liaison Representation from each lifeline sector to provide status updates, answer 

inquiries on Restoration of Lifelines efforts, and to request assistance as 

necessary. (Per NIMS) 

 

Lifelines Cross-Sector 

Workgroup 

An opportunity for sector representatives to get together and share best practices 

and lessons learned; determine training needs, conduct training, and exercises; and 

to coordinate planning for Restoration of Lifelines. As needed, consider the 

involvement of State and Federal officials. 

Mutual Assistance A scalable response mechanism to share and provide resources, such as equipment 

and personnel. Consider addressing issues of reimbursement and liability. 

Business Continuity Plans A plan for continued operation, post incident/impact. Although these plans differ 

from sector to sector, the core elements of these plans include identification of 

essential functions and contingency plans for the continuation of those functions. 

Planning Assumptions 

 Applicable to all the 15 National Planning Scenarios.

 Federal funding was available to eligible applicants of State and local governments, including some—

but not all—lifeline services, as a result of a Presidential Disaster Declaration.

 Responsibility for lifeline repairs will be based on ownership of lifeline facilities (public vs. private). 

 The ability to communicate with lifeline personnel and obtain additional resources will be impacted 

by the size and impact of the event. 

 The availability of appropriate resources will be limited. 

Planning Factors 

Resource 

Organization 

Estimated 

Capacity 

Scenario Requirement 

Values 

Quantity of Resources Needed 

Lifeline restoration, in a major event, would be addressed with an appropriate combination of existing-resources and 

mutual assistance sufficient to meet disaster needs. 

Target Capability Preparedness Level 

(Under Development) 

Resource 

Element Unit 

Type of Element Number of 

Units 

Unit Measure 

(number per x) 

Lead Capability 

Activity 

supported by 

Element 

Lifeline restoration, in a major event, would be addressed with an appropriate combination of existing resources and 

mutual assistance sufficient to meet risk and threat assessment based needs. 
Target Capabilities List 565 

RECOVER MISSION: RESTORATION OF LIFELINES 

References 

1. Electric Utility Industry Disaster Planning Meeting: After Action Report. Hosted by Edison Electric Institute 

(EEI) and the U.S. Department of Energy (DOE). 

2. Energy Leadership Forum: After Action Report. U.S. Department of Energy. February 2006. 

3. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

4. Hurricane Security Operations. National Petrochemical & Refiners Association (NPRA) White Paper. May 31, 

2006. 

5. National Response Plan. U.S. Department of Homeland Security. December 2004. 

6. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

7. National Strategy for Homeland Security. The White House, Office of Homeland Security. July 2002. 

http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf. 
566 Target Capabilities List 

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Target Capabilities List 567 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

ECONOMIC AND COMMUNITY RECOVERY 

Capability Definition 

Economic and Community Recovery is the capability to implement short- and long-term recovery and 

mitigation processes after an incident. This will include identifying the extent of damage caused by an 

incident, conducting thorough post-event assessments and determining and providing the support needed 

for recovery and restoration activities to minimize future loss from a similar event. 

Outcome 

Economic impact is estimated; priorities are set for recovery activities; business disruption is minimized; 

and individuals and families are provided with appropriate levels and types of relief with minimal delay. 

Relationship to National Response Plan Emergency Support Function 

(ESF)/Annex 

This capability supports the following Emergency Support Functions (ESFs): 

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

ESF#14: Long-Term Community Recovery and Mitigation 

Preparedness Tasks and Measures/Metrics 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Critical Tasks

Rec.C3b 1.1.1 Develop resumption, restoration, and recovery plans 

Rec.C3b 1.4 Coordinate recovery and mitigation planning 

Preparedness Measures Metrics

Resumption, restoration, and recovery plans in place Yes/No 

Protocols for ensuring access to qualified personnel (e.g., loan officers, community 

planning officers, development officers, etc.) are in place 

Yes/No 

Processes are in place for mobilizing personnel to support economic and community 

recovery operations 

Yes/No 

Plans address the assessment and prioritization of recovery needs Yes/No 

Plans include processes for providing monetary relief (e.g. notify businesses and 

individuals of disaster relief reimbursement vehicles, provide financial counseling) 

Yes/No 

Plans include processes for providing non-monetary direct assistance (e.g. facilitate 

recovery activities related to public works and engineering, provide temporary housing, 

initiate crisis counseling). 

