STANDARD OPERATING PROCEDURES:

23.OVERVIEW OF NRF AND NIMS

DRAFT OCTOBER 2013
File name: Generic_FAD_Prep_NRF_NIMS_Oct2013 SOP number: 0023

Lead section: Preparedness and Incident Coordination Version number: Draft 2.0

Effective date: October 2013 Review date: October 2016

The Foreign Animal Disease Preparedness and Response Plan (FAD PReP) Standard Operating 

Procedures (SOPs) provide operational guidance for responding to an animal health emergency 

in the United States. 

These draft SOPs are under ongoing review. This document was last updated in October 2013. 

Please send questions or comments to: 

National Preparedness and Incident Coordination

Veterinary Services

Animal and Plant Health Inspection Service

U.S. Department of Agriculture

4700 River Road, Unit 41

Riverdale, Maryland 20737

Telephone: (301) 851-3595 Fax: (301) 734-7817

E-mail: FAD.PReP.Comments@aphis.usda.gov

While best efforts have been used in developing and preparing the FAD PReP SOPs, the U.S. 

Government, U.S. Department of Agriculture (USDA), and the Animal and Plant Health 

Inspection Service and other parties, such as employees and contractors contributing to this 

document, neither warrant nor assume any legal liability or responsibility for the accuracy, 

completeness, or usefulness of any information or procedure disclosed. The primary purpose of 

these FAD PReP SOPs is to provide operational guidance to those government officials 

responding to a foreign animal disease outbreak. It is only posted for public access as a reference. 

The FAD PReP SOPs may refer to links to various other Federal and State agencies and private 

organizations. These links are maintained solely for the user's information and convenience. If 

you link to such site, please be aware that you are then subject to the policies of that site. In 

addition, please note that USDA does not control and cannot guarantee the relevance, timeliness, 

or accuracy of these outside materials. Further, the inclusion of links or pointers to particular 

items in hypertext is not intended to reflect their importance, nor is it intended to constitute 

approval or endorsement of any views expressed, or products or services offered, on these 

outside websites, or the organizations sponsoring the websites. 

Trade names are used solely for the purpose of providing specific information. Mention of a 

trade name does not constitute a guarantee or warranty of the product by USDA or an 

endorsement over other products not mentioned.

USDA prohibits discrimination in all its programs and activities on the basis of race, color, 

national origin, sex, religion, age, disability, political beliefs, sexual orientation, or marital or 

family status. (Not all prohibited bases apply to all programs.) Persons with disabilities who 

require alternative means for communication of program information (Braille, large print, 

audiotape, etc.) should contact USDA’s TARGET Center at (202) 720-2600 (voice and 

telecommunications device for the deaf [TDD]).

To file a complaint of discrimination, write USDA, Director, Office of Civil Rights, Room 

326-W, Whitten Building, 1400 Independence Avenue SW, Washington, DC 20250-9410 or call 

(202) 720-5964 (voice and TDD). USDA is an equal opportunity provider and employer.

SOP Manual ii Overview of NRF and NIMS
Contents

23.1 Introduction............................................................................................................... 23-1

23.1.1 General ........................................................................................................... 23-1

23.1.2 National Response Framework........................................................................ 23-1

23.1.3 National Incident Management System ........................................................... 23-1

23.1.4 Goals .............................................................................................................. 23-2

23.1.5 Guidelines....................................................................................................... 23-2

23.2 Purpose...................................................................................................................... 23-2

23.3 Responsibilities ......................................................................................................... 23-3

23.3.1 Federal Government........................................................................................ 23-3

23.3.2 Federal, State, Tribal, and Local Agencies ...................................................... 23-3

23.4 NIMS Components.................................................................................................... 23-4

23.4.1 Preparedness................................................................................................... 23-4

23.4.1.1 Planning............................................................................................... 23-4

23.4.1.2 Protocols and Procedures..................................................................... 23-4

23.4.1.3 Training and Exercises......................................................................... 23-5

23.4.1.4 Personal Qualifications and Certification ............................................. 23-7

23.4.1.5 Equipment Certification ....................................................................... 23-7

23.4.2 Communications and Information Management .............................................. 23-8

23.4.3 Resource Management .................................................................................... 23-8

23.4.4 Command and Management............................................................................ 23-8

23.4.4.1 Incident Command System................................................................... 23-8

23.4.4.2 Multiagency Coordination Systems.................................................... 23-11

23.4.4.3 Public Information ............................................................................. 23-11

Attachment 23.A Abbreviations.......................................................................................... 23-13