Yes/No 

Plans address demobilization (e.g. personnel and equipment are returned to normal 

operations, appropriate documentation is completed). 

Yes/No 

Recovery and mitigation planning efforts are coordinated with existing or ongoing Yes/No 
568 Target Capabilities List 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Activity: Develop and Maintain Plans, Procedures, Programs, and Systems 

Continuity of Operations Plan (COOP) 

Private sector and voluntary agency input are reflected in planning process Yes/No 

Appropriate insurance coverage policies are in place Yes/No 

Each functional area has qualified personnel Yes/No 

Protocols for locating and recalling staff during recovery process are in place Yes/No 

Continuity of Operations Plans (COOP) are in place Yes/No 

Debris management priorities have been established, to include improving restoration of 

key community functions and critical infrastructures 

Yes/No 

Plan addresses the coordination of economic and community recovery operations (e.g., 

prioritizing recovery sequence, requesting State and Federal aid, establishing long-term 

goals, etc.) 

Yes/No 

Activity: Develop and Maintain Training and Exercise Programs 

Critical Tasks 

Rec.C3b 2.1.1 Develop and conduct training in stabilization and recovery 

Rec.C3b 2.2.1 Exercise recovery plans 

Preparedness Measures Metric

Personnel are trained in stabilization and recovery plans Yes/No 

Recovery Plans are exercised Yes/No 

Performance Tasks and Measures/Metrics 

Activity: Direct Economic and Community Recovery Operations 

Definition: Command and control economic and community recovery operations, facilitate 

prioritization of economic assistance for businesses, individuals, and governments, and ensure 

that both monetary and non-monetary assistance relief is provided to minimize the negative 

economic effects of the incident

Critical Tasks

Rec.C3b 3.4 Coordinate regional and State support for community recovery and rehabilitation services 

Rec.C3b 3.2 Prioritize recovery sequence for economic and community recovery 

Rec.C3b 3.3 Coordinate the request for State/Federal aid 

Rec.C3b 3.6 Establish long-term recovery goals 

Performance Measures Metric

Time in which a recovery plan is implemented Within 48 hours from need to activate 

plan 
Target Capabilities List 569 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Debris management strategies are implemented immediately and 

continuously 

Yes/No 

Assessment and implementation of appropriate changes to codes and 

code enforcement begins immediately and continuously 

Beginning immediately and continuing 

Time in which efforts to coordinate with nonprofit sector and relief 

NGOs is initiated 

Within 48 hours from incident 

Time in which jurisdiction begins to estimate the social and economic 

consequences of an event in the affected area 

Within 7 days from incident 

Time in which meetings with private industries and NGOs on long-term 

community recovery begin 

Within 30 days from incident 

Mitigation plan is implemented Yes/No 

Time in which estimates of social and economic consequences of an 

event in affected area are refined 

Within 30 days 

Time in which property damage mitigation initiatives are implemented Within 90 days 

Recovery efforts are coordinated with other levels of government Yes/No 

Time in which an assessment of the effectiveness of recovery planning 

and mitigation efforts is initiated 

Within 12 months from the event 

 

Activity: Activate Economic and Community Recovery 

Definition: Alert recovery program staff of need for services, conduct notification, dispatch, and 

other staff mobilization activities as necessary to begin recovery activities

Critical Tasks 

Rec.C3b 4.2 Establish community recovery assistance programs 

Rec.C3b 4.1 Conduct dispatch and notification for economic and community recovery personnel. 

Rec.C3b 4.1.1 Mobilize requests for technical experts to assist in recovery efforts. 

Rec.C3b 4.3 Implement Federal assistance programs 

Rec.C3b 4.4 Implement State, regional, tribal, and local assistance and recovery plans 

Rec.C3b 4.2.4 Implement private-sector recovery, local assistance, and recovery and mitigation plans 

Performance Measures Metric 

Percent of notified personnel who report 100% 

Activity: Assess and Prioritize Recovery Needs 

Definition: Assess economic recession in order to prioritize monetary and non-monetary relief

Critical Tasks 

Rec.C3b 5.1 Conduct post-event assessment and planning to effect successful long-term recovery, including 

the mitigation of damages from future disasters 

Rec.C3b 5.2 Assess the situation and forecast economic needs for victims 
570 Target Capabilities List 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Performance Measures Metric 

Time in which 50 percent of impacted individuals and business are registered for 

disaster assistance 

Within 60 days from when 

assistance is available 

Activity: Provide Monetary Relief 

Definition: Provide funding to damaged or impacted entities in advance of necessary recovery 

expenditures or to reimburse entities

Critical Tasks 

Rec.C3b 6.1 Assess business recovery needs 

Rec.C3b 6.1.1 Provide disaster loans for business 

Rec.C3b 6.3.2 Provide disaster loans for individuals 

Rec.C3b 6.3 Operate individual assistance programs 

Rec.C3b 6.2 Provide economic stabilization, community recovery, and mitigation support and/or financial 

restitution to key service sectors (e.g., medical, financial, public health and safety) 

Rec.C3b 6.4 Notify appropriate authorities of disaster relief reimbursement vehicles 

Rec.C3b 6.3.3 Provide financial counseling 

Rec.C3b 6.5 Process entity restitution/reimbursement claims 

Performance Measures Metric 

Businesses and individuals are notified of disaster relief reimbursement and available 

financial counseling 

Yes/No 

Unmet economic needs have been identified Yes/No 

Time in which process to manage individual assistance claims is activated Within 7 days 

Time in which process to manage government-to-government assistance claims is 

activated 

Within 12 months 

Time in which Federal disaster assistance grants are provided to affected individuals Within 14 days from 

registration 

Time in which Federal disaster assistance loans are provided to individuals and businesses Within 30 days from 

application 

Time in which Federal grant funds are obligated for 50 percent of FEMA’s Public 

Assistance applications 

Within 12 months 

Time in which Federal grant funds are obligated for 75 percent of FEMA’s Public 

Assistance applications 

Within 2 years 

Time in which Federal grant funds are obligated for 90 percent of FEMA’s Public 

Assistance applications 

Within 3 years 

Time in which Federal grant funds are obligated for 95 percent of FEMA’s Public 

Assistance applications 

Within 4 years 

Time in which Federal grant funds are obligated for 100 percent of FEMA’s Public 

Assistance applications 

Within 5 years 
Target Capabilities List 571 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Time in which fair market value indemnity is provided to owners of destroyed animals 

and materials 

Within 72 hours from 

destruction 

Activity: Provide Non-monetary Relief 

Definition: Provide direct assistance in the form of equipment, facilities, supplies, staff, technical 

assistance, and other material resource support to meet recovery needs of affected entities

Critical Tasks 

Rec.C3b 7.2 Participate in and facilitate recovery activities related to public works and engineering 

Rec.C3b 7.1 Assess and quantify projected housing needs 

Rec.C3b 7.1.1 Develop preliminary temporary housing plan 

Res.C3a 7.5 Provide temporary housing 

Rec.C3b 7.3 Provide family support services 

Performance Measures Metric 

Unmet social needs have been identified Yes/No 

Time in which non-monetary forms of disaster assistance (e.g., crisis counseling, disaster 

legal services) to individuals and businesses are initiated 

Within 7 days 

Time in which persons in temporary housing/interim shelters are relocated to long term 

housing 

Within 30 to 90 days 

Activity: Demobilize Economic and Community Recovery 

Definition: Account for all assets utilized and safely return them to their original locations and 

functions

Critical Tasks 

Rec.C3b 8.1 Develop a demobilization plan for economic and community recovery 

Rec.C3b 8.2 Restore economic and community recovery personnel and equipment to normal operations 

Rec.C3b 8.3 Complete appropriate economic and community recovery documentation 

Performance Measures Metric 

Personnel and equipment are returned to normal operations Yes/No 

All appropriate documentation is completed Yes/No 
572 Target Capabilities List 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Linked Capabilities 

Linked Capability Relationship 

Structural Damage 

Assessment 

Structural Damage Assessment provides a damage assessment to Economic and 

Community Recovery 

Restoration of Lifelines Restoration of Lifelines provides lifeline infrastructure assessments to Economic and 