SOP Manual iii Overview of NRF and NIMS
23.1 Introduction

23.1.1 General

During a foreign animal disease outbreak or emerging disease incident, Federal, State, Tribal, 

and local governments must respond quickly and effectively to prevent catastrophic damage to 

the animal population. To do so, they must have comprehensive emergency preparedness and 

response plans containing procedures and protocols that detail roles and responsibilities, 

establish a command and management structure, promote effective communications and use of 

information systems, promote training of emergency management personnel and authorities, and 

establish an exercise program for testing these plans. Both the National Response Framework

(NRF) and the National Incident Management System (NIMS) offer Federal agencies and States 

the necessary guidelines, protocols, and direction for these plans.

Several key Animal and Plant Health Inspection Service (APHIS) documents complement this 

standard operating procedure (SOP) and provide further detail when necessary. This SOP 

references the following Foreign Animal Disease Preparedness and Response Plan (FAD PReP)

SOPs:

• Overview of Information Management

• Overview of Communications.

FAD PReP documents are available on the APHIS public website 

(http://www.aphis.usda.gov/animal_health/emergency_management/) or on the APHIS Intranet 

(http://inside.aphis.usda.gov/vs/em/fadprep.shtml, for APHIS employees). 

23.1.2 National Response Framework

The NRF is the Nation’s blueprint for responding to all-hazards events. It explains how 

responders, at all levels, effectively manage and conduct all-hazards response consistent with the 

Department of Homeland Security’s national security objectives. The NRF also establishes 

national policy, guidelines, procedures, and operational direction for an integrated, coordinated, 

and unified approach to incident management. The NRF clearly describes Federal roles and how 

Federal agencies will assist responders during a national incident response. The NRF is available 

at http://www.fema.gov/emergency/nrf.

The NRF is one of the four National Planning Frameworks, which includes the National 

Prevention Framework, the National Mitigation Framework, the NRF, and the National Disaster 

Recovery Framework. 

23.1.3 National Incident Management System

NIMS, the companion document to the NRF, takes a comprehensive, consistent national 

approach to incident management. It gives first responders at all levels the common structure, 

concepts, principles, and language to effectively prepare for, prevent, respond to, recover from, 

and mitigate the effects of any incident, regardless of cause, size, location, or complexity. NIMS 

allows responders to increase coordination and collaboration through better use of resources.

SOP Manual 23-1 Overview of NRF and NIMS
NIMS has five major components:

• Preparedness

• Communications and information management

• Resource management

• Command and management

• Ongoing management and maintenance.

NIMS documentation is available at http://www.fema.gov/emergency/nims.

23.1.4 Goals

The goals of the NRF and NIMS are to:

• Provide an all-hazards approach for effectively responding to and managing incidents—

regardless of size, complexity, cause, and location—for all levels of government and the 

private sector.

• Develop incident management information management and support systems before an 

outbreak.

• Leverage all emergency management capabilities and relationships that are available, and 

effectively use the NIMS and Incident Command System (ICS) to successfully manage 

foreign animal disease outbreaks.

23.1.5 Guidelines

Responders must initiate the steps for containing or eradicating an animal disease outbreak 

before it spreads. States must do the following to ensure a successful response to any incident or 

outbreak:

• Adopt the ICS structure for incident management.

• Develop comprehensive emergency management preparedness and response plans. Test 

these plans with exercises, capture lessons learned, implement corrective actions, and 

update the plans as needed.

• Identify required resources and establish the mechanisms for acquiring them. Establish 

intrastate and interstate mutual aid agreements.

• Develop or improve the communications and information management systems necessary 

for rapid coordination and dissemination of information during an animal disease 

outbreak.

23.2 Purpose

This SOP describes how the NRF and NIMS help responders prepare for, respond to, and 

recover from a major animal health emergency. It describes the major components of NIMS and 

how responders comply with NIMS principles and guidelines.

SOP Manual 23-2 Overview of NRF and NIMS
23.3 Responsibilities

The number of personnel and the organization structure may vary depending on the size and 

complexity of the incident. The roles and responsibilities of personnel may change throughout

the incident. Large scale incidents may involve more than one premises and may cover large 

areas. As the response progresses personnel requirements may change. All roles and 

responsibilities will be designated to available and qualified personnel as needed. 

23.3.1 Federal Government

In planning for and managing a U.S. animal health emergency, the Federal Government does the 

following:

• Leads, directs, and guides all-hazards emergency planning, prevention, preparedness, 

response, and recovery.