Community Recovery 

Emergency Operations 

Center Management 

Emergency Operations Center Management and Economic and Community Recovery 

both contribute to situation reports 

Mass Care (Sheltering, 

Feeding, and related 

Services) 

Mass Care (Sheltering, Feeding, and related Services) and Economic and Community 

Recovery share individual assistance updates 

Volunteer Management 

and Donations 

Volunteer Management and Donations provides cash and material contributions for 

distribution during the recovery phase of the incident 
Target Capabilities List 573 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Direct Economic 

and Community 

Recovery 

Operations

Planning

Logistics

Comm.

Manage

Coordinate

Supervise

Safety

Resource 

Requests

Need for economic and community 

assessment

Activate Economic 

and Community 

Recovery

Assess and 

Prioritize Recovery 

Needs

Provide Monetary

Relief

Provide NonMonetary Relief

End: Extent of economic 

and community damage 

mitigated 

Start: Significant 

impact to the 

economy and the 

community

Structural Damage 

Assessment

Restoration of 

Lifelines

Emergency 

Operations Center 

Management

Volunteer 

Management and 

Donations 

Lifeline infrastructure 

assessments provided

Structural damage 

assessments provided

Provide sitreps

Demobilize 

Economic and 

Community 

Recovery

Cash and material 

contributions provided

Mass Care 

(Sheltering, 

Feeding, and 

Related Services)

Provide individual impact 

updates

Ready to assess and prioritize 

recovery needs

Needs prioritized

Application processed 

and appropriate nonmonetary relief provided

Application processed 

and appropriate 

monetary relief provided

Report of needs and priorities provided

Relief guidance provided

Linked 

Capabilities Relationship

Capability Activity Process Flow

Economic and Community Recovery 

Capability
574 Target Capabilities List 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Resource Element Description 

Resource Elements Components and Description

Community Planning and 

Development Officer 

Coordinate economic recovery and mitigation plan 

Damage Assessment Officer Assess damages to publicly and privately owned facilities 

Loan Officers Process SBA applications in 60 days 

Finance Officer Compile and administer financial assistance requests and applications; assumes 

technical support and computer equipment 

Economic Impact Community 

Representatives Team 

Assess the economic impact to private business; includes business leaders 

(industry/major employers); Chambers of Commerce and business 

associations; local trade organizations, and local professional associations. 

Essential Service 

Representatives Team 

Assess impact to essential service infrastructure and basic service distribution 

systems. Comprises 20 members, including representatives from water and 

wastewater, public health and sanitation, utilities, transportation, hospital, 

police, fire and EMS, communications, debris removal and disposal 

Insurance Community Inspectors Manage insurance claims processing 

Volunteer Organizations Active 

in Disasters (VOADs) and 

Nongovernmental organizations 

(NGOs) 

Personnel and equipment 

Private sector and utility system 

representatives 

Manage repair and reconstruction of disaster damage. Includes representatives 

from construction, building supplies, transportation assets 

Personnel from individual 

assistance and public assistance 

programs 

Implement disaster assistance programs to include registration of applicants, 

inspection of disaster damages, and processing applications 

Planning Assumptions 

General 

 Although applicable to several of the 15 National Planning Scenarios, the capability planning factors 

were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were 

reviewed to identify required adjustments or additions to the planning factors and national targets.

 Federal funding to State and local governments is dependent upon Presidential Disaster Declaration.

 This capability focuses on the recovery of a particular community (public infrastructure, individual 

housing, businesses, etc); it does not address recovery of a large economic sector. 

 Due to the disruption of local and regional transportation systems, alternative methods of distribution 

and transportation will need to be identified and/or implemented (based on historical information, 

shows that for every 1 home destroyed, 10 will be damaged). 

 Multiple hazardous materials issues will need to be addressed. 

 Assume all displaced families will require some form of government sheltering and housing 

assistance. 

 Level of losses may result in multiple bankruptcies. (Based upon historical data and the severe 

economic impact scenarios, certain entities will be unable to overcome financial losses. Governments 

as well as business may face bankruptcy.) 
Target Capabilities List 575 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

 The resource component is time sensitive since pre-event implementation of effective recovery and 

mitigation planning efforts will impact response to community needs. 