• Provides additional resources, such as personnel, funding, equipment, and supplies, when 

State and local resources are overwhelmed.

• Offers standardized NIMS training to personnel with roles in emergency management 

and incident response at all levels of government.

23.3.2 Federal, State, Tribal, and Local Agencies

In planning for and managing a U.S. animal health emergency, Federal, State, Tribal, and local

agencies do the following:

• Adopt NIMS and establish a NIMS baseline by determining which NIMS requirements 

have already been met.

• Establish a time frame and develop a strategy for full NIMS implementation.

• Use the ICS.

• Manage all incidents and planned events in accordance with NIMS structures, guidelines, 

and procedures.

• Use multiagency coordination (MAC) systems to manage and support incident 

management.

• Develop and implement procedures for the timely and accurate dissemination of 

information to the media and public during an incident.

• Develop NIMS-compliant, comprehensive emergency management plans that provide 

guidance and direction for responding to all-hazards events.

• Update procedures and plans to incorporate NIMS components, guidelines, and 

principles.

• Ensure that personnel involved in emergency management receive NIMS training.

• Establish mutual aid agreements between jurisdictions to coordinate the distribution of 

resources during incidents.

SOP Manual 23-3 Overview of NRF and NIMS
23.4 NIMS Components

23.4.1 Preparedness

Preparedness—an integrated and unified approach to emergency management—includes the 

following:

• Planning

• Protocols and procedures

• Training and exercises

• Personnel qualifications and certification

• Equipment certification.

23.4.1.1 Planning

Responders should incorporate NIMS into all aspects of emergency management, including 

response plans, SOPs, individual training, and exercise programs. Responders should develop an 

all-hazards, NIMS-compliant response plan, which

• is realistic and scalable, applying to all types of incidents, from daily occurrences to those 

requiring activation of State resources across different jurisdictions and to those requiring 

a coordinated Federal response;

• describes procedures and protocols;

• clearly defines roles and responsibilities, ensuring that all individuals involved can 

execute their assigned tasks;

• describes training for personnel and exercises for testing the State plan;

• incorporates after-action reviews, lessons learned, and corrective actions following an 

incident or exercise;

• is updated periodically to reflect changes in the emergency management and incident 

response environment, as well as institutional or organizational changes; and

• describes resources to be used to support requirements during the incident.

23.4.1.2 Protocols and Procedures

Response plans should include comprehensive procedures and protocols, including actionoriented checklists, for incident response operations that cover the following:

• Roles and responsibilities of key emergency management personnel

• Notification of staff members

• Levels of incident response

• Activation of the emergency operations center

• Support during the incident

SOP Manual 23-4 Overview of NRF and NIMS
• Resource listings, maps, and charts

• Resource management, such as funding, personnel, and equipment

• Establishing and maintaining continuity of operations

• Interoperability and connectivity of communications and information management 

systems between State agencies

• Dissemination of public information

• Establishing and maintaining mutual aid agreements

• Animal disease–specific information, such as vaccination, cleaning and disinfection, 

health and safety, personal protective equipment, and depopulation, decontamination, and 

disposal

• Recovery operations.

23.4.1.3 Training and Exercises

23.4.1.3.1 Training

Qualified and trained emergency management and response personnel are essential for 

improving preparedness and response capabilities during an animal disease outbreak. Responders 

should incorporate NIMS training into their emergency management plans for personnel with 

roles in emergency management and incident response at all levels. Such training helps to ensure 

that emergency management personnel can function and respond effectively during an incident. 

Responders should tailor training to the responsibilities of the personnel involved in incident 

management.

NIMS offers a standardized national training program, which consists of the following 

components:

• The Five-Year NIMS Training Plan defines NIMS core competencies, training courses, 

and personnel qualifications as part of the National Training Program for NIMS. The plan 

establishes and updates the training guidance for NIMS courses and provides for the 

continued development of the National Training Program for the next 5 years.

• The NRF Integrated Emergency Management Course gives emergency personnel realistic 

training for responding to a real crisis situation in a structured learning environment. The 

course focuses on developing emergency policies, plans, and procedures to ensure an 

effective response, and understanding the roles and responsibilities among Federal, State, 

Tribal, and local emergency management organizations. This course is conducting using 

each State’s Emergency Operation Center: the tailored emergency exercises are designed 

to test participant knowledge, awareness, flexibility, leadership, decision making, and 

interpersonal skills under extreme pressure in the emergency operations center 

environment.

• The Federal Emergency Management Agency (FEMA) offers a core curriculum of NIMS 

courses (introductory, advanced, and practicum) for State emergency management 

SOP Manual 23-5 Overview of NRF and NIMS
personnel. The courses are offered online or through the Emergency Management 

Institute.

23.4.1.3.2 Exercises

Responders should use realistic exercises to give NIMS-trained emergency management and 

response personnel experience and test the effectiveness of emergency response plans. Exercises 

help refine and improve plans, procedures, and incident coordination. They also enhance 

operational readiness and response capability through training, practice, and assessment. As 

response personnel become more experienced through participation in progressively more 

complex exercises, future capability is enhanced by applying lessons learned.

Exercises ultimately ensure that responders are better prepared for actual animal disease 

outbreaks or other catastrophic events that may harm animal health. The Homeland Security 

Exercise and Evaluation Program (HSEEP, found at https://www.llis.dhs.gov/hseep) offers 

responders a consistent method for designing, conducting, and evaluating exercises. An exercise 

program that incorporates HSEEP guidelines and principles validates State capabilities to 

prevent, protect animals from, respond to, and recover from the effects of all damaging animal 

disease incidents.

HSEEP is a capabilities- and performance-based exercise program that provides a standardized 

policy, method, and terminology for exercise design, development, execution, evaluation, and 

improvement planning as described in HSEEP Volumes I–III. HSEEP policy and guidance 

ensure that exercises at all levels take a unified, consistent approach and conform to established 

best practices.

HSEEP features an online system that emergency management planners can use to manage all 

facets of an exercise, including scheduling, design, development, conduct, evaluation, and 

improvement planning (https://www.llis.dhs.gov/HSEEP/page/hseep-page-exercise-resources). 

23.4.1.3.3 Multiyear Training and Exercise Plan

The multiyear training and exercise plan (TEP) uses the HSEEP building-block approach (Figure 

23-1) to develop the exercise program objectives and set priorities. This approach ensures 

gradual progression in exercise design, complexity, and execution and allows the agency and 

stakeholder participants to train and prepare before the exercise, enhancing the likelihood of 

success. Using this method, responders can tailor the exercise scope, scale, and complexity to a 

specific animal disease outbreak in single or multiple jurisdictions in the United States.

SOP Manual 23-6 Overview of NRF and NIMS
Figure 23-1. HSEEP Building-Block Approach

Source: HSEEP, Volume I: HSEEP Overview and Exercise Program Management, p. 5.

When developing the TEP, the organization considers its preparedness priorities, target 

capabilities, previous after-action report or improvement plan findings, stakeholder participation, 

budgetary estimates, and staffing requirements and then plans the exercise and training activities 

accordingly. A key component of the TEP is the training and exercise schedule. Organization 

leaders develop and reassess the TEP annually during the training and exercise planning 

workshop.

23.4.1.4 Personal Qualifications and Certification

NIMS has established a national credentialing system that documents baseline professional 

qualifications, certifications, training, and education requirements for emergency responders. 

Using the NIMS Guideline for Credentialing of Personnel (http://www.fema.gov/resourcemanagement), Federal, State, tribal, and local agencies can improve existing credentialing

systems for responders.

23.4.1.5 Equipment Certification

Responders should ensure the standardization of equipment and its ability to operate efficiently 

between agencies. When deciding on the purchase of equipment, responders need to ask the 

following questions:

• Is the equipment needed?

• What purpose and functions will it serve?

• Does it meet the needs of the agency for emergency response?

• Is it affordable?

• Is funding available?

SOP Manual 23-7 Overview of NRF and NIMS
• What else needs to be considered (such as preventive and repair maintenance costs)?

23.4.2 Communications and Information Management

During animal disease outbreaks, responders must rely on communications and information 

systems to coordinate the response among all command and coordination sites. These systems 

must be reliable, interoperable, and redundant enough to ensure the efficient and accurate 

dissemination of information internally and externally. Responders must have an integrated 

communications and information management network that disseminates information rapidly, 

efficiently, and accurately and gives emergency management personnel a common operating 

picture of the animal disease outbreak.

Responders should have a detailed communications plan that describes protocols, terminology, 

standards to follow during and after an animal disease outbreak. It should also explain who is 

responsible for disseminating information to the media and public.