 The resource package may be called to operate for years after the incident. 

Scenario-Specific 

 300,000 homes have been destroyed; there are 1,400 deaths; 18,000 hospitalizations, 150,000 

buildings destroyed and 1 million buildings damaged. 250,000 individuals seek shelter in safe areas 

and over 250,000 people self-evacuate the area. 

 The wide dispersal of disaster victims will complicate the Federal Government assistance eligibility 

and delivery processes for extended temporary housing, tracking, and need for registering the 

diseased, ill, injured, and exposed 

 Of the 1 million buildings moderately damaged, 200,000 were commercial buildings and 100,000 

were public buildings. Of these, 1,000 were large office buildings, they were partially collapsed. 

(Estimates based on trends from previous disasters). 

Planning Factors from an In-Depth Analysis of a Scenario with Significant 

Demand for the Capability (Earthquake) 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

Community Planning 

and Development 

Officer 

 One per jurisdiction 

Damage Assessment 

Officer 

Average of 5 inspections per day 

– home/business 

3.3 million homes 

inspected 

500,000 businesses 

inspected 

5,000 inspectors to process 

work over a period of 6 

months 

Finance Officer Up to 30,000 electronically 

processed claims per day. 

(FEMA only, and only those 

claims that are auto-determined) 

Small Business Administration 

(SBA) loan officer can process 

an average of 5 applications per 

day 

1.85 million applicants 

in 60 days 

1 million applications 

received in 60 days by 

SBA 

One finance officer 

(FEMA only- with 

adequate support staff) 

completes applications in 

60 days 

1,000 loan officers to 

process SBA applications 

in 60 days 

Economic Impact 

Community 

Representative 

Teams 

One team can estimate the 

economic impact of the disaster. 

Size of team contingent on 

disaster variables 

The number on each 

team will vary by 

jurisdiction 

Teams will be needed by 

level of government 

Essential services 

representative Teams 

One team serves to liaison with 

key community functions in one 

jurisdiction 

Ongoing One team per jurisdiction 

Insurance community 

inspectors 

Average of 4 inspections per day 

– residential and commercial 

185,000 (5% of total 

damaged properties) 

have earthquake 

insurance 

260 inspectors over 6 

months 
576 Target Capabilities List 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Resource 

Organization 

Estimated Capacity Scenario 

Requirement 

Values 

Quantity of 

Resources Needed 

Volunteer 

Organizations Active 

in Disasters 

(VOADs) and nongovernmental 

organizations 

(NGOs) 

Elastic – surge capacity to fit 

specific needs 

VOAD Coordinator and 

coordinated assistance 

mechanism/system 

Private sector and 

utility system 

representatives 

Capacity is contingent on 

availability of repair and 

reconstruction contractors and 

building supplies 

 

Personnel from 

individual assistance 

and public assistance 

programs 

Agencies gear up and gear down 

based on workload requirements 

Estimated personnel 

requirements would 

roughly equal triple the 

2004 hurricane season staff 

level. (e.g., SBA level was 

2800) 

Approaches for Large-Scale Events 

 For temporary housing, potential exists to use tents, dorms, ships, train cars, terminals, temporary 

relocation sites, military facilities, and converted commercial space instead of mobile homes and 

trailers. Access to essential services (food, transportation, health care, etc) must accompany housing 

resource. 

 Modes of delivery of assistance awards may vary, ranging from new expedited processes to 

alternative distribution methods. 

 For temporary provisions, “Comfort Kits” may need to be instituted as a substitute for immediate 

award of disaster assistance. 

 To foster communication, every neighbor tells a neighbor. Set up centralized information 

dissemination posts (e.g. at 7/11 stores). 

Target Capability Preparedness Level 

Resource 

Element 

Unit 

Type of Element Number of 

Units 

Unit 

Measure 

(number 

per x) 

Lead Capability 

Activity 

supported by 

Element 

Note: Many of the staff “pools” identified below will be generated in response to a specific incident by assembling 

governmental and contract staff from various locations; they are not dedicated, standing organizations.