23.4.3 Resource Management

Responding to an animal disease outbreak requires appropriate and sufficient resources (such as 

personnel, funding, equipment, and supplies). NIMS provides standardized mechanisms and 

describes the process to help responders identify requirements and purchase and acquire, 

mobilize, distribute, track and report, recover and demobilize, reimburse, and inventory 

resources. The NIMS resource management process has two parts: preparedness and incident. 

The preparedness process entails three areas: resource typing, credentialing, and inventorying—

in other words, continuous planning for resources before the incident. It allows responders to 

plan the management and deployment of resources. The incident process deals with the types of 

resources needed during and after the incident.

Responders use resource management systems, if available, to manage, identify, prioritize, and 

process resource requests. Responders use local resources first and, if the need arises, request 

resources from other States or the Federal government.

23.4.4 Command and Management

The NIMS command and management component gives responders a flexible, standardized ICS 

structure that allows for efficient and effective response, coordination, and support during an 

animal disease outbreak. It consists of three main components: ICS, MAC systems, and public 

information.

23.4.4.1 Incident Command System

Responders must manage all incidents, exercises, and other planned events using the NIMS ICS 

structure, doctrine, guidelines, and procedures. The ICS is flexible, scalable, and usable at any 

level to respond to any incident, from small to large. The ICS allows responders to manage and 

coordinate incidents across multiple jurisdictions. For example, responders can coordinate the 

uses of resources, such as facilities, equipment, and personnel, and direct them where they can be 

best used. It establishes common terminology and processes across all levels. It also identifies 

the command and general staff positions and broad responsibilities. Figure 23-2 shows what an 

SOP Manual 23-8 Overview of NRF and NIMS
ICS structure for an animal disease outbreak might look like. NIMS Appendix B: Incident 

Command System provides additional information about the ICS.

SOP Manual 23-9 Overview of NRF and NIMS
Figure 23-2. Example of ICS Structure

Note: GIS = Geographical Information Systems; IT = Information Technology.

SOP Manual 23-10 Overview of NRF and NIMS
23.4.4.2 Multiagency Coordination Systems

MAC systems allow all levels of government and all disciplines to work together more 

efficiently and effectively. MAC spans the different disciplines, jurisdictional lines, and levels of 

government involved in incident management. It occurs regularly when personnel from different 

agencies interact in activities such as preparedness, prevention, response, recovery, and 

mitigation. MAC systems help to coordinate activities above the Incident Command and 

determine incident priorities such as the acquisition and allocation of resources.

23.4.4.3 Public Information

Reliable and robust communication systems and procedures are needed to disseminate detailed 

information about the incident to responders, stakeholders, the public, and media in a timely and 

accurate manner. Public information must be seamless across all levels of government, nongovernmental organizations, and the private sector. Communications plans should contain at 

least the following:

• Key roles and responsibilities

• Employee communications

 Protocols for communicating with employees

 Communication methods and equipment

• Joint information center

 Protocols

 Roles and responsibilities

 Staffing

• Media relations and inquiries

 Importance of understanding and fostering media relations

 Role of media during an outbreak

 Protocols for working with the media

 Managing the various types of media—for example, Internet, television, daily 

newspapers, and radio

 Vetting dissemination of information

 Managing media inquiries

 Designation of those authorized to talk and release information to the media

 Interview guidelines—concerns to be aware of when speaking to press

 News releases and briefings

• Engaging stakeholders

 Key stakeholders

 Vetting dissemination of information

SOP Manual 23-11 Overview of NRF and NIMS
 Tailoring information to stakeholder concerns

• Public education

 Public awareness program

 Protocols for releasing messages and information to the public

• Freedom of Information Act (FOIA) requests

 Protocols for handling FOIA

 Coordinating with the legal office

• Post-incident management

 Managing communications after the incident

 Reviewing communications protocols before, during, and after an incident, including 

successes and failures

 Revising the communications plan.

SOP Manual 23-12 Overview of NRF and NIMS
Attachment 23.A Abbreviations

APHIS Animal and Plant Health Inspection Service

FAD PReP Foreign Animal Disease Preparedness and Response Plan

FEMA Federal Emergency Management Agency

FOIA Freedom of Information Act

GIS geographic information system

HSEEP Homeland Security Exercise and Evaluation Program

ICS Incident Command System

IT information technology

MAC multiagency coordination 

NIMS National Incident Management System

NRF National Response Framework

SOP standard operating procedure

TDD telecommunications device for the deaf

TEP training and exercise plan

USDA U.S. Department of Agriculture

SOP Manual 23-13 Overview of NRF and NIMS