Federal/State/

Local 

Community Planning 

and Development 

Officer 

Personnel 1 Per jurisdiction Assess and Prioritize 

Recovery Needs 
Target Capabilities List 577 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

Resource 

Element 

Unit 

Type of Element Number of 

Units 

Unit 

Measure 

(number 

per x) 

Lead Capability 

Activity 

supported by 

Element 

Federal/State/

Local 

Damage Assessment 

Officer 

Personnel 5,000 Per incident Assess and Prioritize 

Recovery Needs 

Federal/State/

Local 

Loan Officers Resource 

Organization 

1,000 Per incident Provide Monetary 

Relief 

Federal 

(DHS/FEMA) 

Finance Officer Personnel 1 Per incident Provide Monetary 

Relief 

Provide NonMonetary Relief 

Local Economic Impact 

Community 

Representatives Team 

Non-NIMS 

Resource 

Organization 

10 Per 

coordination 

team 

Assess and Prioritize 

Recovery Needs 

Local Essential Services 

Representatives Team 

Non-NIMS 

Resource 

Organization 

1 Per jurisdiction Assess and Prioritize 

Recovery Needs 

Federal/State/ 

Local 

Insurance Community 

Inspectors 

Personnel 260 Per incident Assess and Prioritize 

Recovery Needs 

Federal/State/ 

Local 

Volunteer 

Organizations Active in 

Disasters (VOADs) and 

Nongovernmental 

organizations (NGOs) 

 Personnel, 

Equipment 

Elastic – 

Surge 

capacity to 

fit specific 

needs 

Dependent 

upon incident 

Assess and Prioritize 

Recovery Needs 

Provide Monetary 

Relief 

Provide NonMonetary Relief 

Federal/State/ 

Local 

Private sector and 

utility representatives 

Personnel, 

Equipment 

Capacity is 

contingent 

on 

availability 

of repair and 

reconstructi

on 

contractors 

and building 

supplies 

 Dependent 

upon incident 

Assess and Prioritize 

Recovery Needs 

Federal/State/

Local 

Personnel from 

individual assistance 

and public assistance 

programs 

 Personnel 30,000 Per incident Provide Monetary 

Relief 

Provide NonMonetary Relief 
578 Target Capabilities List 

RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY 

References 

1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the 

Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html. 

2. National Response Plan. U.S. Department of Homeland Security. December 2004. 

3. National Incident Management System. U.S. Department of Homeland Security. March 2004. 

http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf. 

4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S. 

Department of Homeland Security, Office for Domestic Preparedness. October 2003. 

http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf. 

5. Statement of Requirements for Public Safety Wireless Communications & Interoperability. Version 1.0. U.S. 

Department of Homeland Security, SAFECOM Program. March 2004. 

http://www.safecomprogram.gov/NR/rdonlyres/A1118073-1B21-42DC-941FC9DB26F4DBEF/0/PSCI_Statement_of_Requirements_v1_0.pdf. 

6. Incident Communications Emergency Plan. ICEP–2004. U.S. Department of Homeland Security. 2004. 

7. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire 

Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa. 

8. National Mutual Aid and Resource Management Initiative: Resource Typing Definitions–I. Federal Emergency 

Management Agency. January 2004. http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf. 

9. Emergency Management Accreditation Program (EMAP) Standards. September 2003. 

http://www.emaponline.org/index.cfm. 

10. Federal Executive Branch Continuity of Operations. FPC–65. Federal Emergency Management Agency, Office 

of National Security Coordination. June 2004. http://www.fema.gov/onsc/docs/fpc_65.pdf. 

11. PDD–67: Enduring Constitutional Government and Continuity of Government. Emergency and Disaster 

Management, Inc. October 1998. http://www.emergency-management.net/laws_pdd67.htm. 

12. National Fire Protection Association, 2006 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=101 NFPA 5000, Building 

13. Construction and Safety CodeTM, National Fire Protection Association, 2006 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=5000 NFPA 1, 

14. Uniform Fire CodeTM, National Fire Protection Association, 2006 Edition. 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1 

15. NFPA 70, National Electrical Code®, National Fire Protection Association, 2005 Edition, 

http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=70 

16. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an 

Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook