FOOD & DRUG 

ADMINISTRATION 

U.S. DEPARTMENT OF HEALTH AND HUMAN SERVICES 

U.S. Food and Drug Administration 

FDA Emergency Operations Plan 

Version 3.0 

July 2019 

OFFICE OF EMERGENCY MANAGEMENT 
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FDA Emergency Operations Plan 

July 2019 i A Message from the Commissioner 
MESSAGE FROM THE ACTING COMMISSIONER 

TO CENTER/OFF[CE LEADERSHIP 

FDA's mission to protect and promote the public health requires that FDA remain prepared to 

deal with a wide variety of natural and manmade threats that involve, impact, or require the use 

of FDA-regulated products. FDA has significant experience responding to such threats, and our 

country has benefited greatly from the support of our dedicated staff during such emergencies. 

In order to ensure that we remain prepared to respond effectively to threats, FDA's Emergency 

Operations Plan (EOP) needs to be accurate and current. The EOP summarizes how the agency 

coordinates information and resources during emergencies. 

We are issuing the first major update to the EOP since 2014. The updated EOP reflects 

organizational changes within the agency, particularly the Office of Regulatory Affairs program 

alignment and the addition ofFDA's Executive Committee in the response process. These 

process changes were assessed and validated by external independent study conducted in the Fall 

of 2018. 

While each threat is unique, the magnitude of recent events - such as the increased number of 

hurricanes - has required FDA to engage in new ways to ensure product safety and availability 

for our fellow citizens. Recent emergency responses have demonstrated the critical nature of 

coordinating resources across FDA and prioritizing our efforts. We have been able expand our 

response capacity by leveraging staff expertise from across the agency, and have been able to 

better identify the right approaches and solutions by collaborating with Federal partners, 

industry, and the community. 

Key to our EOP is timely communication and, in that regard, the revised plan facilitates the rapid 

dissemination of information, especially to affected consumers, about our response and the steps 

toward recovery. Our ongoing training programs ensure that we are able to work effectively as a 

unified team to mitigate, respond to, and recover from disasters. 

Catastrophic events, when they occur, challenge FDA to respond effectively to such crises and 

provide relief to affected Americans. The work of the FDA staff who put in countless hours in 

support of these efforts-on top of their other mission-critical work at the agency-is deeply 

appreciated. Along with the agency's senior leaders, I am fully committed to FDA's role in 

support of the nation's efforts to recover from any disaster. 

Any questions regarding this EOP can be directed to the Office of Emergency 

Management/Emergency Planning, Exercises, and Evaluation Staff 

(OCMExerciseandEvaluations@fda.hhs.gov). 

eless, M.D. 

Acting Commissioner of Food and Drugs 

FDA Emergency Operations Plan 

July 2019 ii A Message from the Commissioner 
 

FDA Emergency Operations Plan 

An electronic version of the FDA EOP and its annexes 

can be found on the Inside FDA website at 

http://inside.fda.gov:9003/PolicyProcedures/SOPsbyProgram/EmergencyResponse/ucm381277.htm 

July 2019 iii A Message from the Commissioner 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

I I I I I 

FDA Emergency Operations Plan 

RECORD OF CHANGES 

Change

# 

Page 

# Section Change Description Change Made By Date 

NOTE: See individual annexes for additional record of changes. 

July 2019 iv Record of Changes 
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July 2019 v Record of Changes 
 

 

 

 

 

FDA Emergency Operations Plan 

DISTRIBUTION LIST 

Office of the Commissioner 

• Office of the Chief of Staff 

• Office of the Chief Counsel 

• Office of Policy and Planning 

• Office of Foods and Veterinary Medicine 

• Office of the Chief Scientist 

o National Center for Toxicological 

Research/Office of the Director 

• Office of Legislation 

• Office of External Affairs 

• Office of Operations 

o Office of Security and 

Emergency Management 

Office of Foods and Veterinary Medicine 

Center for Food Safety and Applied Nutrition 

• Office of the Director 

Office of Global Regulatory Operations and 

Policy 

Office of International Programs 

Office of Regulatory Affairs 

• Office of Management 

• Office of Communications and Project 

Management 

• Office of Criminal Investigations 

• Office of Training, Education, and 

Development 

• Office of Human and Animal Food 

Operations 

• Office of Medical Products and Tobacco 

Operations 

• Office of Partnership and Operational 

Policy 

• Office of Enforcement and Import 

Operations 

• Office of Regularoty Science 

• Coordinated Outbreak Response and Evaluation Network 

Center for Veterinary Medicine 

• Office of the Director 

Office of Medical Products and Tobacco 

• Office of Special Medical Programs 

Center for Drug Evaluation and Research 

• Office of the Director 

Center for Biologics Evaluation and Research 

• Office of the Director 

Center for Devices and Radiological Health 

• Office of the Director 

Center for Tobacco Products 

• Office of the Director 

July 2019 vi Distribution List 
FDA Emergency Operations Plan 

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July 2019 vii Distribution List 
 

 

FDA Emergency Operations Plan 

TABLE OF CONTENTS 

A. Introduction........................................................................................................................1 

A.1 Mission ........................................................................................................................................ 2 

A.2 Purpose ....................................................................................................................................... 3 

A.3 Scope and Applicability ............................................................................................................... 3 

A.4 Planning Assumptions................................................................................................................. 3 

A.5 Activation..................................................................................................................................... 5 

A.5.1 Activation of EOP Annexes ............................................................................................ 5 

A.6 Supersedence ............................................................................................................................. 6 

B. Concept of Operations ......................................................................................................7 

B.1 Emergency Authorities ................................................................................................................ 7 

B.2 Emergency Operations Phases .................................................................................................. 8 

B.2.1 Prevention, Protection, and Mitigation ........................................................................... 8 

B.2.1.1 Surveillance, Detection, and Alert.................................................................. 9 

B.2.1.2 Consumer Product Protection...................................................................... 13 

B.2.1.3 Medical Countermeasures........................................................................... 14 

B.2.1.4 Increased Surveillance of FDA-Regulated Medical Products...................... 14 

B.2.2 Response ..................................................................................................................... 14 

B.2.2.1 Gain and Maintain Situational Awareness ................................................... 15 

B.2.2.1.1 Alert and Notification.................................................................. 15 

B.2.2.1.2 Assessment and Monitoring....................................................... 16 

B.2.2.2 Activation and Deployment of Resources and Capabilities ......................... 17 

B.2.2.2.1 Authority to Change Operational Levels .................................... 19 

B.2.2.2.2 Conditions for Operational Level Change.................................. 19 

B.2.2.3 Coordination of Response Actions .............................................................. 20 

B.2.2.3.1 Initial and Ongoing Response Planning..................................... 21 

B.2.2.3.2 FDA Field Response.................................................................. 21 

B.2.2.3.3 FDA Headquarters Response.................................................... 22 

B.2.2.3.4 Mission Assignments in Support of State and Local Response 24 

B.2.2.3.5 Medical Countermeasures: EUA and Expanded Access .......... 24 

B.2.2.4 Demobilization ............................................................................................. 26 

B.2.3 Recovery ...................................................................................................................... 26 

B.2.3.1 Evaluation of Response............................................................................... 27 

C. Organization and Assignment of Responsibilities........................................................30 

C.1 Office of the Commissioner....................................................................................................... 32 

C.1.1 Office of the Executive Secretariat............................................................................... 32 

C.1.2 Office of the Chief Counsel .......................................................................................... 33 

C.1.3 Office of Legislation...................................................................................................... 33 

C.1.4 Office of Policy and Planning ....................................................................................... 34 

C.1.4.1 Office of Policy ............................................................................................. 34 

C.1.4.2 Office of Planning......................................................................................... 34 

C.1.5 Office of External Affairs .............................................................................................. 34 

C.1.5.1 Web and Digital Media Staff ........................................................................ 34 

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C.1.5.2 Office of Communications............................................................................ 35 

C.1.5.3 Consumer Health and Constituent Affairs ................................................... 36 

C.1.5.4 Office of Media Affairs.................................................................................. 36 

C.1.5.4.1 Media Relations Staff................................................................. 36 

C.1.6 Office of the Chief Scientist.......................................................................................... 37 

C.1.6.1 Office of Counterterrorism and Emerging Threats....................................... 37 

C.1.6.2 National Center for Toxicological Research ................................................ 38 

C.2 Office of Operations .................................................................................................................. 38 

C.2.1 Office of Business Services ......................................................................................... 38 

C.2.2 Office of Finance, Budget, and Acquisition.................................................................. 38 

C.2.2.1 Office of Budget ........................................................................................... 38 

C.2.2.2 Office of Acquisitions and Grants Services.................................................. 39 

C.2.2.3 Office of Financial Operations ..................................................................... 39 

C.2.2.3.1 Office of Financial Management ................................................ 39 

C.2.2.3.2 Office of Financial Services ....................................................... 39 

C.2.3 Office of Information Management and Technology.................................................... 40 

C.2.4 Office of Human Resources......................................................................................... 40 

C.2.5 Office of Facilities Engineering and Mission Support Services.................................... 41 

C.2.6 Office of Security and Emergency Management ......................................................... 41 

C.2.6.1 Office of Security Operations....................................................................... 41 

C.2.6.2 Office of Emergency Management .............................................................. 42 

C.2.6.2.1 Office of Emergency Operations................................................ 42 

C.3 Office of Foods and Veterinary Medicine.................................................................................. 43 

C.3.1 Center for Food Safety and Applied Nutrition .............................................................. 44 

C.3.1.1 Coordinated Outbreak Response and Evaluation Network ......................... 44 

C.3.2 Center for Veterinary Medicine .................................................................................... 45 

C.4 Office of Medical Products and Tobacco .................................................................................. 46 

C.4.1 Office of Special Medical Programs............................................................................. 46 

C.4.1.1 Office of Good Clinical Practice ................................................................... 47 

C.4.1.2 Office of Combination Products ................................................................... 47 

C.4.1.3 Office of Orphan Products Development..................................................... 47 

C.4.1.4 Office of Pediatric Therapeutics................................................................... 48 

C.4.1.5 Advisory Committee Oversight and Management Staff............................... 48 

C.4.2 Center for Drug Evaluation and Research................................................................... 48 

C.4.3 Center for Biologics Evaluation and Research ............................................................ 49 

C.4.4 Center for Devices and Radiological Health ................................................................ 50 

C.4.5 Center for Tobacco Products ....................................................................................... 50 

C.5 Office of Global Regulatory Operations and Policy................................................................... 51 

C.5.1 Office of International Programs .................................................................................. 51 

C.5.2 Office of Regulatory Affairs .......................................................................................... 53 

C.5.2.1 Office of Management.................................................................................. 54 

C.5.2.2 Office of Communications and Project Management .................................. 54 

C.5.2.3 Office of Criminal Investigations .................................................................. 55 

C.5.2.4 Office of Training Education and Development ........................................... 55 

C.5.2.5 Office of Partnerships and Operational Policy............................................. 55 

C.5.2.6 Office of Human and Animal Food Operations ............................................ 56 

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C.5.2.7 Office of Medical Products and Tobacco Operations .................................. 57 

C.5.2.8 Office of Enforcement and Import Operations ............................................. 58 

C.5.2.9 Office of Regulatory Science ....................................................................... 59 

C.5.2.9.1 Forensic Chemistry Center ........................................................ 59 

C.5.2.9.2 Winchester Engineering and Analytical Center ......................... 59 

D. Direction, Control, and Coordination .............................................................................60 

D.1 Field Incident Command ........................................................................................................... 60 

D.1.1 Command Staff ............................................................................................................ 62 

D.1.1.1 Incident Commander (IC)............................................................................. 62 

D.1.1.2 Liaison Officer (LNO) ................................................................................... 62 

D.1.1.3 Safety Officer (SO)....................................................................................... 62 

D.1.1.4 Public Information Officer (PIO)................................................................... 62 

D.1.2 General Staff ................................................................................................................ 62 

D.1.2.1 Operations Section ...................................................................................... 62 

D.1.2.2 Planning Section .......................................................................................... 63 

D.1.2.3 Logistics Section .......................................................................................... 63 

D.1.2.4 Finance/Administration Section ................................................................... 63 

D.2 Headquarters Incident Coordination ......................................................................................... 63 

D.2.1 Command Staff ............................................................................................................ 64 

D.2.1.1 Agency Incident Coordinator ....................................................................... 64 

D.2.1.2 Liaison Officers ............................................................................................ 65 

D.2.1.3 Safety Officer ............................................................................................... 65 

D.2.1.4 Public Information Officer............................................................................. 66 

D.2.1.4.1 FDA Joint Information Center .................................................... 67 

D.2.1.4.2 Media Relations Group .............................................................. 68 

D.2.1.4.3 Web and Digital Media Group.................................................... 68 

D.2.1.4.4 Stakeholder Outreach Group..................................................... 68 

D.2.1.4.5 State and Local Officials Group ................................................. 68 

D.2.1.4.6 Call Centers Liaison................................................................... 68 

D.2.1.4.7 Congressional Liaison................................................................ 68 

D.2.1.4.8 International Liaison to External Unified JIC.............................. 68 

D.2.1.4.9 Internal Communications Liaison............................................... 69 

D.2.2 General Staff ................................................................................................................ 69 

D.2.2.1 Operations Section ...................................................................................... 69 

D.2.2.1.1 Operations Section Chief........................................................... 69 

D.2.2.1.2 Divisions and Groups................................................................. 70 

D.2.2.1.3 Center/Office Emergency Coordinators..................................... 70 

D.2.2.2 Planning Section .......................................................................................... 70 

D.2.2.2.1 Planning Section Chief............................................................... 71 

D.2.2.2.2 Units ........................................................................................... 71 

D.2.2.2.3 Technical Specialists ................................................................. 72 

D.2.2.3 Logistics Section .......................................................................................... 73 

D.2.2.3.1 Units ........................................................................................... 73 

D.2.2.3.2 Technical Specialists ................................................................. 73 

D.2.2.3.3 EOC Manager ............................................................................ 73 

D.2.2.4 Finance/Administration Section ................................................................... 74 

D.2.2.4.1 Units ........................................................................................... 74 

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D.2.3 Agency Executives....................................................................................................... 74 

D.2.3.1 Agency Executive Group ............................................................................. 74 

D.2.3.2 FDA Executive Committee........................................................................... 75 

D.2.4 Multiagency Coordination............................................................................................. 75 

D.2.5 Multiagency Coordination Group for Foodborne Illness Outbreaks............................. 76 

E. Communications and Information Management............................................................78 

E.1 Intra-Agency Coordination ........................................................................................................ 78 

E.1.1 Emergency Alerts......................................................................................................... 78 

E.1.2 Situation Reporting....................................................................................................... 79 

E.1.3 Emergency Operations Network – Incident Management System .............................. 79 

E.1.4 Government Emergency Telecommunications Service............................................... 80 

E.2 Intergovernmental Coordination................................................................................................ 80 

E.2.1 Communicating with Federal Government Agencies................................................... 80 

E.2.2 Communicating with State, Local, Tribal, and Territorial Governments....................... 80 

E.2.3 Communicating with Foreign Governments................................................................. 81 

E.3 Public Messaging ...................................................................................................................... 81 

E.3.1 Coordination with Other Federal Agencies .................................................................. 82 

E.3.2 Congress ...................................................................................................................... 82 

F. Authorities and References ............................................................................................84 

F.1 Statutes and Regulations .......................................................................................................... 84 

F.1.1 Federal Food, Drug, and Cosmetic Act........................................................................ 84 

F.1.2 Public Health Service Act............................................................................................. 86 

F.1.3 Federal Anti-Tampering Act ......................................................................................... 86 

F.1.4 Bioterrorism Act............................................................................................................ 87 

F.1.5 Stafford Act................................................................................................................... 87 

F.1.6 Public Readiness and Emergency Preparedness Act ................................................. 88 

F.1.7 Title 18 and Title 21 United States Code ..................................................................... 88 

F.1.8 Code of Federal Regulations Title 21 .......................................................................... 88 

F.2 Presidential Directives............................................................................................................... 89 

F.2.1 PPD-2, National Strategy for Countering Biological Threats ....................................... 89 

F.2.2 PPD-8, National Preparedness.................................................................................... 89 

F.2.3 National Preparedness Goal........................................................................................ 89 

F.2.4 National Preparedness System ................................................................................... 89 

F.2.5 National Planning Frameworks .................................................................................... 89 

F.2.6 HSPD-5, Management of Domestic Incidents ............................................................. 90 

F.2.7 HSPD-7, Critical Infrastructure Identification, Prioritization, and Protection ................ 90 

F.2.8 HSPD-9, Defense of United States Agriculture and Food ........................................... 90 

F.2.9 HSPD-18, Medical Countermeasures Against Weapons of Mass Destruction ........... 90 

F.2.10 NSPD-51/HSPD-20, National Continuity Policy........................................................... 90 

F.2.11 HSPD-21, Public Health and Medical Preparedness................................................... 90 

F.2.12 HSPD-22, Domestic Chemical Defense ...................................................................... 90 

F.3 National Strategies.................................................................................................................... 91 

F.3.1 National Strategy for the Physical Protection of Critical Infrastructures and Key 

Assets........................................................................................................................... 91 

F.3.2 National Strategy for Homeland Security..................................................................... 91 

F.3.3 National Security Strategy............................................................................................ 91 

F.4 Federal Plans and Guidance..................................................................................................... 91 

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F.4.1 Comprehensive Preparedness Guide 101................................................................... 91 

F.4.2 National Incident Management System ....................................................................... 91 

F.4.3 National Infrastructure Protection Plan ........................................................................ 92 

F.4.4 National Preparedness Guidelines .............................................................................. 92 

F.4.5 National Response Framework.................................................................................... 92 

F.4.6 National Disaster Recovery Framework ...................................................................... 93 

F.5 FDA Supporting Documentation ............................................................................................... 93 

F.5.1 Center/Office Emergency Plans and Procedures ........................................................ 93 

F.5.2 SOP for FDA Headquarters Building Closures and Dismissal of Employees.............. 94 

F.5.3 Center/Office COOP Plans .......................................................................................... 94 

G. Plan Management ............................................................................................................95 

G.1 Coordination.............................................................................................................................. 95 

G.2 Maintenance.............................................................................................................................. 95 

G.3 Promulgation ............................................................................................................................. 95 

G.4 Standards for Supporting Documentation................................................................................. 95 

G.5 Training and Exercises.............................................................................................................. 96 

G.6 Implementation.......................................................................................................................... 96 

Appendix A: FDA Support for the Emergency Support Function Annexes to the

National Response Framework.............................................................................App-A-1 

A.1 ESF #8 – Public Health and Medical Services.................................................................App-A-1 

A.2 ESF #10 – Oil and Hazardous Materials Response ........................................................App-A-3 

A.3 ESF #11 – Agriculture and Natural Resources ................................................................App-A-4 

Appendix B: FDA Support for the Incident Annexes to the NRF...............................App-B-1 

B.1 Biological Incident Annex .................................................................................................App-B-1 

B.2 Catastrophic Incident Annex ............................................................................................App-B-2 

B.3 Food and Agriculture Incident Annex...............................................................................App-B-2 

B.4 Nuclear/Radiological Incident Annex ...............................................................................App-B-3 

B.5 Terrorism Incident Law Enforcement and Investigation Annex .......................................App-B-5 

Appendix C: Processing Mission Assignment Sub-Taskings ...................................App-C-1 

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

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

C.3 Scope ...............................................................................................................................App-C-1 

C.4 Procedure.........................................................................................................................App-C-2 

C.4.1 Processing Resource Request Form ..................................................................App-C-2 

C.4.1.1 FDA/State Coordination......................................................................App-C-2 

C.4.1.2 Initial FDA Internal Coordination (Field and Headquarters)................App-C-3 

C.4.2 Processing a Mission Assignment Sub-Task......................................................App-C-3 

C.4.2.1 FDA/FEMA/HHS Coordination............................................................App-C-3 

C.4.2.2 FDA Internal Coordination ..................................................................App-C-4 

C.4.2.3 MA Monitoring and Closeout ..............................................................App-C-4 

Attachment C-1: FDA Pre-Scripted Mission Assignments......................................App-C-1-1 

Attachment C-2: RRF for FDA Retail Food Establishment Inspections Sample....App-C-2-1 

Attachment C-3: MA Form Based On Completed RRF Sample...............................App-C-3-1 

Attachment C-4: Stafford Act Mission Sub-Tasking Based on MA Form Sample .App-C-4-1 

Appendix D: Characteristics of Potential Foodborne Agents....................................App-D-1 

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Appendix E: Chemical Agents – Background Information ........................................ App-E-1 

E.1 General Information .........................................................................................................App-E-1 

E.2 Classes of Chemical Warfare Agents ..............................................................................App-E-1 

E.3 Nerve Agent Exposure Versus Nerve Agent Intoxication ................................................App-E-2 

E.4 Chemical Agent Characteristics.......................................................................................App-E-3 

E.5 List of Additional Chemical Agents...................................................................................App-E-4 

Appendix F: Biological Agents – Background Information ....................................... App-F-1 

F.1 General Information ......................................................................................................... App-F-1 

F.2 Classes of Biological Warfare Agents.............................................................................. App-F-1 

F.3 Epidemiologic Clues That May Signal a Covert Bioterrorism Attack ............................... App-F-2 

F.4 Bioterrorism Agents/Diseases By Category.....................................................................App-F-3 

Appendix G: Oversight of Select Agents and Toxins by HHS/CDC and USDA/Animal

and Plant Health Inspection Service.....................................................................App-G-1 

G.1 HHS Select Agents and Toxins....................................................................................... App-G-1 

G.2 Overlap Select Agents and Toxins.................................................................................. App-G-2 

G.3 USDA Select Agents and Toxins .................................................................................... App-G-2 

G.4 USDA Plant Protection and Quarantine Select Agents and Toxins.................................. App-G-2 

Appendix H: Domestic and International Traceback/Traceforward...........................App-H-1 

H.1 Domestic ..........................................................................................................................App-H-1 

H.2 International......................................................................................................................App-H-1 

Appendix I: Memorandum of Understanding............................................................... App-I-1 

Appendix J: Forms and Templates.............................................................................. App-J-1 

Appendix K: Glossary of Terms...................................................................................App-K-1 

Appendix L: List of Acronyms and Abbreviations..................................................... App-L-1 

Nuclear/Radiological Annex to the FDA Emergency Operations Plan ....................... 

A. Introduction............................................................................................ Nuc/Rad Annex-1 

A.1 Mission ..............................................................................................................Nuc/Rad Annex-1 

A.2 Purpose .............................................................................................................Nuc/Rad Annex-1 

A.3 Scope and Applicability .....................................................................................Nuc/Rad Annex-2 

A.4 Planning Assumptions.......................................................................................Nuc/Rad Annex-2 

A.5 Activation...........................................................................................................Nuc/Rad Annex-2 

A.6 Supersedence ...................................................................................................Nuc/Rad Annex-3 

B. Concept of Operations .......................................................................... Nuc/Rad Annex-5 

B.1 Emergency Authorities ......................................................................................Nuc/Rad Annex-5 

B.2 Emergency Operations Phases ........................................................................Nuc/Rad Annex-5 

B.2.1 Prevention, Protection, and Mitigation .................................................Nuc/Rad Annex-5 

B.2.1.1 Surveillance and Detection ..................................................Nuc/Rad Annex-6 

B.2.1.1.1 Winchester Engineering and Analytical Center .Nuc/Rad Annex-6 

B.2.2 Response .............................................................................................Nuc/Rad Annex-6 

B.2.2.1 Gain and Maintain Situational Awareness ...........................Nuc/Rad Annex-6 

B.2.2.1.1 Alert and Notification..........................................Nuc/Rad Annex-6 

B.2.2.1.2 Assessment and Monitoring...............................Nuc/Rad Annex-6 

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B.2.2.2 Medical Countermeasures...................................................Nuc/Rad Annex-6 

B.2.2.3 Activation and Deployment of Resources and Capabilities .Nuc/Rad Annex-7 

B.2.2.4 Coordination of Response Actions ......................................Nuc/Rad Annex-7 

B.2.2.4.1 Exposure Determination Information .................Nuc/Rad Annex-7 

B.2.3 Recovery ..............................................................................................Nuc/Rad Annex-8 

C. Organization and Assignment of Responsibilities.............................. Nuc/Rad Annex-9 

C.1 Office of the Commissioner...............................................................................Nuc/Rad Annex-9 

C.1.1 Office of Operations .............................................................................Nuc/Rad Annex-9 

C.1.1.1 Office of Security and Emergency Management .................Nuc/Rad Annex-9 

C.1.1.1.1. Office of Emergency Management .....................Nuc/Rad Annex-9 

C.1.2 Office of Laboratory Science and Safety ...........................................Nuc/Rad Annex-10 

C.1.2.1. Employee Safety and Environmental Management Staff................................ 

...........................................................................................Nuc/Rad Annex-10 

C.1.3 Office of Chief Scientist......................................................................Nuc/Rad Annex-10 

C.1.3.1 Office of Counterterrorism and Emerging Threats.............Nuc/Rad Annex-10 

C.2. Office of Foods and Veterinary Medicine........................................................Nuc/Rad Annex-11 

C.2.1 Center for Food Safety and Applied Nutrition ....................................Nuc/Rad Annex-11 

C.3 Office of Global Regulatory Operations and Policy.........................................Nuc/Rad Annex-11 

C.3.1 Office of Regulatory Affairs ................................................................Nuc/Rad Annex-11 

C.3.1.1 Radiological Health Representatives.................................Nuc/Rad Annex-11 

D. Direction, Control, and Coordination ................................................. Nuc/Rad Annex-14 

D.1 Field Incident Command .................................................................................Nuc/Rad Annex-14 

D.2 Headquarters Incident Coordination ...............................................................Nuc/Rad Annex-14 

D.2.1 Command Staff ..................................................................................Nuc/Rad Annex-15 

D.2.1.1 Radiological-Specific Liaisons ...........................................Nuc/Rad Annex-15 

D.2.2 General Staff ......................................................................................Nuc/Rad Annex-15 

D.2.2.1 Operations Section ............................................................Nuc/Rad Annex-15 

D.2.2.1.1 Drug Group ......................................................Nuc/Rad Annex-15 

D.2.2.1.2 Biologics Group................................................Nuc/Rad Annex-16 

D.2.2.1.3 Medical Device Group......................................Nuc/Rad Annex-16 

D.2.2.1.4 Food/Feed Safety Group .................................Nuc/Rad Annex-17 

D.2.2.2 Planning Section ................................................................Nuc/Rad Annex-18 

D.2.2.2.1 Radiological Emergency Response Unit .........Nuc/Rad Annex-18 

D.2.2.2.2 Technical Specialists .......................................Nuc/Rad Annex-18 

D.2.2.2.3 Employee Health Specialist .............................Nuc/Rad Annex-18 

E. Communications and Information Management................................ Nuc/Rad Annex-20 

E.1 Emergency Alerts............................................................................................Nuc/Rad Annex-20 

E.2 External Information Sharing...........................................................................Nuc/Rad Annex-21 

E.2.1 Information Sharing Process..............................................................Nuc/Rad Annex-21 

F. Authorities and References ................................................................ Nuc/Rad Annex-24 

F.1 Code of Federal Regulations ..........................................................................Nuc/Rad Annex-24 

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F.2 Federal Plans and Guidance...........................................................................Nuc/Rad Annex-24 

F.3 FDA Supporting Documentation .....................................................................Nuc/Rad Annex-25 

F.3.1 WEAC Radiation Safety Manual ........................................................Nuc/Rad Annex-25 

F.3.2 CFSAN Radiological Emergency Response Plan .............................Nuc/Rad Annex-25 

F.3.3 FDA Food Protective Guidance .........................................................Nuc/Rad Annex-25 

Appendix A: Winchester Engineering Analytical Center.......................... Nuc/Rad Annex-26 

Appendix B: Activation/Notification of the Advisory Team for Nuclear/Radiological

Emergencies ........................................................................................ Nuc/Rad Annex-28 

Appendix C: Protective Actions................................................................. Nuc/Rad Annex-32 

Appendix D: Memorandum of Understanding .......................................... Nuc/Rad Annex-34 

Appendix E: FDA Responsibilities During Radiological Incidents.......... Nuc/Rad Annex-36 

Pandemic Influenza Annex to the FDA Emergency Operations Plan ......................... 

A. Introduction....................................................................................................... PI Annex-1 

A.1 Mission ........................................................................................................................ PI Annex-1 

A.2 Purpose ....................................................................................................................... PI Annex-1 

A.3 Scope and Applicability ............................................................................................... PI Annex-2 

A.4 Planning Assumptions................................................................................................. PI Annex-3 

A.5 Activation..................................................................................................................... PI Annex-4 

A.6 Supersedence ............................................................................................................. PI Annex-4 

B. Concept of Operations ..................................................................................... PI Annex-5 

B.1 Emergency Authorities ................................................................................................ PI Annex-5 

B.2 Emergency Operations Phases .................................................................................. PI Annex-5 

B.2.1 Prevention and Protection.............................................................................. PI Annex-5 

B.2.1.1 Surveillance and Detection ............................................................ PI Annex-5 

B.2.1.2 Consumer Product Protection........................................................ PI Annex-5 

B.2.1.3 Medical Countermeasures............................................................. PI Annex-6 

B.2.1.4 Increased Surveillance of FDA-Regulated Pandemic Influenza 

Medical Products ........................................................................... PI Annex-6 

B.2.2 Response ....................................................................................................... PI Annex-6 

B.2.2.1 Gain and Maintain Situational Awareness ..................................... PI Annex-6 

B.2.2.1.1 Alert and Notification.................................................... PI Annex-6 

B.2.2.1.2 Administrative Alert and Notification ............................ PI Annex-6 

B.2.2.2 Coordination of Response Actions ................................................ PI Annex-6 

B.2.2.2.1 FDA Headquarters Response...................................... PI Annex-6 

B.2.2.2.2 Medical Countermeasures Expanded Access and EUA ............... 

..................................................................................... PI Annex-7 

B.2.2.3 Demobilization ............................................................................... PI Annex-7 

B.2.3 Recovery ........................................................................................................ PI Annex-7 

C. Organization and Assignment of Responsibilities......................................... PI Annex-9 

C.1 Office of the Commissioner......................................................................................... PI Annex-9 

C.1.1 Office of the Chief Counsel .......................................................................... PI Annex-10 

C.1.2 Office of Legislation...................................................................................... PI Annex-11 

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FDA Emergency Operations Plan 

C.1.3 Office of Policy and Planning ....................................................................... PI Annex-11 

C.1.4 Office of External Affairs .............................................................................. PI Annex-11 

C.1.4.1 Web and Digital Media Staff ........................................................ PI Annex-11 

C.1.4.2 Office of Communications............................................................ PI Annex-12 

C.1.4.3 Office of Media Affairs/Media Relations....................................... PI Annex-12 

C.1.4.4 Office of Health and Constituent Affairs....................................... PI Annex-13 

C.2. Office of the Chief Scientist ......................................................................................... PI Annex-13 

C.2.1 Office of Counterterrorism and Emerging Threats....................................... PI Annex-13 

C.3 Office of Operations .................................................................................................. PI Annex-14 

C.3.1 Office of Finance, Budget, and Acquisition.................................................. PI Annex-16 

C.3.1.1 Office of Budget ........................................................................... PI Annex-16 

C.3.1.2 Office of Acquisitions and Grants Services.................................. PI Annex-17 

C.3.1.3 Office of Financial Operations ..................................................... PI Annex-18 

C.3.1.3.1 Office of Financial Management ................................ PI Annex-18 

C.3.2 Office of Information Management............................................................... PI Annex-18 

C.3.3 Office of Security and Emergency Management ......................................... PI Annex-21 

C.3.3.1 Office of Emergency Management .............................................. PI Annex-21 

C.4 Office of Foods and Veterinary Medicine.................................................................. PI Annex-23 

C.4.1 Center for Food Safety and Applied Nutrition .............................................. PI Annex-23 

C.4.1.1 Coordinated Outbreak Response and Evaluation ....................... PI Annex-24 

C.4.2 Center for Veterinary Medicine .................................................................... PI Annex-25 

C.5 Office of Medical Products and Tobacco .................................................................. PI Annex-26 

C.5.1 Office of Special Medical Programs............................................................. PI Annex-26 

C.5.1.1 Office of Combination Products ................................................... PI Annex-26 

C.5.2 Center for Drug Evaluation and Research................................................... PI Annex-26 

C.5.3 Center for Biologics Evaluation and Research ............................................ PI Annex-28 

C.5.4 Center for Devices and Radiological Health ................................................ PI Annex-30 

C.6 Office of Global Regulatory Operations and Policy................................................... PI Annex-31 

C.6.1 Office of International Programs .................................................................. PI Annex-31 

C.6.2 Office of Regulatory Affairs .......................................................................... PI Annex-32 

C.6.2.1 Office of Regulatory Affairs Laboratories..................................... PI Annex-34 

D. Direction, Control, and Coordination ............................................................ PI Annex-35 

D.1 Command Staff ......................................................................................................... PI Annex-36 

D.1.1 Pandemic Influenza-Specific Liaisons ......................................................... PI Annex-36 

D.1.2 Legal Advisor ............................................................................................... PI Annex-36 

D.1.2.1 Legal Group ................................................................................. PI Annex-36 

D.2 General Staff ............................................................................................................. PI Annex-36 

D.2.1 Operations Section....................................................................................... PI Annex-36 

D.2.1.1 Drug Group .................................................................................. PI Annex-37 

D.2.1.1.1 Antiviral Team ............................................................ PI Annex-37 

D.2.1.1.2 Expired Drugs Team .................................................. PI Annex-37 

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FDA Emergency Operations Plan 

D.2.1.1.3 Drug Shortage Team ................................................. PI Annex-37 

D.2.1.1.4 Adverse Drug Events Team....................................... PI Annex-37 

D.2.1.2 Biologics Group............................................................................ PI Annex-37 

D.2.1.2.1 Vaccine Team ............................................................ PI Annex-37 

D.2.1.2.2 Blood Team................................................................ PI Annex-38 

D.2.1.3 Medical Device Group.................................................................. PI Annex-38 

D.2.1.3.1 In-Vitro Diagnostics Team.......................................... PI Annex-38 

D.2.1.3.2 Personal Protective Equipment and Other Devices Team ............ 

................................................................................... PI Annex-38 

D.2.1.3.3 Shortage Team .......................................................... PI Annex-39 

D.2.2 Logistics Section .......................................................................................... PI Annex-39 

D.2.2.1 Employee Health Advisor............................................................. PI Annex-39 

E. Communications and Information Management........................................... PI Annex-41 

F. Authorities and References ........................................................................... PI Annex-43 

F.1 National Strategies.................................................................................................... PI Annex-43 

F.2 Federal Plans and Guidance..................................................................................... PI Annex-43 

F.3 FDA Supporting Documentation ............................................................................... PI Annex-44 

Appendix A: Protection of Workers: Guidance on Preparing the Workplace and

Workers for an Influenza Pandemic .............................................................. PI Annex-45 

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FDA Emergency Operations Plan 

LIST OF FIGURES 

Figure B-1. FDA Emergency Response Elements ..................................................................................... 15 

Figure C-1. Process Overview ...........................................................................................................App-C-2 

Figure D-1. Notional FDA IMG for a Nuclear/Radiological Event .....................................Nuc/Rad Annex-14 

Figure D-2. Notional Operations Section Organizational Elements..................................Nuc/Rad Annex-15 

Figure E-1. Emergency Alert Reporting Pathways ...........................................................Nuc/Rad Annex-20 

Figure E-2. Notional FDA Food and Agricultural Nuclear/Radiological Incident Communications 

Figure B-2. FDA Emergency Response Decision Tree .............................................................................. 17 

Figure C-1. FDA Organizational Chart........................................................................................................ 31 

Figure C-2. FDA OC Organizational Chart ................................................................................................. 32 

Figure D-1. FDA Field Incident Management Team ................................................................................... 61 

Figure D-2. FDA Headquarters Incident Management Group .................................................................... 64 

Figure D-3. FDA’s Joint Information System............................................................................................... 66 

Figure D-4. FDA Joint Information Center Possible Structure.................................................................... 67 

Figure D-5. Operations Section Organizational Elements .......................................................................... 69 

Figure D-6. Planning Section Organizational Elements.............................................................................. 71 

Figure D-8. Logistics Section Organizational Elements.............................................................................. 73 

Figure D-9. Finance/Administration Section Organizational Elements....................................................... 74 

Figure D-10. MAC-FIO Unified Coordination for Foodborne Illness Outbreaks ......................................... 77 

Links ..................................................................................................................................Nuc/Rad Annex-21 

Figure A-1. Continuuum of Pandemic Phases.............................................................................. PI Annex-3 

Figure D-1. Possible Pandemic Influenza IMG Structure ........................................................... PI Annex-35 

LIST OF TABLES 

Table B-1. Surveillance and Detection Systems Utilized by FDA............................................................... 10 

Table E-1. FDA Communication Links by IMG Position and Center/Office......................Nuc/Rad Annex-22 

Table C-1. Principal Radionuclides and Corresponding DILs...........................................Nuc/Rad Annex-32 

Table E-1. FDA Responsibilities for Radiological Incidents..............................................Nuc/Rad Annex-36 

Table B-2. FDA Incident Levels and EOC Operation Levels ...................................................................... 18 

Table A-1. ESF Roles Aligned to Core Capabilities...........................................................................App A-2 

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FOOD & DRUG 

ADMINISTRATION 

U.S. DEPARTMENT OF HEALTH AND HUMAN SERVICES 

U.S. Food and Drug Administration 

FDA Emergency Operations Plan 

Version 3.0 

July 2019 

OFFICE OF EMERGENCY MANAGEMENT 
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A. INTRODUCTION 

For purposes of this plan and its supporting annexes: 

An incident is defined as: An occurrence or event, natural or manmade, that requires the attention of 

the U.S. Food and Drug Administration (FDA). At the incident level, FDA is aware of the 

circumstances, is monitoring and assessing the situation, and is determining whether it has 

regulatory authority over the incident. FDA may initiate response operations as described in this 

plan as appropriate. Any incident may evolve into an emergency. 

An emergency is defined as: An unforeseen occurrence or a combination of circumstances that poses 

a significant risk to public health and may include, but is not limited to, the safety, efficacy, and 

security of human and veterinary medicines, biological products, medical devices, our Nation’s food 

supply, cosmetics, products that emit radiation, and tobacco products that call for immediate actions 

by FDA staff. 

Since each emergency is unpredictable and dynamic, and any incident has the potential to escalate into 

an emergency, this plan will use the terms “incident” and “emergency” interchangeably. 

Emergencies and disasters, whether natural or manmade, accidental or intentional, have the potential to 

cause adverse health and safety effects for large segments of the human and animal populations. In order 

to mitigate the consequences of such incidents, FDA must possess the resources and capabilities 

necessary to prevent, prepare for, protect against, and rapidly and effectively respond to and recover from 

all hazards. A planned and coordinated approach to emergency operations by FDA organizational 

components in support of Federal, State, local, tribal, and territorial (SLTT) government, with assistance 

when appropriate from foreign counterparts and international partners, can save lives and ensure that 

critical public health and medical needs are met. 

This FDA Emergency Operations Plan (EOP) and its annexes are an all-discipline, all-hazards plan that 

establishes a single, comprehensive framework for FDA’s management of incidents. It provides the 

measures, operating structures, roles and responsibilities, and mechanisms for direction and coordination 

of FDA resources before, during, and after disease outbreaks, terrorist attacks and other criminal acts, 

natural disasters, and any other incidents associated with FDA-regulated products that pose a risk to 

human or animal health. 

This FDA EOP is compatible with the scalable, flexible, and adaptable Federal government emergency 

coordinating structures of the National Response Framework (NRF); is consistent with the concepts, 

principles, and terminology of the National Incident Management System (NIMS);

1 and fulfills the 

requirements of: 

• Post-Katrina Emergency Management Reform Act of 2006 (Public Law [P.L.] 109-295) 

• Presidential Policy Directive 8 (PPD-8): National Preparedness 

• National Preparedness Goal (NPG) 

• National Preparedness System 

• National Planning Frameworks 

• Federal Interagency Operational Plans 

1 For more information on the NRF and NIMS, refer to the “Authorities and References” section of this EOP. 

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• Federal Emergency Management Agency’s (FEMA) Comprehensive Preparedness Guide (CPG 

101): Developing and Maintaining State, Territorial, Tribal, and Local Government Emergency 

Plans, Version 2, November 2010 

• U.S. Department of Homeland Security’s (DHS) The Integrated Planning System, January 2009 

This FDA EOP is to be used to guide FDA in conducting response operations for all types of incidents. 

A.1 MISSION 

FDA is responsible for protecting the public health by ensuring the safety, efficacy, and security of human 

and veterinary medicines, biological products, medical devices, our Nation’s food supply, cosmetics, and 

products that emit radiation and by regulating tobacco products. Additionally, FDA advances public 

health by helping to speed innovations that make foods safer and medical products more effective, safer, 

and more affordable and by helping the public get the accurate scientific information it needs to use 

medical products and foods to improve their health. 

FDA must continue to meet its mission during emergency and disaster situations, under adverse conditions, and/or from alternate locations as needed. In addition to day-to-day activities, FDA activities may 

expand to include performance of specific incident-related functions, such as: 

• Assisting and supporting the U.S. Department of Health and Human Services (HHS) in public 

health- and medical-related efforts to prevent, respond, mitigate, and recover from an incident. 

• Conducting inspections and investigations and assessing damage to FDA-regulated industry in 

impacted areas. 

• Coordinating the tracing (forward and backward) of the distribution of any potentially 

contaminated FDA-regulated products and initiating seizures or recalls as appropriate. 

• Collecting and analyzing product samples. 

• Providing technical assistance or subject matter expertise related to food and feed, human and 

animal drugs, medical devices, biologics, radiation-emitting devices, and tobacco products. 

• Conducting assessments of food retail establishments in impacted areas. 

• Conducting assessments of tobacco product retail establishments nationwide. 

• Conducting reviews of all adverse event reports related to FDA-regulated products. 

• Assisting with surveillance efforts to determine product integrity of foods, pharmaceuticals, 

medical supplies, equipment, and tobacco products. 

• Authorizing the use of an unapproved medical product (drug, biologic, and device) or the 

unapproved use of an approved medical product (e.g., emergency use authorization [EUA]). 

• Issuing safety alerts, health information advisories, warnings, and advice and guidance to 

consumers and industry. 

• Requiring product manufacturers to make safety-related changes to prescribing information or 

labeling. 

• Detaining or removing contaminated or unfit merchandise from the market and/or restricting 

those marketing it. 

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A.2 PURPOSE 

The purpose of the FDA EOP is to provide for a coordinated and consistent agency approach to preparing 

for, preventing, protecting against, mitigating, responding to, and recovering from incidents involving or 

impacting FDA-regulated products. 

To accomplish this, the FDA EOP: 

• Serves as the single, overarching FDA-wide operational plan to address the full spectrum of 

natural and technological hazards and terrorist threats and the “umbrella plan” into which all 

supporting agency emergency plans, procedural documents, and other guidance integrate. 

• Defines the FDA emergency operating structure and assigns essential tasks to all FDA organizational components involved in prevention, protection, mitigation, response, and recovery efforts. 

• Provides mechanisms for vertical and horizontal command, control, coordination, and 

communications. 

• Integrates FDA emergency response operations into the Federal coordinating structure and 

ensures consistency with nationally recognized incident management policy and guidance. 

A.3 SCOPE AND APPLICABILITY 

The FDA EOP covers the full range of complex and constantly changing requirements in anticipation of 

or in response to all “incidents” that FDA manages or participates in, including the following: 

• Complaints, adverse events, recalls, or unintentional contamination involving FDA-regulated 

products that present a threat of serious adverse health consequences or death to humans or 

animals. 

• Natural disasters (e.g., hurricanes, tornadoes, severe storms, floods, fires, earthquakes, volcanic 

eruptions, tsunamis, landslides). 

• Naturally occurring disease and foodborne illness outbreaks, epidemics, and pandemics. 

• Manmade accidents, such as hazardous materials releases or spills; air, land, or water contamination; and utility outages. 

• Terrorist or criminal acts, including the threat or intentional use of chemical, biological, radiological, nuclear, or high-yield explosive (CBRNE) weapons against human or animal populations 

or FDA-regulated products. 

The FDA EOP establishes intra- and interagency mechanisms for FDA involvement in domestic and 

international incident management operations. These mechanisms include coordinating structures and 

processes for incidents requiring agency support for consumer protection and to other Federal agencies; 

States and territories, tribal nations, and local governments; foreign governments; and international 

organizations. It is applicable to all FDA headquarters and field organizational components that may be 

required to provide assistance or conduct emergency operations in the context of actual or potential 

incidents. In these cases, FDA may use the Incident Command System (ICS) to facilitate command and 

coordination. 

A.4 PLANNING ASSUMPTIONS 

The FDA EOP is based on the following planning assumptions: 

• Incidents, including large-scale emergencies and major disasters, will require full coordination of 

FDA operations and resources, and may: 

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− Occur at any time with little or no warning in the context of a general or specific threat or 

hazard. 

− Involve one or more FDA organizational component(s) and span a single or multiple districts. 

− Require significant information sharing, resource coordination, and/or assistance across FDA 

organizational components, Federal and SLTT agencies, the private sector, and foreign 

governments. 

− Result in numerous casualties, fatalities, and displaced people; property loss; significant 

damage to the environment; and disruption of economy and normal life-support systems, 

essential public services, and critical infrastructures. 

− Require extremely short-notice FDA response times and prolonged, sustained recovery 

operations and support activities. 

• All FDA emergency-related activities will be initiated and conducted in accordance with the 

principles, concepts, and terminology established within NIMS. 

• Regardless of incident characteristics or requirements, FDA continues to be responsible for 

consumer products under its jurisdiction while coordinating response operations with other 

interagency public health and medical partners. 

• An emergency or disaster that overwhelms the capabilities of State and local governments may 

require FDA and/or other Federal agencies to assist in meeting public health and safety needs. 

FDA assets will supplement the response, as directed or requested, when an incident affects an 

FDA-regulated product or requires the provision of subject matter expertise or use of specific 

medical countermeasures. As such, FDA will participate in an Incident Command or Unified 

Command (UC) system to manage multi-agency emergencies. 

• Contamination of the Nation’s human and animal food or medical products supply may initially 

be indistinguishable from a naturally occurring event. Moreover, depending upon the particular 

agent and associated signs or symptoms, several days or weeks could pass before authorities 

suspect terrorism may be the cause. 

• Response to a chemical, biological, radiological, or nuclear (CBRN) incident suspected of being 

deliberate in origin or a terrorist act requires consideration of special law enforcement and 

homeland security requirements as well as international legal obligations and requirements. 

• The combined expertise and capabilities of government at all levels, industry, and 

nongovernmental organizations (NGOs) will be required to respond to incidents of catastrophic 

proportions. During such periods, FDA will provide emergency support as directed by the 

Commissioner, the Secretary of HHS, and/or the Secretary of Homeland Security through the 

coordinating mechanisms established within the NRF and National Disaster Recovery 

Framework (NDRF). 

• Supporting documentation (e.g., standard operating procedures [SOPs], operations and procedural 

manuals, field guidance) has been developed and made available to designated FDA emergency 

staff to provide detailed instructions during performance of specific functions or incident-related 

actions. 

• As part of its Emergency Support Function (ESF) #8 functions, FDA can provide SLTT agencies 

with activities related to regulated product support. For example, FDA can provide assistance to 

State and local agencies in ensuring the safety of food products at retail food establishments and 

drug and medical products in pharmacies. 

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• To ensure the capability to implement the FDA EOP, each FDA headquarters and field organizational component tasked with emergency roles and responsibilities, as identified in this EOP basic 

plan or any of its annexes, may develop and maintain individual emergency plans and procedures 

that identify the critical and time-sensitive missions, functions, assignments, and processes to be 

performed during all hazards. These documents shall be consistent with this EOP and be available 

to all FDA personnel. 

A.5 ACTIVATION 

While many parts of this EOP may be used routinely to manage FDA’s emergency operations, the full 

plan will be activated when certain events occur such as, but not limited to, the following:2 

• A determination has been made by the Commissioner of Food and Drugs (the Commissioner) or 

other FDA senior official(s) as delegated by the Commissioner that FDA emergency actions are 

warranted to prevent, prepare for, protect against, mitigate, respond to, or recover from a threat or 

hazard. 

• The Secretary of HHS (the Secretary) has directed FDA to provide emergency support to 

maintain the safety, efficacy, and security of drugs, biologics, medical devices, radiation-emitting 

devices, the food supply, or cosmetics. 

• The Secretary has directed FDA to provide emergency support to protect the public health in the 

event of tobacco product adulteration. 

• The Secretary of Homeland Security has raised the National Terrorism Advisory System (NTAS) 

alert level. 

• The President has declared that an emergency or a major disaster exists within an affected State 

or States as defined in the Robert T. Stafford Disaster Relief and Emergency Assistance Act 

(Stafford Act), P.L. 100-707, as amended, and that NRF coordinating mechanisms, in whole or in 

part, have been activated. 

• The President has declared a national emergency exists under the National Emergencies Act, 

50 United States Code (U.S.C.) 1601-1651, in the event that the Nation is threatened by crisis, 

exigency, or emergency circumstances (other than natural disasters, war, or near-war situations). 

• The Secretary of HHS may, under Section 319 of the Public Health Service Act (PHSA), 

determine that (a) a disease or disorder presents a public health emergency; or (b) that a public 

health emergency, including significant outbreaks of infectious disease or bioterrorist attacks, 

otherwise exists. 

A.5.1 Activation of EOP Annexes 

A decision on whether an EOP annex is to be implemented in response to an incident is made by the 

Office of Emergency Management (OEM) Director and senior officials of the Center(s) involved, or in a 

meeting requested by the Commissioner, a Center Director, the Associate Commissioner for Regulatory 

Affairs (ACRA), the Director of OEM, Associate Commissioner for Counterterrorism, or some other top 

official specifically to discuss a particular incident or problem. If an annex(es) is to be activated, the OEM 

Director will notify the involved FDA parties (through electronic mail, if available). 

2 District Directors and Center/Office Directors may activate their individual organizational component’s EOP without 

activation of the FDA EOP. 

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A.6 SUPERSEDENCE 

This FDA EOP (version 3.0) supersedes the FDA EOP (version 2.0) and its annexes, dated March 2014. 

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B. CONCEPT OF OPERATIONS 

The scope of FDA emergency operations is as wide as the array of products the agency regulates. FDA 

actions impact the Nation’s quality of life on a daily basis through its regulation of food, drugs, medical 

devices, radiation-emitting products, biologics, veterinary drugs, and tobacco products. For this reason, 

FDA’s successful and efficient handling of emergencies and disasters is especially important in fulfilling 

its mission to maintain not only the public’s health, but also its trust and confidence. The following 

concept of operations (CONOPS) describes the principal authorities governing agency emergency 

functions and the phases within which FDA conducts incident-related operations.3 

B.1 EMERGENCY AUTHORITIES 

Statutory authorities relevant to FDA emergency preparedness and response are described below under 

the general categories of safety and medical countermeasures. In addition, certain FDA regulations in 

Title 21 of the Code of Federal Regulations (CFR) may be particularly applicable in an emergency. 

• Safety of FDA-regulated products: 

− Under the Federal Food, Drug, and Cosmetic Act of 1938 (FD&C Act), 21 U.S.C. 301 et 

seq., as amended, FDA regulates the safety of, among other things, food, including dietary 

supplements, infant formula, and animal feed; human and animal drugs; medical devices; 

electronic products emitting radiation; and tobacco products. 

− Under PHSA, 42 U.S.C. 262, FDA will only approve a biologics license application upon a 

demonstration that the biological product is safe, pure, and potent. In addition, under PHSA, 

42 U.S.C. 264, FDA may issue and enforce regulations necessary to prevent the spread of 

communicable disease. 

• Medical, including specific authorities realted to medical countermeasures: 

− Under the FD&C Act, FDA generally approves drugs and devices that have been shown to be 

safe and effective. Under PHSA, FDA licenses biological products based upon a 

determination that they are safe, pure, and potent. 

− Section 561 of the FD&C Act (Expanded Access to Unapproved Therapies and Diagnostics) 

allows FDA to permit the treatment of a patient with an investigational medical 

countermeasure under certain circumstances, even though the safety and effectiveness of the 

drug have not been fully established. 

− Section 564 of the FD&C Act, as established by the Project BioShield Act of 2004 

andamended by the Pandemic and All-Hazards Preparedness Act of 2013, the 21st Century 

Cures Act of 2016, and P.L. 115-92, allows FDA to authorize the emergency use of 

unapproved drug(s), device(s), or biological product(s) for certain types of emergencies if 

there is a declaration justifying the need for the product and FDA determines the criteria for 

issuance have been met. 

− Section 564A of the FD&C Act allows FDA to take certain actions to authorize certain uses 

of FDA-approved medical products that otherwise could render the product unapproved or 

misbranded, such as provide Emergency Dispensing orders to allow dispensing without 

individual prescriptions, extensions of expiration dates, and waivers of CGMPs. 

3 For detailed information on the actions performed during specific incidents, refer to the FDA EOP Incident Annexes. 

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B.2 EMERGENCY OPERATIONS PHASES 

The following phases comprise the entire spectrum of FDA emergency operations: Prevention, 

Protection, Mitigation, Response, and Recovery. Although emergency operations may involve each of 

these phases over the course of any multitude of incidents, the nature and severity of an event and the 

FDA organizational component(s) responding will determine the specific order, actions, and responsible 

parties required for each.4 

B.2.1 Prevention, Protection, and Mitigation 

FDA closely integrates the prevention, protection, and mitigation phases. These three phases are mission 

areas under the NPG and defined as follows: 

• Prevention includes those capabilities necessary to avoid, prevent, or stop a threatened or actual 

act of terrorism. It is focused on ensuring we are optimally prepared to prevent an imminent 

attack within the United States. 

• Protection includes capabilities to safeguard the homeland against acts of terrorism and manmade 

or natural disasters. It is focused on actions to protect the citizens, residents, visitors, and critical 

assets, systems, and networks against the greatest risks to our Nation in a manner that allows our 

interests, aspirations, and way of life to thrive. We will create conditions for a safer, more secure, 

and more resilient Nation by enhancing protection through cooperation and collaboration with all 

sectors of society. 

• Mitigation includes those capabilities necessary to reduce loss of life and property by lessening 

the impact of disasters. It is focused on the premise that individuals, the private sector, 

communities, critical infrastructure, and the Nation as a whole are made more resilient when the 

consequences and impacts, the duration, and the financial and human costs to respond and 

recover from adverse incidents are all reduced. 

The “prevention, protection, and mitigation” phase of FDA emergency operations includes those actions 

taken to avoid an incident or intervene to stop an incident from occurring, or to mitigate its effects on 

FDA-regulated products and the community, during periods of increased risk or heightened threat 

conditions.5 It involves immediate steps to protect consumers; ensure the safety and defense of food and 

animal feed, medical products (e.g., drugs, vaccines, blood donations, and diagnostic devices), cosmetics, 

field operations, and toxicological research; and apply intelligence and other information to a range of 

directed countermeasures. Upon preliminary determination of an incident, FDA conducts the following 

preventive/protective/mitigation measures: 

• Conducting scientific vulnerability assessments of different categories of food to determine the 

most serious risks of intentional contamination. 

• Providing preventive training tools to government, industry, and other stakeholders. 

• Increasing surveillance and detection of adverse events, disease outbreaks, natural disasters, and 

other emerging public health concerns. 

• Heightening consumer product protection measures against the adverse effects of naturally 

occurring and manmade hazards. 

4 Refer to Section C, “Organization and Assignment of Responsibilities,” of this EOP for an overview of FDA organizational 

component roles and responsibilities during all hazards. Refer to the FDA EOP Incident Annexes for incident-specific 

Center/Office actions. 

5 Examples of high-risk situations include designated National Special Security Events (NSSEs), developing public health 

emergencies and natural disasters, and NTAS alert levels. 

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• Facilitating the availability of medical countermeasures that prevent, diagnose, or treat diseases 

or conditions caused by CBRN agents, as well as medical products in response to natural 

disasters. 

• Increasing surveillance of FDA-regulated products used to prevent or mitigate adverse health 

effects related to the actual or potential incidents. 

FDA works closely with DHS and other Federal agencies to coordinate the overall national effort to 

enhance the protection of critical infrastructure and key resources of the Nation, including food and 

agriculture defense. DHS serves as the coordinator of the Food and Agriculture Sector with the 

Government Coordination Council (GCC). The sector is a public-private partnership that combines 

expertise from several Federal agencies as well as SLTT officials (representing agriculture, public health, 

and veterinary services) and the private sector (more than 100 trade associations and individual firms). 

B.2.1.1 Surveillance, Detection, and Alert 

Within the context of this plan, increased risk-based “surveillance and detection” is defined as an increase 

in the frequency, quantity, or detail of the ongoing systematic collection, analysis, and interpretation of 

public health data essential to the planning, execution, and evaluation of FDA emergency operations, 

closely integrated with the timely dissemination of these data to those responsible for prevention and 

control. FDA uses accumulated data from a variety of sources (e.g., international, Federal, and SLTT 

public health agencies; consumer complaints; regulatory inspections, investigations, and sampling; 

laboratory testing) for passive and active surveillance of regulated products and other public health 

concerns during day-to-day situations and for targeted preventive actions. The focus of these systems 

is to detect a “signal” to allow for additional information gathering and analysis or to track and trace a 

suspected or confirmed event within the agency’s jurisdiction. They support FDA’s primary mission, 

including identifying and reviewing adverse events and tracking and tracing product problems, and are 

used to facilitate counterterrorism and product safety and security activities as appropriate. 

The Office of Emergency Operations (OEO) is in a constant state of readiness during routine agency 

operations, maintaining 24 hours a day, 7 days a week (24/7) monitoring capability for surveillance and 

detection. OEM/OEO staff members assist with the detection of signals either as the direct point of 

contact (POC) for outside stakeholders or in support of the Centers and Office of Regulatory Affairs 

(ORA) and participate in meetings to identify emerging threats. OEM’s geographic information system 

(GIS) is another tool utilized to analyze health information and FDA activity data for spatially occurring 

patterns on a local, regional, or national level. FDA’s After-Hours Emergency Call Center serves as an 

additional resource during non-duty hours, monitoring complaints and reports of problem products and 

triaging phone calls. Pre-identified topics are assessed by OEM/OEO staff to determine potential public 

health threats. 

In addition, several databases and electronic information exchanges enable responsible FDA organizational components to collect and report out-of-the-ordinary information, monitor potential and ongoing 

situations, and determine whether agency emergency response activities are warranted (Table B-1). 

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Table B-1. Surveillance and Detection Systems Utilized by FDA 

System Description Sponsoring 

Agency FDA POC 

FDA’s Adverse 

Event Reporting 

System (FAERS) 

The FAERS is a computerized information database designed to 

support FDA’s post-marketing safety surveillance program for all 

approved drug and therapeutic biological products. FDA uses FAERS 

to monitor for new adverse events and medication errors that might 

occur with these marketed products. 

FDA CDER 

Biological Product 

Deviation 

Reporting (BDPR) 

System 

The BDPR System reports errors and accidents in manufacturing of 

products, including testing, processing, packing, labeling, or storage, 

or with the holding or distribution of a licensed biological product or a 

blood or a blood component, in which the safety, purity, or potency of 

a distributed product may be affected. Also, it includes deviations in 

manufacturing of human cells, tissues, and cellular and tissue-based 

products that relate to the prevention of communicable disease 

transmission, contamination, or other unexpected events. 

FDA CBER 

BioWatch 

BioWatch is a detection system for the release of biological agents in 

the air through a comprehensive protocol of monitoring and laboratory 

analysis. 

CDC OEM 

CDRH Product 

Availability 

(Shortages) 

Database 

The Shortages Database identifies and monitors supplies of certain 

devices that are or have the potential to be in demand. FDA CDRH 

CFSAN Adverse 

Event Reporting 

System (CAERS) 

The CAERS receives and monitors all post-marketing surveillance 

adverse events reports that directly affect CFSAN. These adverse 

event reports include foods, dietary supplements, cosmetic products, 

and food and color additives. 

FDA CFSAN 

Counterfeit Alert 

Network (CAN) 

The CAN is a coalition of health professional and consumer groups to 

disseminate educational guidance and alert messages about 

counterfeit drug incidents and measures to take to prevent exposure. 

FDA ORA/OCI 

Electronic 

Laboratory 

Exchange Network 

(eLEXNET) 

The eLEXNET is an integrated, web-based information network that 

allows health officials at multiple government agencies engaged in 

food safety activities to coordinate and share laboratory analysis 

findings. It provides the necessary infrastructure for an early warning 

system that identifies potentially hazardous foods and enables health 

officials to assess risks and analyze trends. eLEXNET is the data 

capture and communication system for the Food Emergency 

Response Network (FERN) and is supported by the USDA and DoD. 

FDA ORA/OO 

Emergency 

Operations 

Network – Incident 

Management 

System 

(EON-IMS)6 

The EON-IMS serves as the central hub for exchanging and relaying 

all incident-related information within the agency. Managed by OEM, 

this system integrates multiple data streams from other electronic 

systems (such as the FERN, eLEXNET, and Epidemic Information 

Exchange [Epi-X]) and from FDA laboratories and investigators and 

external agencies, into a coherent fashion during critical decision 

points. The EON-IMS creates a safety net that significantly reduces 

the probability that incidents will prevent FDA from accomplishing its 

objectives and minimizes the impact of these events on normal 

operations. 

FDA OEM 

Epidemic 

Information 

Exchange (Epi-X) 

The Epi-X is a secure, web-based communications network that 

provides public health officials with up-to-the-minute information, 

reports, alerts, and discussions about terrorist events, toxic exposures, 

disease outbreaks, and other public health events. It provides a 

flexible search interface for researching outbreaks and unusual health 

events and for tracking information for outbreak investigations and 

response. 

CDC OEM 

6 For more information on EON-IMS, refer to Section E, “Communications and Information Management,” in this EOP. 

July 2019 10 FDA EOP Section B 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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System Description Sponsoring 

Agency FDA POC 

Foodborne and 

Diarrheal Diseases 

Outbreak 

Summaries 

FDA receives the weekly summaries on outbreaks from the CDC 

Foodborne and Diarrheal Diseases Branch to document ongoing 

investigations, current outbreaks, State(s) where the outbreak is 

occurring, and the serotype of the causal microorganism. 

CDC CFSAN 

Foodborne 

Diseases Active 

Surveillance 

Network (FoodNet) 

The FoodNet is a collaborative project of the CDC, 10 State Emerging 

Infections Program sites, the FSIS of the USDA, and FDA. It consists 

of active surveillance for foodborne diseases and related 

epidemiologic studies designed to help public health officials better 

understand the epidemiology of foodborne diseases in the United 

States. 

CDC, USDA, 

FDA, State 

Health 

Departments 

CFSAN 

Food Emergency 

Response Network 

(FERN) 

FERN is a network of Federal and State laboratories that analyze food 

samples in the event of a biological, chemical, nuclear, or radiological 

incident or large-scale contamination. FERN Federal partners include 

FDA, USDA, CDC, DHS/U.S. Customs and Border Protection (CBP), 

and the EPA. 

FDA and 

USDA ORA 

Health Alert 

Network (HAN) 

The HAN provides rapid and timely access to emergent health information and evidence-based practices and procedures for effective 

public health preparedness, response, and service on a 24/7 basis. It 

includes all 50 States, three large city health departments, three 

county health departments, eight territories, the District of Columbia, 

and multiple health organizations and major hospital networks. 

CDC OEM 

Homeland Security 

Information 

Network (HSIN) 

HSIN is a comprehensive, nationally secure, and trusted web-based 

platform able to facilitate Sensitive But Unclassified information 

sharing and collaboration between Federal, State, local, tribal, private 

sector, and international partners. It interfaces with existing 

information sharing networks to support the diverse Communities of 

Interest engaged in preventing, protecting from, responding to, and 

recovering from all threats, hazards, and incidents. HSIN provides a 

collaborative environment that interoperates with mission area 

systems developed and managed by Federal, State, and local 

partners. 

DHS Centers, ORA, 

OEM 

Integrated 

Consortium of 

Laboratory 

Networks (ICLN) 

The ICLN was established to coordinate the Nation’s laboratory 

networks to improve the response to acts of terrorism and other 

events requiring an integrated laboratory response. One outcome of 

the ICLN is the creation of an Integrated Response Architecture that 

provides, among other things, event notifications and updates, 

preparedness alerts, and situational reports through a secure web 

portal. 

DHS ORA 

Laboratory 

Response Network 

(LRN) 

The LRN is a network of over 150 Federal, State, and local; military; 

food testing; environmental; veterinary; and international laboratories 

that are fully equipped to respond quickly to acts of chemical or 

biological terrorism, emerging infectious diseases, and other public 

health threats and emergencies. 

CDC ORA and 

CFSAN 

Manufacturer and 

User Facility 

Device Experience 

System (MAUDE) 

MAUDE data represents reports of adverse events involving medical 

devices. The data consists of voluntary reports, user facility reports, 

distributor reports, and manufacturer reports. The online search allows 

you to search CDRH database information on medical devices that 

may have malfunctioned or caused a death or serious injury. 

FDA CDRH 

MedWatch 

MedWatch, the FDA Safety Information and Adverse Event Reporting 

Program, provides important and timely clinical information about 

safety issues involving medical products, including prescription and 

over-the-counter drugs, biologics, medical and radiation-emitting 

devices, and special nutritional products. It allows healthcare 

professionals and consumers to report serious problems that they 

suspect are associated with the drugs and medical devices that they 

prescribe, dispense, or use. 

FDA CDER 

National 

Biosurveillance 

Integration Center 

(NBIC) 

The NBIC integrates, analyzes, and distributes key information about 

health and disease events to help ensure the Nation's responses are 

well-informed, save lives, and minimize economic impact. 

DHS OEM/OEO 

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System Description Sponsoring 

Agency FDA POC 

National Consumer 

Complaint System 

FDA uses the National Consumer Complaint System to obtain 

complaint information from consumers about FDA-regulated products. 

Consumer Complaint Coordinators at FDA headquarters and District 

offices throughout the United States review complaints to identify 

product/problem trends and potential emerging public health issues. 

FDA OEM/OEO 

New Drug 

Application (NDA) 

Field Alert Program 

The NDA Field Alert Program is used to quickly identify drug products 

that pose potential safety threats. All drug manufacturers with 

approved NDAs and Abbreviated New Drug Applications (ANDAs) are 

required to submit Field Alert Reports to FDA if they find any 

significant problems with an approved drug. 

FDA CDER, ORA 

The Pet Event 

Tracking Network 

(PETNet) 

PetNet is a collaborative project between FDA and Federal and State 

government partners to provide a secure reporting/notification system, 

accessible by State and Federal government officials, which will allow 

for the exchange of information early in a disease outbreak that is 

associated with the consumption of adulterated pet food. 

FDA CVM 

Potential Tobacco 

Product Violations 

Reporting (PTVR) 

CTP uses PTVR to obtain complaint information from consumers and 

industry regarding potential tobacco-related violations. Submissions 

are reviewed by FDA’s CTP, Office of Compliance and Enforcement. 

FDA CTP 

PulseNet 

PulseNet is a national network of laboratories that performs DNA 

“fingerprinting” on foodborne bacteria. The network permits rapid 

comparison of patterns through an electronic database, helping to 

better detect the source of bacteria in foods. PulseNet helps public 

health authorities recognize when cases of foodborne illness are 

occurring at the same time in geographically separate locales. 

CDC CFSAN 

Recall Enterprise 

System (RES) 

RES is used by Center and District Office recall personnel to submit, 

update, classify, publicize, and terminate recalls. This online, 

searchable database allows users to enter real-time data on a recall 

event as it becomes available and track information and generate and 

disseminate reports of recall activities. 

FDA ORA 

Safety Reporting 

Portal (alsoSRP or 

Reportable Food 

Registry [RFR]) 

RFR is an electronic portal for an owner, operator, or agent in charge 

of a domestic or foreign facility engaged in manufacturing, processing, 

packing, or holding food for consumption in the United States to file a 

report about a product that is suspected will cause serious adverse 

health consequences or death to humans or animals. Initial RFR 

reports are sent to EON-IMS. 

FDA OEM/OEO, 

CFSAN, CTP 

Vaccine Adverse 

Event Reporting 

System (VAERS) 

The VAERS is a national vaccine safety surveillance program to 

detect possible signals of adverse events associated with vaccines. 

VAERS collects and analyzes information from reports of adverse 

events (possible side effects) that occur after the administration of 

U.S.-licensed vaccines. 

FDA, CDC CBER 

Veterinary Adverse 

Drug Experience 

(ADE) Reporting 

System 

The ADE Reporting System provides early warning to FDA for adverse 

effects not detected during pre-market testing of FDA-approved animal 

drugs. Reports of adverse clinical events from veterinarians and 

animal owners are entered into a computerized database for use by 

scientists to make decisions about product safety, which may include 

changes to the label or other regulatory action. 

FDA CVM 

Veterinary 

Laboratory 

Response Network 

(Vet-LRN) 

The Vet-LRN enhances collaboration between Federal and State 

agencies and veterinary diagnostic laboratories and provides 

additional laboratory capacity and expertise. The network contributes 

to the protection of the human food supply as laboratory findings of 

contamination of animals feed or drugs could signal potential 

contamination to human food. 

FDA CVM 

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B.2.1.2 Consumer Product Protection 

Prior to confirmation of an incident, FDA may employ a number of activities designed to deter intentional 

and unintentional acts against FDA-regulated products and protect consumers from potential public health 

hazards.7 Through heightened and targeted preventive measures at various points in the processing and 

distribution chains, and by exercising the systems and networks to be used during emergency response 

operations, FDA can protect the safety and security of regulated products and protect consumers from 

harm. Activities in support of this effort, conducted in cooperation and collaboration with applicable FDA 

organizational components, Federal and SLTT partners, industry, academia, foreign governments, and 

international organizations include, but are not limited to, the following: 

• Implementing risk communications with government and industry partners. 

• Prioritizing examination of food commodities based on potential for contamination (as 

determined by vulnerability assessments previously undertaken by FDA). 

• Identifying entities handling specific FDA-regulated consumer products. 

• Conducting targeted inspections and investigations and collecting samples.8 

• Readying laboratory response and other scientific capabilities to analyze/test for chemical and 

microbiological agents. 

• Tracing and intercepting specific imported and domestic products. 

• Requesting the recall of drugs, biologics, medical devices, radiation-emitting devices, foods, or 

cosmetics that predictably could cause serious health problems or death (“Class I”) or that might 

cause a temporary health problem or pose only a slight threat of a serious nature (“Class II”).

9 

• Requesting the recall of tobacco products containing a manufacturing or other defect not 

ordinarily contained in tobacco products on the market that would cause serious adverse health 

consequences or death. 

• Providing additional guidance to food producers, processors, transporters, importers, retailers, 

food service establishments, and cosmetic processors on security measures to take to minimize 

the risk of tampering or other intentional contamination/adulteration and protect against the 

damaging effects of diseases and natural disasters. 

• Working, as appropriate, with Federal and SLTT government agencies and international partners. 

• Issuing warnings, alerts, advisories, and other advice to consumers, industry, foreign 

counterparts, and other international partners regarding food, drug, medical device, biological 

product, and tobacco product safety and animal health and soliciting feedback. 

The FDA system for responding to the increased risk of an emergency or disaster impacting FDAregulated products provides a significant increase in coverage, awareness, and preparedness through 

targeted preventive measures implemented by both headquarters and field offices and in coordination 

with other intergovernmental public health and medical partners. Collectively, these additional consumer 

7 Incident confirmation includes conclusive laboratory analysis, field investigations, epidemiological data, or reliable 

information from other government agencies that triggers emergency response operations. 

8 Detailed FDA investigation/inspection procedures can be found at www.fda.gov/ora/inspect_ref. Compliance references are 

located at www.fda.gov/ora/compliance_ref. 9 Recalls of products that are unlikely to cause any adverse health reaction, but that violate FDA labeling or manufacturing laws 

(“Class III”), will not by themselves activate this EOP. 

July 2019 13 FDA EOP Section B 
 

 

 

 

 

 

 

 

 

 

 

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protection activities provide for more protected supply and distribution chains and a better prepared 

national network capable of responding to an identified threat or hazard.10 

B.2.1.3 Medical Countermeasures 

FDA plays a vital and multifaceted role in securing the homeland through providing broad regulatory 

oversight, monitoring infrastructure, and responding to CBRN threats, whether intentional or naturally 

occurring with timely and appropriate medical countermeasures. FDA fosters the development of safe and 

effective medical countermeasures to mitigate the effects of such threats by actively engaging industry, 

academia, and working with our government partners. While all the FDA Centers and Offices have a role 

in the agency’s counterterrorism mission, the three product Centers (i.e., Center for Biologics Evaluation 

and Research [CBER], Center for Drug Evaluation and Research [CDER], and Center for Devices and 

Radiological Health [CDRH]), as well as ORA and various organizations within the Office of the 

Commissioner (OC), play critical roles in ensuring the safety, effectiveness, quality, and availability of 

medical countermeasures. The Office of Counterterrorism and Emerging Threats (OCET) provides 

strategic leadership and coordination for agency-wide counterterrorism and emerging threats activities. 

In situations in which potentially useful medical countermeasures are available but not yet FDAapproved, licensed, or cleared for the particular use contemplated, OCET, in coordination with medical 

product Centers, can employ certain regulatory mechanisms to allow the use of these products during an 

emergency, as part of an expanded access Investigational New Drug (IND) application or Investigational 

Device Exemption (IDE), or under an EUA. In addition, there are other authorities to facilitate use of 

FDA-approved, licensed, and cleared medical countermeasures that may need to be used in ways that may 

render them in violation of the FD&C Act. 

B.2.1.4 Increased Surveillance of FDA-Regulated Medical Products 

Depending on the nature of an incident, FDA may increase its surveillance of FDA-regulated medical 

products used to prevent or mitigate adverse health effects related to the actual or potential incident. Such 

increased surveillance could be a result of conditions such as the use of a product by a larger or different 

population, the use of products for other than their labeled indication, or concerns about the potential 

development of resistance to a product such as antivirals or antibiotics. 

B.2.2 Response 

Under the NPG, the response mission area includes those capabilities necessary to save lives, protect 

property and the environment, and meet basic human needs after an incident has occurred. 

The “response” phase of FDA emergency operations includes those immediate and sustained actions to 

ensure the safety, efficacy, and availability of FDA-regulated products and to protect the public’s health 

throughout the duration of an incident. This phase generally involves the following four elements 

1. Gain and Maintain Situational Awareness 

− Alert and Notification. Receiving information or intelligence confirming the development or 

occurrence of an incident and issuing notifications to agency stakeholders and partners. 

− Assessment and Monitoring. Performing initial and ongoing situation analysis, monitoring, 

and reporting. 

10 For more information on FDA protection measures as part of the Nation’s larger critical infrastructure protection efforts, refer 

to the National Infrastructure Protection Plan’s sector-specific plan for food and agriculture located at 

https://www.dhs.gov/sites/default/files/publications/nipp-ssp-food-ag-2015-508.pdf. 

July 2019 14 FDA EOP Section B 
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Gain and Maintain 

S1tuational Awareness 

Activate and Deploy 

Resources and Capab1 ilt1es 

Coordinate Response 

Actions 

' 

Demob1ilze : 

--------------------------- ." 

FDA Emergency Operations Plan 

2. Activation and Deployment of Resources and Capabilities. Directing and mobilizing FDA 

headquarters and field resources and capabilities, including Emergency Operation Center (EOC) 

operational-level changes and implementation of the ICS in the field and/or headquarters. 

3. Coordination of Response Actions. Conducting rapid and synchronized emergency response 

activities at headquarters and field locations. 

4. Demobilization. Standing down FDA emergency response resources (i.e., personnel, facilities, 

equipment, and other materials support) and returning them to their original location and status. 

Figure B-1. FDA Emergency Response Elements 

B.2.2.1 Gain and Maintain Situational Awareness 

B.2.2.1.1 Alert and Notification 

FDA may be alerted to a threat, hazard, or other significant event through a variety of means, including 

the surveillance systems discussed in Table B-1 and/or directly from external Federal agencies (e.g., 

the HHS Secretary’s Operations Center [SOC], Centers for Disease Control and Prevention [CDC], 

U.S. Department of Agriculture [USDA], DHS, and/or the Federal Bureau of Investigation [FBI]); 

international and SLTT public health agencies; industry; consumers; news media; and internal FDA 

organizational components. Any or all agency organizational components may receive word of a problem 

depending on the event’s scope and magnitude. Recipients of such information must handle it properly to 

ensure FDA is able to track and evaluate the situation. Failure to address a report in a timely fashion may 

delay emergency response and potentially exacerbate the incident. 

Depending on the scale of the incident, headquarters coordination of an incident will be managed by OEO 

Emergency Coordinators or through activation of an IMG (in either case, coordination may be conducted 

from FDA’s Emergency Operations Center (EOC) or other locations as circumstances may require. 

The EOC is staffed by OEM/OEO staff members who work with the Centers and Offices to review 

information that may indicate potential or actual incidents, as well as quickly detect similarities in 

seemingly unrelated reports, and ensure that incident reports are treated in a consistent manner across 

FDA. The EOC also provides or acquires from a variety of sources the resources and capabilities 

necessary for FDA headquarters-level and interagency coordination that may be necessary when 

emergencies or disasters cross geographic and/or jurisdictional boundaries. 

All reports of large-scale natural and manmade emergencies and significant alleged or actual adverse 

effects associated with FDA-regulated products require prompt reporting to OEM/OEO. Upon receipt of 

an alert or warning, the OEM/OEO staff will notify internal and external partners via a predeveloped, 

prioritized notification list specific to each particular emergency. 

July 2019 15 FDA EOP Section B 
 

 

 

 

 

 

 

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Certain types of incidents typically, but not necessarily always, should be reported to OEM/OEO as 

potential emergencies. These include incidents that: 

• Involve life-threatening adverse events or deaths possibly related to use of drugs, biologics, 

medical devices, radiation-emitting devices, the food supply, or cosmetics. 

• Involve life-threatening adverse events or deaths possibly related to use of an adulterated tobacco 

product containing manufacturing or other defects not ordinarily contained in tobacco products on 

the market. 

• Involve a contaminant or pathogen associated with FDA-regulated products. 

• Involve product distribution and/or injury, illness, or death across multiple States or geographic 

regions. 

• Involve a considerable number of producers or manufacturers or a firm of considerable size and 

extensive product distribution. 

• Arise in circumstances in which it is difficult to quickly identify the source of the problem. 

• Involve multiple FDA organizational components. 

• Involve natural and manmade disasters. 

• Involve terrorist and/or criminal activities with potential to impact FDA staff, facilities, or 

regulated products. 

B.2.2.1.2 Assessment and Monitoring 

Once FDA officials receive word of an impending, ongoing, or resurgent emergency situation, they must 

gather enough information to determine the validity and extent of the threat or hazard and the agency’s 

roles and responsibilities within the situation. FDA headquarters and field organizational components 

work collaboratively with one another and with other government agencies and industry to rapidly 

evaluate the situation and make these determinations. 

OEM/OEO is responsible for coordinating with applicable FDA headquarters, field units and external 

partners to formulate an initial incident assessment.11 Results of this assessment may include a variety of 

situation reports (SitReps) and status reports, healthcare records, research and analyses, maps, and 

surveillance information. This critical information is passed through established reporting channels to 

allow agency decision-makers to develop situational awareness and establish a “common operating 

picture.” Using OEM’s GIS capabilities, an online or paper map-based common operating picture may be 

used to build and maintain situational awareness. The map-based common operating picture can visually 

depict response features with geographical reference in addition to the text information. Based on initial 

analysis of the threat or hazard, FDA will take steps to monitor the situation, identify and prioritize 

requirements, and/or activate available resources and capabilities. Figure B-2 depicts the methodology 

agency officials use to assess an incident and determine whether additional response activities are 

warranted. 

11 At the time of the initial notification, an FDA organizational component or another government agency may already have 

completed a preliminary assessment of the emergency. 

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Monitoring 

• Continue monitoring 

the s1tuat1on 

• Provide updates, as 

necessary 

Incident Occurs 

Alert and Notification 

• Comm1ss1oner 

• Office of Security and Emergency Management 

• Office of Emergency ManagemenUOfflce of Emergency Operations 

• Center/Office staff, as appropriate 

Initial Assessment 

NO 

Does the incident. .. 

• Involve or implicate an FDA-regulated product? 

• Raise security concerns? 

• Have the potential for escalation in intensity? 

• Have the potential to impact FDA-regulated product? 

• Meet any other cond itions that may apply? 

Activation and Deployment of 

Resources and Capabilities 

• Implement emergency plans 

• Issue, review, and update m1ss1on 

assignments FDA002b 

FDA Emergency Operations Plan 

Figure B-2. FDA Emergency Response Decision Tree 

Determining Regulatory Authority. It is important to note that a reported incident may or may not be 

subject to FDA authority. Therefore, one of the first discussions to take place will include a determination 

of whether FDA has regulatory authority. Some of the criteria potentially used in the assessment include: 

• Whether an FDA-regulated product is implicated as the cause of the incident. 

• Whether it is confirmed that FDA-regulated products have been or may be affected. 

• Whether medical countermeasures are expected to be used in response. 

• Whether interstate commerce of FDA-regulated products, as defined under the various statutes 

FDA enforces, is involved. 

• Whether Federal or SLTT agencies and/or foreign governments have formally requested FDA 

assistance. 

Once FDA determines that it has regulatory authority, it may manage the incident internally or function in 

a supporting role.12 Although the agency may make an initial determination regarding authority and 

jurisdiction, it may continue to review and reconsider regulatory authority throughout an incident as it 

evolves, expands, or contracts. 

B.2.2.2 Activation and Deployment of Resources and Capabilities 

As the agency’s central coordination point for emergencies, the FDA EOC operating status generally falls 

into one of three levels, depending on the severity or potential consequences of an incident or perceived 

threat (Table B-2). Investigation or confirmation of an incident with potential or confirmed public health 

impact may require activating a change in the EOC operational level from a readiness state of Operational 

Level 3 to Operational Level 2 or 1, depending on the scope of the incident. Center and District Office 

Situation Rooms, Command Centers, and Emergency Response Coordination Centers may follow the 

EOC operating levels or activate according to their individual emergency plans and procedures as 

appropriate. 

12 Refer to Appendix A and Appendix B of this EOP for detailed information on how FDA supports other Federal agencies 

under the NRF. 

July 2019 17 FDA EOP Section B 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

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Table B-2. FDA Incident Levels and EOC Operation Levels 

Operational

Level Operating Status Criteria Examples 

3 

 Routine awareness and 

response operations 

 Normal staffing 

 Regular work hours 

 Readiness state 

Incident(s) involving FDA-regulated 

product(s) that, from a response and 

coordination viewpoint, are limited in 

complexity and scope such that the 

resources needed for response and/or 

coordination do not significantly impact 

normal operations for response/ 

coordination. OEM and OEM/OEO 

coordinate with ORA and Center 

emergency coordinators. Generally, FDA’s 

response and coordination actions are 

sufficient to respond effectively to the 

incident with no or limited internal and/or 

external coordination necessary. 

 Single-person illness, injury, or 

consumer complaint with no or 

very few similar complaints in 

FDA systems 

 Foodborne illness reports 

associated or implicated with 

FDA-regulated products 

 Planning for NSSEs and other 

special events 

2 

 Increased response 

operations 

 Augmentation of EOC 

staffing may be 

necessary 

 Extended work hours 

as needed 

 Center Situation Room 

activation may be 

necessary 

 Establishment of an 

Incident Management 

Group (IMG) may be 

necessary (EOC serves 

as resource to IMG) 

Incident(s) involving FDA-regulated 

products(s) that, from a response and 

coordination viewpoint, are of moderate 

complexity and scope such that resources 

needed for an effective response and/or 

coordination are beyond those ordinarily 

provided during the routine workday and/or 

beyond average staffing levels. The 

incident may require periodic or ongoing 

coordination with other external entities, in 

which case FDA may or may not be the 

“lead” responding agency for the incident. If 

additional staff and resources are not 

provided, response and coordination efforts 

would be somewhat adversely impacted, 

most likely in terms of response timeliness. 

 CDC report of microbial 

contamination in pharmacycompounded drugs 

 Ongoing foodborne illness 

outbreak involving one or more 

States (e.g., Salmonella 

Montevideo outbreak in 2009-

2010 and Salmonella Enteriditis 

outbreak in 2010) 

 H1N1 response in 2009 

 NSSEs 

 National-level or full-scale agency 

exercises 

1 

 Escalated response 

operations 

 Additional personnel 

(support and subject 

matter experts [SMEs]) 

 Extended work hours 

likely, 24-hour 

operations possible 

(8- to 12-hour shifts) 

 Center Situation Room 

Incident(s) involving FDA-regulated 

product(s) that, from a response and 

coordination viewpoint, are of substantial 

complexity and scope such that the 

resources needed for an effective response 

and/or coordination exceed the Level 2 

capability. Staffing levels, hours, and 

operations will likely be substantial to mount 

an effective response (to prevent or 

mitigate public health impact). Incidents 

may require significant coordination with 

 Major natural disaster involving 

multiple States 

 Ongoing foodborne illness 

outbreak or food contamination 

involving multiple States and 

increased complexity in product 

tracing involving multiple 

agencies 

 Unknown contaminated drug 

product with serious adverse 

provides EOC daily 

SitReps 

external entities to optimize response. FDA 

may be the “lead” responding agency 

and/or may have a substantial support role 

to provide to another “lead” agency. Both 

field and headquarters response operations 

and/or coordination activities may require 

the establishment of formal organizational 

restructuring (e.g., ICS) to respond 

optimally. 

event 

 Contaminated human food, pet 

food, or animal feed 

 Terrorist event 

Depending on the anticipated or actual size and complexity of an incident, activation of FDA emergency 

management resources may be required. The EOC, staffed by OEM and OEM/OEO (typically 

Operational Level 3), coordinates with ORA’s headquarters and field components and the appropriate 

Center(s) in the review and analysis of information about threats and hazards and assists in the early 

recognition of emergencies, outbreaks, natural disasters, and terrorism or other criminal acts that may 

affect an FDA-regulated industry or product. This agency-wide coordination involves information collection and distribution, triaging complaints and alerts, issuing mission assignments (MAs) to organizational 

components, identifying and tracking needed resources, and communicating with external partners as they 

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request technical and material support. Additionally, the FDA EOC serves as the central link for coordination between FDA components and the HHS SOC, the CDC Director’s EOC, USDA’s EOC and/or 

Food Safety and Inspection Service (FSIS) Situation Room, and other Federal departments/agencies as 

appropriate. 

B.2.2.2.1 Authority to Change Operational Levels 

The authority to change the operational level of FDA’s EOC resides with the OEM Director, OEM/OEO 

Director, or his/her designee. The OEM or OEM/OEO Director will coordinate changes in operational 

levels with Office of Operations (OO)/Office of Security and Emergency Management (OSEM) 

leadership as needed. The Commissioner or the Secretary or designee also may request a change in the 

operational level of the FDA EOC. Other agency emergency coordination units, such as Centers, shall 

activate their Situation Rooms at the discretion of senior management, such as the Center Director. 

District offices will establish Incident Management Teams (IMTs) at the discretion of the District 

Director (DD) or Program Director (PD). FDA’s EOC (OEM/OEO) shall be made aware when a Situation 

Room or IMT is activated in response to an incident. An increase in the EOC operational level may lead 

to the establishment of an Incident Management Group (IMG) to bring together additional resources and 

expertise to assume overall coordination for the response. For FDA field response, see Section B.2.2.3.2. 

B.2.2.2.2 Conditions for Operational Level Change 

Any of the following conditions could affect the operational levels of the EOC or activation of the FDA 

IMG: 

• FDA has received credible intelligence or other confirmed information that an FDA-regulated 

product is the specific target of terrorism or other serious criminal activity. 

• An incident involves a single or multiple FDA-regulated product(s) covering a large geographic 

or population area (more than one State) and requires the coordination of multiple agency 

organizational components. 

• Two or more significant events have occurred at the same time. 

• FDA-regulated products or facilities have been impacted by a natural or manmade disaster. 

• A natural or manmade incident has triggered activation of the NRF, in whole or in part, and State 

or Federal agencies have formally requested assistance from FDA. 

• Deliberate or accidental contamination of the human or animal food, medical products, or tobacco 

products supply has caused widespread illness, injury, or death to consumers. 

• A widespread epidemic or pandemic disease outbreak or other public health emergency for which 

FDA has a designated support responsibility has occurred or is highly probable. 

• DHS has raised the NTAS level to Elevated (“Warns of credible terrorist threat against the 

United States”) or to Imminent (“Warns of credible, specific, and impending terrorist threat 

against the United States”). 

The FDA EOC will notify appropriate agency organizational components, the HHS SOC, and other key 

Federal partners when the EOC operational level has been changed or an IMG has been activated in 

response to an emergency.13 This activation announcement may include a status report explaining the 

rationale for the decision to change the EOC operational level or activate an IMG, a description of 

13 For detailed information on emergency alert and notification procedures, refer to Section E, “Communications and Information 

Management,” of this EOP. 

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operating hours and staffing levels, and situation reporting requirements. After activation procedures 

commence, FDA may request additional resources and capabilities to augment emergency operations. 

This includes prioritizing and clearly communicating specific incident requirements to mobilize and 

deploy emergency response staff to both internal and external locations. Requests for staffing will be 

made in writing by the OEM Director, OEM/OEO Director, or someone higher in the OC to Center and 

Office lead emergency coordinators or other senior officials within the organization. Representatives from 

specific headquarters Centers and Offices may be directed to relocate to the FDA EOC, other designated 

FDA locations, or other Federal departments or agencies. Interagency partners may also send representatives to the FDA EOC or other agency organizational components to perform liaison roles under existing 

memorandums of understanding (MOUs).14 In addition, FDA field organizations, such as, District offices, 

branches, and resident posts may send personnel and specialized equipment to the FDA EOC, incident 

site(s), laboratories, or other designated locations to provide subject matter expertise and advice, conduct 

investigations and inspections, collect and analyze samples, and/or detain or destroy contaminated 

product(s).15 

EOC Operations During Voluntary Isolation. The physical staffing of the IMG may take place within the 

location of the EOC or another designated location if needed. However, various conditions associated 

with a pandemic (i.e., quarantine, social distancing practices, and the need for staff to care for seriously ill 

family/friends), natural disaster, or other event impacting EOC members’ ability to physically staff the 

EOC may make it necessary at times for IMG or EOC assigned staff personnel to carry out their duties 

from a remote location, such as their residence. The authority to operate the FDA EOC under “virtual” 

conditions resides with the OEM Director, OEM/OEO Director, or his/her designee. 

B.2.2.3 Coordination of Response Actions 

FDA personnel must perform a number of tasks and functions when responding to an incident. Some of 

these basic tasks may include performing initial and ongoing planning, managing and performing MAs, 

coordinating team response operations and resources, performing research and decision-making, and 

documenting and reporting information. Although FDA personnel accomplish most of these basic tasks 

over the course of the incident, their order of execution, the exact activities performed, and the individual 

or organization responsible will vary depending on the type and severity of the threat or hazard. Each 

involved FDA organizational component will be responsible for performing certain emergency actions 

based on its assigned mission and functions.16 

FDA organizes emergency response operations in accordance with the concepts, principles, and terminology of the ICS, as defined within NIMS.17 Incident Command and subordinate Planning, Operations, 

Logistics, and Finance/Administration functions lay the foundation for the agency’s implementation of 

the ICS during all-hazards response, at headquarters and field levels, and across geographic divides. The 

inherent design of this system enables rapid, scalable, and flexible agency-wide emergency management 

activities. 

This section describes each of the components of a coordinated FDA emergency response. The agency’s 

response strategy, while containing certain core activities, must be tailored to the specific requirements of 

each incident. (Refer to the Incident Annexes of this EOP for detailed information on FDA functions, 

activities, and organizational constructs for individual hazards.) 

14 For more information on MOUs, refer to the FDA EOP Appendix I. 15 Refer to Section D, “Direction, Control, and Coordination,” of this EOP for more information on agency emergency position 

assignments. 

16 Refer to Section C, “Organization and Assignment of Responsibilities,” of this EOP for more information on individual 

Center/Office roles and responsibilities. 

17 For more information on the ICS, refer to www.training.fema.gov/EMIWeb/IS/ICSResource/index.htm. 

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B.2.2.3.1 Initial and Ongoing Response Planning 

FDA conducts planning to organize its response structure, identify objectives and performance metrics, 

and coordinate the delivery of resource support. Planning is ongoing throughout the lifecycle of any 

incident and is adjusted as necessary to meet changing demands. It involves a blend of prescribed actions 

drawn from existing FDA emergency plans and procedural documents (e.g., hazard-specific incident 

annexes, SOPs, operations manuals, field guides) and real-time determination of the necessary course(s) 

of action. An agency Incident Action Plan (IAP) may be developed based on these actions to provide 

operational and tactical direction to FDA emergency personnel when responding. 

The IAP is generally crafted by holding regular planning meetings throughout the incident, both in-person 

and via conference calls, with responsible headquarters and field units. Planning meetings seek to 

accomplish the following goals: 

• Gathering, recording, analyzing, and distributing incident information in a manner that will 

facilitate: (1) increased situational awareness of the magnitude, complexity, and potential impact 

of the incident, emergency, or crisis; and (2) the ability to determine the resources required to 

resolve the situation. 

• Formulating and prioritizing measurable incident objectives and identifying an appropriate 

response strategy that conforms to the legal obligations and management objectives of all FDA 

organizational components and/or external agencies involved. 

• Determining the tactical direction, reporting mechanisms, timeframes, and specific resource 

requirements (i.e., personnel, specialized equipment, facilities, training and expert knowledge, 

and funding) for implementing selected strategies during the response period. 

Through these planning meetings, FDA can coordinate the execution and evaluation of emergency 

activities, promote and maintain situational awareness (a “common operating picture”), track the progress 

of ongoing initiatives, and modify plans and procedures based on new and emerging information. For 

incidents involving both a headquarters (IMG) and field (IMT) response, IAPs will generally be 

developed by field units, while an Incident Coordination Plan (ICP) may be developed by the IMG that 

outlines incident objectives from a headquarters perspective (e.g., support of field operations). 

OEM/OEO can establish an Intelligence Unit (within the IMG Planning Section) to provide staff support 

if necessary. This unit can provide: 1) coordination of information collection and initial response 

activities of Centers, Offices, and Districts; 2) collection and assessment of surveillance data; 3) initial 

development of forward planning; and 4) advice to the OEM Director (refer to Section D.2.2.2.2, 

“Intelligence Unit”). 

B.2.2.3.2 FDA Field Response 

For the majority of incidents involving FDA-regulated products, one or more FDA field offices may be 

involved in the response. The Districts in which the event is occurring (i.e., the physical location where 

people have been affected) will obtain necessary information for FDA to confirm the health hazard. In 

addition, the field offices will determine, plan, and conduct tasks and assignments over the course of the 

response. 

Incident Management Team. A decision can be made to respond by implementing ICS at the field level, 

which involves the activation of one or more IMTs. An IMT utilizes an incident command structure made 

up of the Command, General Staff members, and appropriate functional units. Criteria for activating an 

IMT will be based on the conditions described in Section A.3, “Scope and Applicability.” The authority to 

mobilize an IMT resides with ORA senior field officials, in consultation with senior ORA HQ officials. 

Ideally, IMT activation should be coordinated with OEM or with the IMG if activated, but, at a minimum, 

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these organizations should be notified whenever an IMT is being activated. An IMT may also be 

mobilized at the request of OEM or an IMG. 

The IMT will be responsible for tactical operations (i.e., perform investigations/inspections, collect 

samples, and/or detain or destroy contaminated product) in accordance with the IAP it develops. In 

addition, as the IMT conducts its follow-up efforts, field offices will communicate investigational/ 

inspectional findings of other potentially affected establishments with the firms’ home Districts/Programs 

and FDA headquarters emergency response entities described in the following section. Every time an 

IMT is activated, a Program Executive Group (PEG) will be activated as well to provide program-specific 

overarching strategy and policy guidance at the district/geographic level (see Section D.1, “Field Incident 

Command”.) 

The IMT is led by a designated Incident Commander (IC) (see Section D.1, “Field Incident Command,” 

for organizational elements). The field IC reports directly to the PEG, or FDA Area Command, if 

activated, and provides situational awareness to FDA’s OEM/OEO or an IMG (see Section B.2.2.3.3, 

“FDA Headquarters Response,” for IMG description). The IC coordinates activities with the IMG (when 

activated). Communications are conducted through teleconference calls, emails, and/or SitReps. The IMT 

is responsible for managing the District’s/Program’s emergency response effort, coordinating actions and 

resources needed to follow up on the incident, and channeling all necessary communications to/from 

deployed field elements. Depending upon the nature and severity of the incident, additional field IMTs 

may be established to support geographically distant or functionally different emergency response 

operations. 

Generally, the field IMT’s location could be set up at any of the FDA field offices near the site of investigational or inspection activities because of the accessibility to records and the availability of dedicated 

communications/information systems equipment. However, if the incident has destroyed or otherwise 

negatively impacted these offices, consideration may be given to relocating the Incident Command Post 

(ICP) to an alternate facility (such as a predesignated District Office continuity of operations (COOP) site 

or other FDA District Offices). A notification for reallocation of field staff between or among District 

Offices shall be directed to ORA Assistant Commissioners (ACOs) in coordination with the Associate 

Commissioner for Regulatory Affairs (ACRA). As circumstances warrant, an IMT could be located at a 

location other than an established FDA Office, such as collocation with an HHS Incident Response 

Coordination Team (IRCT), FEMA Joint Field Office (JFO), hotel, or a facility near an establishment 

being inspected, as appropriate. 

B.2.2.3.3 FDA Headquarters Response 

Depending on the nature and complexity of FDA’s response to an incident, an intra-agency approach may 

be used to coordinate resources and incident-related information and to support incident management and 

agency policies. Depending on the scale of the incident, headquarters coordination will be managed by 

OEO Emergency Coordinators or through activation of an IMG; in either case, coordination may be 

conducted from FDA’s Emergency Operations Center (EOC) or other locations as circumstances may 

require. 

• IMG. An IMG is typically established when an incident involves multiple FDA organizational 

components or involves (or is anticipated to involve) complex incident management/coordination. 

The authority to establish FDA’s incident management structure, IMG, resides with the OEM 

Director, OEM/OEO Director, or his/her designee, in consultation with senior Center/Office and 

ORA leadership, as appropriate. It is staffed by agency headquarters representatives (i.e., from the 

OC, OEM, and/or the FDA product Centers) and, as appropriate, FDA field staff and/or external 

agency liaisons. The IMG staffing is organized consistent with the principles of NIMS. An 

Agency Incident Coordinator (AIC) is designated to oversee the IMG, including development and 

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implementation of a headquarters ICP and the coordination of FDA headquarters resources and 

capabilities to respond to the event, as needed. Subordinate Command and General Staff 

positions, comprising representatives from headquarters Centers and Offices, are also established 

to assist the AIC in executing emergency functions under the specific conditions at hand.18 The 

AIC reports directly to the Commissioner or the Commissioner’s designee, an Agency Executive 

Group (AEG), or the FDA Executive Committee (provides oversight and direction on crosscuting operational issues, strategic challenges, and scientific policy issues for FDA). An AEG or 

Executive Committee may provide guidance on policy issues and resolve issues involving 

competing resources. For a further description of the AEG and/or the Executive Committee, see 

Section D, “Direction, Control, and Coordination.”19 

The scope of the incident may call for activation of an internal FDA Joint Information Center 

(JIC). This is a collocated group of communication specialists from Centers and Offices involved 

in the event that are designated to handle public information needs. For a further description of 

the FDA JIC, see Section D.2.2.4.1, “Units.” 

• EOC. The FDA EOC is the physical location at which the coordination of information and 

resources to support incident management activities normally takes place. 

FDA EOC. The FDA EOC serves as the agency-wide focal point for emergency operations coordination 

and dissemination of information, whether staffed by OEM/OEO personnel or an IMG. The FDA EOC 

staff monitors ongoing events, processes complaints and alerts, issues MAs to FDA organizational 

components, coordinates overall agency emergency management operations, and communicates with 

interagency partners to provide technical and material support.20 The FDA EOC staff facilitates contact 

between applicable headquarters and field emergency personnel and provides frequent and formalized 

communications/reporting to senior agency officials and organizational components, as well as ASPR and 

the HHS SOC and other external partners, regarding the status of FDA emergency response activities. 

The FDA EOC provides a physical central location from which headquarters personnel can provide 

agency-wide coordination and executive decision-making in support of the incident response. The FDA 

EOC staff does not command or control the agency’s response, but carries out the coordination function 

for complex incidents or multiple incidents occurring simultaneously through: 

• Information Collection, Evaluation, and Dissemination. Collecting, analyzing, interpreting, 

and distributing information from/to various internal and external sources. 

• Priority Setting. Ensuring that agency response systems are interconnected and complementary, 

reinforcing interoperability among the various organizational components, making the response 

more efficient and effective by coordinating available resources, and making decisions based on 

agreed-upon policies and procedures. 

• Resource Coordination. Identifying and acquiring needed resources and allocating existing or 

known resources. 

• Communications Facilitation. Establishing and maintaining intra- and interagency interoperable 

communications. 

18 For detailed information on how FDA organizes and staffs emergency response operations, refer to Section D, “Direction, 

Control, and Coordination,” of this EOP. 

19 The use of the terms “Incident Management Group” and “Agency Executive Group” should be reserved for use only as defined 

in the FDA EOP. Use of ICS principles across FDA is encouraged; however, the terms IMG and AEG only apply to the 

incident structure activated by OEM/OEO and are used as described above. 

20 The composition of FDA EOC staff will change depending on specific incident requirements. 

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Centers. The FDA product Centers are responsible for scientific evaluations and for programmatic 

decisions and policy development within their respective program areas. Their professional staff includes 

clinical, scientific, and manufacturing process, policy, as well as medical countermeasure and emergency 

coordination experts. This expertise (analytical, laboratory, sampling procedures, subject matter expertise, 

and industry knowledge) is routinely utilized for critical consultation and decision-making when incidents 

occur. 

Centers may maintain a Situation Room or Coordination Center consisting of Center-selected subject 

matter experts (SMEs) to be led by a Center Emergency Coordinator (CEC). The CEC reports to the 

Center Director (or other senior leader) and coordinates directly with OEM/OEO Emergency 

Coordinators or an IMG. The CEC serves as the focal point for internal and external Center 

communications during emergencies and disasters and is responsible for providing regular status and 

SitReps to the FDA EOC as requested. FDA Centers participate in agency emergency operations when 

the response includes, or may include, regulatory activities or products under their jurisdiction. During 

some large-scale or catastrophic incidents, CECs or other Center personnel may be directed to report, or 

connect virtually, to the FDA EOC and an OEM/OEO Emergency Coordinator to support initial or 

prolonged emergency operations as part of an IMG. For further information about the Center’s 

responsibilities during an emergency, please see Section C.3, “Office of Foods and Veterinary Medicine,” 

and Section C.4, “Office of Medical Products and Tobacco” of this EOP. 

ORA. Any information received by ORA regarding the incident or ongoing field activities will be shared 

and/or discussed, as appropriate, with staff operating from the FDA EOC and the Commissioner or the 

Commissioner’s designee as appropriate. Additionally, ORA, working with the responsible Centers, will 

develop, issue, and approve any new or revised regulatory policy required during the event. 

For further information about ORA’s responsibilities during an emergency, please see Section C.5, 

“Office of Global Regulatory and Policy,” of this EOP. 

B.2.2.3.4 Mission Assignments in Support of State and Local Response 

Requests for support from State and local agencies can be made directly to the agency or, in the case of a 

declaration of a major disaster or emergency under the Stafford Act, through FEMA. In order to assist 

SLTT agencies with such requests, FDA has developed Pre-Scripted Mission Assignments (PSMAs), 

which can be used to expedite the submission of requests when a major disaster or emergency has been 

declared. These requests include laboratory analysis, investigational, sampling collection, subject matter 

expertise, and training related to drugs, biologics, medical devices, radiation-emitting devices, tobacco, 

the food supply, or cosmetics. See Appendix C, “Processing Mission Assignment Sub-Taskings,” for the 

list of the PSMAs and the procedures on executing MA sub-taskings.. 

B.2.2.3.5 Use of Investigational Medical Products, including Medical Countermeasures 

When a countermeasure has not yet been approved, licensed, or cleared because the safety, effectiveness, 

and/or quality have not been fully established, FDA may permit its use under an IND application or IDE21 

through expanded access mechanisms or under an Emergency Use Authorization (EUA). 

Expanded access (sometimes called “compassionate use”) is the use of investigational drugs, biologics or 

medical devices outside the clinical trial setting to diagnose, monitor, or treat patients with serious 

diseases or conditions for which there are no comparable or satisfactory approved therapy options 

available. Whenever possible, accessing such an investigational product through a clinical trial is 

preferable because clinical trials can generate data that may lead to the approval of products and, 

consequently, to wider availability. However, when patient enrollment in a clinical trial is not possible 

21 FD&C Act, Section 561, (b) and (c): Expanded Access to Unapproved Therapies and Diagnostics. 

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(e.g., a patient is not eligible for any ongoing clinical trials, or there are no ongoing clinical trials), 

patients may be able to receive the product, when appropriate, through expanded access. 

For certain events, the Commissioner may issue an EUA to allow the use of an unapproved medical 

product or the unapproved use of an approved medical product. Before FDA may issue an EUA, the HHS 

Secretary must declare that circumstances exist justifying the authorization, based on one of the following 

actions: 

• A determination by the Secretary of Homeland Security that there is a domestic emergency, or a 

significant potential for a domestic emergency, involving a heightened risk of attack with a 

CBRN agent(s); 

• A determination by the Secretary of Defense that there is a military emergency, or a significant 

potential for a military emergency, involving a heightened risk to United States military forces of 

attack with a CBRN agent(s); 

• A determination by the Secretary of HHS that there is a public health emergency, or a significant 

potential for a public health emergency, that affects, or has a significant potential to affect, 

national security or the health and security of United States citizens living abroad, and that 

involves a CBRN agent or agents, or a disease or condition that may be attributable to such 

agent(s); 

• The identification of a material threat, by the Secretary of Homeland Security pursuant to section 

319F-2 of the Public Health Service (PHS) Act, that is sufficient to affect national security or the 

health and security of United States citizens living abroad.

22,23 

Although FDA clearly defines most medical countermeasure regulatory jurisdictional responsibilities, 

several jurisdictional situations require explanation. CBER regulates all vaccines and blood derivatives 

for human use, and the USDA regulates those for veterinary use. CDER regulates all drugs for human 

use, and the Center for Veterinary Medicine (CVM) regulates all drugs for veterinary use. CDRH 

regulates the majority of clinical diagnostics; however, CBER regulates a specialized subset of in-vitro 

diagnostics (IVD) involved in the safety of the blood/tissue supply. Therapeutic biologics are regulated by 

multiple Centers, and questions should be addressed to the appropriate Center. In instances where Centerspecific jurisdiction within FDA is unclear, the FDA Office of Combination Products (OCP) will decide 

which FDA Center possesses regulatory jurisdiction. 

Responsible OC Offices (including OCET) and FDA Centers and Offices shall perform the following 

general functions related to medical countermeasures: 

• Monitoring and updating the status of the product regulatory category, availability, and relevant 

manufacturing information. 

• Facilitating the availability of safe and effective drugs, therapeutic biologics, vaccines, cellularand tissue-based therapies, diagnostic devices, and other biological products to be used as 

countermeasures. 

• Collaborating with Federal and SLTT public health agencies and regulated industry regarding 

product stockpile issues, including labeling, appropriate usage, product performance, monitoring, 

use in special populations, and other evolving issues. 

22 The most current FDA guidance on EUAs can be found at www.fda.gov/RegulatoryInformation/Guidances/ucm125127.htm. 23 FD&C Act, Section 564, Authorization for Medical Products for Use in Emergencies. 

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• Conducting prospective discussions about emergency use of products and the appropriate 

regulatory mechanism for their use and the submission of data (i.e., EUA, IND, IDE, or Master 

File) on the product. 

• Ensuring product recipients will be provided information (1) adequate to obtain informed consent 

(for IND and IDE products), or (2) as required by the EUA (e.g., that the product is under EUA 

and that the known and potential risks and benefits of taking or refusing the product are 

adequately communicated). 

• Providing advice on identifying potential contaminants of drugs and therapeutic biological 

products and advising how to test for quality and purity. 

B.2.2.4 Demobilization 

As the need for full-time incident response coordination wanes, FDA will assess the situation to 

determine whether to continue or terminate emergency operations.24 This decision includes identifying 

whether consumer product safety and security and public health protection objectives were achieved and 

an orderly, safe, and efficient return of FDA resources (i.e., activated or deployed personnel, facilities, 

and equipment) to their original locations and/or operating status is warranted. In making this decision, 

FDA coordinates with and seeks input from appropriate experts and stakeholders. As a result, FDA 

organizational components may resume normal business operations and transition to short- and long-term 

recovery. Demobilization of an IMG will be announced through written correspondence from the AIC to 

all IMG members, generally as part of a written demobilization plan developed by the IMG Planning 

Section. The FDA EOC, or IMG, if activated, should be notified whenever an IMT has been demobilized. 

Depending on the incident, resurgence may occur, and any period of transition back to normal operations 

could be disrupted. When this occurs, the agency will begin a new “notification and alert” period for 

emergency response and a change in EOC operational levels may occur. 

Transition back to normal operations, after initiating and conducting an emergency response, will occur in 

stages and will correspond to the recovery of affected communities, FDA-regulated firms, and the Nation 

as a whole. 

B.2.3 Recovery 

Under the NPG, the recovery mission area includes those capabilities necessary to assist communities 

affected by an incident in recovering effectively. 

The “recovery” phase of FDA emergency operations includes short- and long-term actions to ensure and 

restore the safety, efficacy, and availability of FDA-regulated products and to protect the public’s health. 

To accomplish this, FDA supports HHS in the execution of the NDRF and the two Recovery Support 

Functions (RSFs)—Health and Social Services and Infrastructure Systems—that require HHS 

coordination or support. 

As Federal ESF operations conclude, requests for more detailed assessments, technical assistance, and 

longer term coordination fall under the recovery mission. Subject matter expertise and technical 

assistance can be provided to address issues that impact FDA-regulated industries. FDA and Federal 

supporting agencies will work with SLTT entities to provide a coordinated and consistent approach to 

recover from an incident. FDA will collaborate and maintain communication with other government 

agencies, industry, the public, and the media particularly concerning any long-term affects associated with 

the event. 

24 Only the Commissioner, his/her authorized designee, or the AIC may formally terminate agency-wide emergency response 

operations. However, Center Directors, DDs, and PDs, through their respective emergency coordinators, are authorized to 

demobilize emergency personnel within their organizational components (e.g., IMTs). 

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Recovery objectives that support Federal and SLTT agencies for each RSF are outlined below: 

• Health and Social Services 

− Inspect or investigate FDA-regulated facilities and collect and analyze samples of FDAregulated products for the overall recovery operation as needed. 

− Conduct prolonged inspection, sample collection, and laboratory analysis activities in support 

of SLTT agencies that are specifically related to a disaster but deemed ineligible under the 

Stafford Act (e.g., inspections of retail food establishments and pharmacies). 

− Manage a potentially large number of samples of FDA-regulated products, including longterm sampling associated with the health effects of natural and manmade disasters. 

− Oversee product destruction and product reconditioning or rendering as appropriate. 

• Infrastructure Systems 

− Identify key pharmaceutical and medical device facilities and determine if any supplies of 

drugs, biologics, or medical equipment have been or will be critically impacted. 

− Facilitate the availability of critically needed medical products by identifying alternate 

products or sources of products. 

− Identify key facilities that manufacture/process, pack, or hold food for human or animal 

consumption and determine if any are critically impacted. 

− Provide clear and consistent information to assist industry in understanding and complying 

with regulations in a post-disaster environment. 

Dependent on the recovery objectives and the level of coordination needed, the FDA IMG will determine 

if FDA EOC or FDA JIC resources are needed to support the functioning of the IMG and recovery 

efforts. 

As the need for recovery coordination wanes, FDA will assess whether consumer product safety and 

security and public health protection objectives were achieved. The transition back to a steady state 

operation will occur in stages and will correspond to the reestablishment of public confidence in FDAregulated products. In regard to the recovery of FDA-regulated industry, it may be more appropriate that 

long-term recovery activities requiring FDA involvement be coordinated by agency components other 

than OEM/OEO or an IMG. 

The text of the NDRF is available at www.fema.gov/pdf/recoveryframework/ndrf.pdf. 

B.2.3.1 Evaluation of Response 

Following any emergency or disaster, FDA organizational components will discuss how the agency 

handled the incident and seek input from appropriate experts and stakeholders. Participants will analyze 

emergency actions and responsibilities, resolve any deficiencies, mitigate consequences, and anticipate 

and address any long-term affects of the incident. In addition, organizational policies, plans, and 

procedures will be updated as needed, incorporating lessons learned and best practices captured during 

the event. 

Following the termination of response activities that involved an IMG, OEM works with stakeholders to 

conduct a lessons learned analysis to identify the following: 

• Strengths and weaknesses of key response activities performed during the incident, including 

agency measures to protect public health. 

• Resource needs (e.g., personnel, equipment, training). 

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• Improvements to emergency response plans and procedures. 

• Strengths and weaknesses of agency communications, which could include intra-agency and 

interagency communications as well as communications with specific stakeholder groups, such as 

industry, consumers, and the news media. 

• Needed modifications toward regulatory policy, laboratory and field operations, and research 

activities. 

• Any other needed improvements to overall preparedness. 

As an important part of this process, it is generally advisable that when an IMG has been activated, the 

AIC or his/her designee (usually the Planning Section Chief) conduct an event Hot Wash, which is a brief 

facilitated session to obtain IMG members’ verbal feedback on the incident. This session should be 

conducted prior to the release of the majority of the IMG staff. This session is coordinated with the OEM 

Emegency Planning, Exercise, and Evaluation staff preparing the incident After Action Report (AAR) 

and feedback received provided for use in developing the report. 

A final AAR draws conclusions from data collected. All FDA Centers and Offices should submit their 

input to the FDA OEM Director. All relevant parties within FDA receive the final report. 

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C. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES 

This section identifies the general roles and responsibilities of FDA headquarters and field organizational 

components, including those that assist in preventing and protecting against, responding to, and 

recovering from all hazards. FDA staff work closely with one another and with governmental and 

industry partners to ensure the safety, efficacy, and security of FDA-regulated products that mitigate the 

public health effects of an emergency or disaster in the United States or worldwide, using novel and 

expeditious approaches to product regulation for optimized availability and use in all populations. 

FDA functions are organized into four directorates: 

1. OO oversees administrative functions such as human resources (HR), facilities, information 

technology (IT), and finance. 

2. The Office of Foods and Veterinary Medicine (OFVM) provides oversight of FDA’s food and 

feed programs as well as leads the implementation of the FDA Food Safety Modernization Act of 

2011 (FSMA). OFVM includes CVM and the Center for Food Safety and Applied Nutrition 

(CFSAN) which includes the Coordinated Outbreak Response and Evaluation (CORE) Network. 

3. The Office of Medical Products and Tobacco (OMPT) provides high-level coordination and 

leadership across the Centers for drugs, biologics, medical devices, and tobacco products. This 

Office also oversees special medical programs. 

4. The Office of Global Regulatory Operations and Policy (OGROP) is focused on globalization and 

import safety of food and drug production and supply. The Office provides direction and support 

to ORA and the Office of International Programs (OIP). 

The FDA product Centers are discrete management entities and are responsible for the regulation of a 

defined set of products. Their professional staff includes clinical, scientific, and regulatory experts. This 

expertise (analytical, laboratory, sampling procedures, subject matter expertise, and industry knowledge) 

is available for critical consultation should an emergency or disaster occur. The Centers are responsible 

for scientific evaluations, decisions in conjunction with ORA in response-focus based on scientific 

evaluations, and policy decisions within their respective program areas. FDA product Centers participate 

in emergency operations when the agency response includes, or may include, regulatory activities or 

products under their jurisdiction. 

Figure C-1 outlines FDA’s overall organizational structure and is followed by a brief description of the 

emergency functions performed by all responsible organizational components. Refer to individual 

Center/Office emergency plans and procedural documentation, as applicable, for more detailed 

information on emergency actions. 

July 2019 30 FDA EOP Section C 
Ii 

-

Office of 

Minority Health 

L - - - - - - - - - - - - L - - - - - - - - - - - _ I 

Office of Foods 

and Veterinary 

Medicine 

Office of Global 

Regulatory 

Operations 

and Polley 

• -

. 

- . . 

National Center 

for Toxicological 

Research 

Center for Food 

Safety and 

Applied Nutrition 

Office of 

Coordinated 

Outbreak 

Response and 

Evaluation Network 

Center for 

Veterinary 

Medicine 

Office of 

Regulatory 

Affairs 

Office of the 

Commissioner 

Office of the 

Chief Counsel 

- -

-

Office of 

Medical Products 

and Tobacco 

Office of Office of 

Equal 

Office of 

Operations 

Special Medical 

Programs Employment 

Oncology 

Center of 

Excellence 

Center for 

Biologics 

Evaluation 

and Research 

Center for 

Tobacco 

Products 

Opportunity 

Office of 

Human 

Resources 

Center for 

Drug Evaluation 

and Research 

Office of the 

Execullve 

Secretariat 

Office of 

Policy, Planning, 

Legislation, 

and Analysis 

Office of 

Policy 

Office of 

Planning 

Office of 

Legislation 

Office of Public 

Health Strategy 

and Analysis 

- -

FDA Emergency Operations Plan 

Figure C-1. FDA Organizational Chart 

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f .A ------

"~ 'r 

- . 

Office of the 

Chief Sc1ent1st 

........... Office of tt,e 

Commissioner 

Office of the 

Counselor to the 

Commissioner 

-

Office of 

-

Minority Health 

Office of 

Regulatory 

Science and 

Innovation 

J Office of 

Scientific Integrity 

I Office of 

Scientific 

Professional 

Develo ment 

Office of 

Health Informatics 

-----

Office of 

External Affairs 

Office of 

Media Affairs 

Office of 

Communications 

Office of 

Health and 

Constituent Affairs 

FDA Emergency Operations Plan 

C.1 OFFICE OF THE COMMISSIONER 

The OC (see Figure C-2) provides centralized direction and management services for agency-wide 

programs to ensure that FDA’s consumer protection efforts are effectively managed within its legal and 

regulatory framework and those available resources are put to the most efficient use. The OC also 

provides policymaking, program direction, coordination and liaison, and expert advice to agency leadership and programs in support of FDA’s science-based work. The Office includes the Commissioner and 

Deputy Commissioners. 

Office of the Chief of Staff 

The Office of the Chief of Staff (OCoS) coordinates staff activities in the OC and serves as the principal 

liaison to HHS. The Office advises and provides integrated policy analysis and strategic consultation to 

the Commissioner and Deputy Commissioners, and other senior FDA officials, on activities and issues 

that affect significant agency programs, projects, and initiatives. OCoS provides senior-level leadership 

and guidance on issues and actions tied to the agency’s communications with HHS and the White House, 

including correspondence for secretarial signatures. 

Figure C-2. FDA OC Organizational Chart 

C.1.1 Office of the Executive Secretariat 

The Office of the Executive Secretariat (OES) provides direct support to the Commissioner, including 

preparation of briefing material and background information for meetings, correspondence management 

and control, and preparation and transmittal of information advisories and alerts to HHS. The Office 

develops and maintains information to monitor the Commissioner’s and FDA’s goals and priorities. 

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In addition, OES is responsible for: 

• Dockets Management. The Dockets Management staff will continue to post critical public 

information to the Federal Register in accordance with Federal law. 

• Freedom of Information Act (FOIA). The Division of Freedom of Information will continue to 

respond to new requests and denials, provide appeals and litigation support and FOIA and 

Privacy Act policy, and will assist the Office of Media Affairs (OMA) as needed to review 

possible public announcements prior to their dissemination. 

C.1.2 Office of the Chief Counsel 

The Office of the Chief Counsel (OCC) is composed of litigators and counselors. Litigators handle both 

civil and criminal cases, participating in case development; drafting pleadings, motions, and briefs; and 

conducting discovery and trials. Counselors provide legal opinions to the major programs of the agency— 

drugs, foods, biologics, devices, veterinary products, tobacco products, and enforcement. They participate 

in rulemaking proceedings, legislative matters, policy deliberations, and international negotiations. In 

addition, FDA attorneys are involved in explaining agency programs to Congress, regulated industry, and 

the public. In an emergency or disaster, OCC is responsible for, but not limited to, the following 

activities: 

• Providing FDA organizational components with legal counsel on incident-related regulatory 

activities; examples include EUAs, marketing of medical countermeasures, and human subject 

protection (HSP). 

• Providing FDA organizational components with legal counsel related to sharing of information 

with other government agencies and the public with proper protections (e.g., for trade secrets and 

confidential commercial information). 

• Advising ORA and other relevant agency organizational components on inspections and enforcement matters related to foods, drugs, biologics, medical devices, radiological products, animal 

drugs/feed, cosmetics, and tobacco products. 

• Coordinating with the HHS Office of the General Counsel (OGC) on FDA-related issues as 

appropriate (e.g., on grants and contracts and on legal issues arising from activities of other HHS 

Operating Divisions [OPDIVs] in relation to FDA activities). 

• Working with other government agencies and their attorneys, Congress, and the U.S. Courts on 

FDA-related issues (e.g., the U.S. Department of Justice [DOJ], FBI, Federal Trade Commission 

[FTC], USDA, U.S. Environmental Protection Agency [EPA], U.S. Department of State [DOS], 

and the U.S. Postal Service [USPS]; State Attorney Generals’ offices; congressional oversight 

and appropriations committees; and Federal and State courts). 

• Providing legal advice and assistance to the Office of the Secretary on matters within the 

expertise of the OCC. 

C.1.3 Office of Legislation 

The Office of Legislation (OL) directs and manages FDA’s legislative needs, pending legislation, oversight activities, and congressional relations consistent with the mission of the agency. In an emergency or 

disaster, OL is responsible for, but not limited to, the following activities: 

• Keeping Congress apprised of FDA actions in coordination with the HHS Office of the Assistant 

Secretary for Legislation. 

• Responding to congressional Requests for Information (RFIs). 

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• Arranging and supporting congressional meetings, briefings, and hearings. 

C.1.4 Office of Policy and Planning 

The Office of Policy and Planning (OPP) provides advice to the Commissioner and other key FDA 

officials on matters relating to strategic direction, policy, development of regulations and guidance, 

legislative issues, planning and evaluation activities, and budget. OPP manages FDA’s Advisory 

Committee program, coordinates the publication of agency rules and notices in the Federal Register, 

serves as the agency focal point for policy development, and helps ensure agency components adhere to 

FDA policies and regulations. This Office participates with the Commissioner in the formulation of the 

budget, basic policies, and operational philosophy that guide FDA in effectively achieving its goals and 

meeting its responsibilities. 

C.1.4.1 Office of Policy 

The Office of Policy is responsible for advising the Commissioner and other key agency officials on 

matters relating to agency policy and on regulations and industry guidance development. 

C.1.4.2 Office of Planning 

The Office of Planning develops programs and systems to evaluate overall FDA program accomplishments against objectives and priorities, recommending changes as necessary. 

C.1.5 Office of External Affairs 

The Office of External Affairs (OEA) is responsible for the following activities: 

• Serves as the central point of communication and education about FDA’s public health and 

regulatory activity. This includes the development, coordination, and leadership of all FDA 

communications and outreach efforts to the news media, health professionals, patient advocates, 

industry, States, consumer groups, and the general public. OEA also serves as the focal point for 

internal employee communications, speechwriting, creative and editorial services, and best 

practices in digital and web technology. 

• Advises the Commissioner, Deputy Commissioners, and other key agency officials on FDA’s 

communications to the media, Congress, and the general public on issues that affect agency-wide 

programs, projects, strategies, partnerships, and initiatives. 

• Advises and assists the Commissioner and other key officials on all public information programs; 

acts as the focal point for disseminating news on FDA activities and as a liaison with the U.S. 

Public Health Service (USPHS) and HHS on public information programs. 

• Advises the Commissioner, Deputy Commissioners, and other senior staff throughout FDA on 

sensitive and controversial programs and initiatives that affect external stakeholder groups; 

provides historical expertise and records to inform those decisions. 

• Provides communication expertise and state-of-the-art digital guidance and tools for application 

across the agency. 

• Serves as a liaison between FDA and health professional and patient advocacy organizations to 

solve problems and address concerns these groups have with agency policies and programs 

related to human and medical product development and safety. 

C.1.5.1 Web and Digital Media Staff 

The Web and Digital Media Staff support the agency during an emergency with the following activities: 

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• Responsible for directing the design, content management, usability, and evaluation of the FDA 

website (www.fda.gov). Develops and interprets the agency’s web policies and serves as 

advocates for FDA’s web presence and catalysts for creative use of the web and digital media by 

the agency. 

• Works closely, as partners, with the FDA Office of Information Management and Technology 

(OIMT), which is responsible for the technical operations of FDA’s website. 

• Serves as the focal point and contact with the agency, HHS, and other Federal government 

website programs and operations. 

• Provides direction, strategic planning assistance, and management coordination on agency 

website and digital media programs. 

• Works closely with the website contacts in each of the Centers and principal Offices of the 

Commissioner to plan, coordinate, execute, and evaluate the agency’s website operations. 

• Designs, develops, implements, monitors, and manages information published on the agency’s 

website and external digital assets. 

• Delivers the agency’s messages to the public via the agency’s website and strategic online 

partnerships in the government, private, and nonprofit sectors. 

• Establishes, manages, and monitors the implementation of agency standards for social media. 

Provides direction and strategic planning assistance related to social media. 

C.1.5.2 Office of Communications 

The Office of Communications supports the agency during an emergency with the following activities: 

• Oversees and directs the agency’s print and online communications and visual identity to ensure 

quality and consistency as well as coherence in decision-making and the efficient operation of 

these internal functions across the agency and Department as a whole. 

• Acts as the agency’s liaison with HHS for all publications and audiovisual needs; provides prepublication clearance of publications, exhibits, and audiovisual materials in accordance with 

procedures established by the agency, USPHS, HHS, the Office of Management and Budget 

(OMB), and the White House. 

• Creates and disseminates the agency’s flagship consumer health information, which includes 

timely and easy-to-read consumer update articles, videos, and photo slideshows containing the 

latest on all FDA-regulated products and practical wellness and prevention information to 

empower consumers. Manages the “For Consumers” section of the FDA website. 

• Directs all aspects of FDA’s internal communications for employees, including the content and 

visual strategies for the homepage of the agency’s internal website; creates and coordinates 

agency-wide creation of content for reaching employees using a broad range of communications 

vehicles. 

• Drafts speeches, informal remarks, talking points, slides, op-ed pieces, and letters to the editor for 

the Commissioner. Advises the Commissioner and other senior FDA executives on messages 

about FDA’s public health priorities, initiatives, and crucial priorities. 

• Manages speaker requests for issues that cut across FDA’s organizational and product lines, as 

well as major meetings that involve various FDA Centers and Offices. 

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• Serves as a key resource for historical perspectives as well as records and resources used for 

agency communications and programs, including printed and online information, 

commemoratives, anniversaries, and milestones. 

C.1.5.3 Consumer Health and Constituent Affairs 

Consumer Health and Constituents Affairs support the agency during an emergency with the following 

activities: 

• Advises the Commissioner and other key FDA officials on matters related to patients, patient 

advocacy, health professionals, consumers, State and Federal activities, and industry issues. 

• Assists in the planning, administration, development, and evaluation of FDA policies related to 

patient advocacy and health professional organizations, consumers, States, and industry on 

serious and life-threatening issues. 

• Serves as a liaison between FDA and stakeholder organizations to educate various constituents on 

FDA-related issues and activities. 

• Provides internal coordination on FDA activities related to patient advocacy, health professional 

organizations, consumer groups, State organizations, and industry groups on high-priority topics 

such as serious and life-threatening diseases, imminent public health needs, and other special 

health issues. 

• Coordinates and implements policies, programs, and initiatives related to MedWatch, including 

the MedWatch web pages, E-list, RSS [Really Simple Syndication] feed, and Twitter account. 

• Ensures patient perspectives are taken into consideration during drug development and policy 

issues through the patient representative and patient consultant programs. Encourages and 

supports active participation of these groups in forming FDA regulatory policy to ensure the 

agency’s decisions are based upon a full range of perspectives. 

• Administers MedWatch, the FDA safety information and adverse event reporting program. Also 

provides education and information on FDA’s key responsibilities, particularly the drug approval 

process, clinical trial design, and expanded access to investigational therapeutic products. 

C.1.5.4 Office of Media Affairs 

C.1.5.4.1 Media Relations Staff 

The Media Relations Staff support the agency during an emergency with the following activities: 

• Advises and assists the Commissioner of Food and Drugs and other key FDA officials on all 

news media activities; serves as a liaison with USPHS and HHS on news media activities. 

• Serves as the agency focal point for preparing, clearing, and disseminating press announcements 

and other statements for the news media on agency activities, as well as arranging and facilitating 

press conferences, media briefings, media availabilities, interviews, and other news events. 

• Establishes policy for and responds to news media inquiries with timely and accurate 

information; coordinates and maintains liaison with news media covering FDA activities. 

• Facilitates news media interviews with senior agency officials and provides guidance and appropriate training to interview subjects on advisable conduct during news media contacts. 

• Analyzes media coverage, conducts assessments and evaluations of media relations tactics to 

ensure objectives were met, and identifies areas for improvement. 

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• Plans, develops, and implements agency-wide multimedia communications strategies for 

disseminating regulatory and educational materials to the public through the news media in 

support of the agency’s top priorities and initiatives. 

• Provides important daily newsclips about the agency to FDA employees and distributes the Daily 

News Media Report to HHS. 

• Delegates FOIA denial authority to the Division of Freedom of Information for the agency. 

C.1.6 Office of the Chief Scientist 

The Office of the Chief Scientist (OCS) serves as the agency’s focus for scientific, medical, and related 

activities within the OC. OCS provides strategic leadership, coordination, and expertise to support 

scientific excellence, innovation, and capacity to achieve FDA’s public health mission. The Offices 

within OCS are as follows: the Office of Counterterrorism and Emerging Threats (OCET), Office of 

Critical Path Programs, and the newly established Office of Scientific Integrity (OSI) and Office of 

Regulatory Science and Innovation (ORSI). Additionally, the National Center for Toxicological Research 

(NCTR) has a direct reporting relationship to the OC and an indirect reporting relationship to OCS. 

OCS also supports science and public health activities by effectively anticipating and responding to 

counterterrorism and emerging deliberate and natural threats (e.g., CBRN) to U.S. and global health and 

security, including through OCET. 

C.1.6.1 Office of Counterterrorism and Emerging Threats 

The Office of Counterterrorism and Emerging Threats (OCET) provides strategic leadership and 

coordination for FDA’s counterterrorism and emerging threat portfolios. 

OCET performs the following main functions: 

• Serves as FDA’s point of entry on policy and planning matters concerning global health security, 

counterterrorism and emerging threats 

• Develops and coordinates the implementation of comprehensive FDA plans and strategies for 

these portfolios in collaboration with FDA Centers and Offices, and with external U.S. 

government and international partners 

• Serves as the FDA focal point for the HHS Public Health Emergency Medical Countermeasures 

Enterprise disclaimer icon (PHEMCE) and Department of Defense medical countermeasure 

(MCM) programs to support the warfighter 

• Coordinates FDA’s Medical Countermeasures Initiative (MCMi) to facilitate the development of 

safe and effective MCMs against chemical, biological, radiological, and nuclear agents and 

emerging threats, such as pandemic influenza 

• Develops and coordinates implementation of FDA policies and procedures to facilitate the 

availability of MCMs, including efforts to safeguard MCMs from adulteration or disruption of 

supplies during public health emergencies, and enable access to available MCMs when necessary 

through an appropriate mechanism, such as Emergency Use Authorization 

• On behalf of the Commissioner, facilitates communications within FDA and with external 

partners 

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C.1.6.2 National Center for Toxicological Research 

NCTR conducts FDA mission-critical scientific research to support and anticipate FDA’s regulatory 

needs. This research is targeted to understand critical biological events in the expression of toxicity and to 

develop and characterize methods and incorporate new technologies to improve the assessment of human 

exposure, susceptibility, and risk. In an emergency or disaster, NCTR is responsible for, but not limited 

to, the following activities: 

• Responding to RFIs from the Commissioner, other FDA Centers, and Federal agencies. 

• Providing SME consultations to support informed decision-making in responding to healthrelated issues associated with the incident. 

C.2 OFFICE OF OPERATIONS 

OO provides executive direction, leadership, coordination, and guidance for the day-to-day operations of 

FDA; manages overall budgets and resources; and oversees management and business activities across all 

FDA headquarters and field offices. OO also ensures that proper conduct of FDA’s administrative and 

financial management activities, including budget, finance, acquisitions, IT, HR, organization, methods, 

and similar support activities effectively support program operations. These activities are available 

resources to support FDA’s emergency phases. The Offices under OO that report to the Chief Operating 

Officer and have responsibilities related to an emergency phase are: 

• Office of Business Services (OBS) 

• Office of Finance, Budget, and Acquisition (OFBA) 

• Office of Human Resources (OHR) 

• Office of Facilities Engineering and Mission Support Services (OFEMS) 

• Office of Security and Emergency Management (OSEM) 

In the Immediate Office, the Employee Safety and Environmental Management staff in an emergency or a 

disaster is responsible for, but not limited to, the following activities: 

• Ensuring employees’ safety prior to, during, and while recovering from an emergency event by 

providing guidance and available resources to staff. 

• Providing subject matter expertise and leadership for radiological emergencies. 

C.2.1 Office of Business Services 

OBS in an emergency or a disaster is responsible for, but not limited to, the following activity: 

• Ensuring effective employee administrative support through Employee Resource and Information 

Center (ERIC) Call Center operations. 

C.2.2 Office of Finance, Budget, and Acquisition 

C.2.2.1 Office of Budget 

The Office of Budget (OB) is responsible for developing budget formulation plans and organizes and 

carries out annual and multiyear budgeting in support of the nationwide public health protection programs 

administered by FDA. In coordination with FDA Centers and Offices, OB responds to requests for budget 

information, special reports, and exhibits and provides expertise and performs all duties involved with the 

formulation, justification, and presentation of FDA budget submissions to HHS, OMB, and Congress. In 

an emergency or disaster, OB is responsible for, but not limited to, the following activities: 

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• Providing expert advice on and managing supplemental budget requests to support unforeseen 

expenses during critical periods or events; OB would facilitate this process by working with 

senior management and Centers to identify resource needs, implementing the process to 

formulate the budget request, providing essential support during the review and clearance 

process, and responding to questions from Congressional Appropriations staff and other 

stakeholders. 

• Facilitating that process by conducting outreach and coordinated communications; gathering 

information; and communicating with senior FDA management, Centers, HHS, OMB, and 

Congressional Appropriations staff. 

C.2.2.2 Office of Acquisitions and Grants Services 

The Office of Acquisitions and Grants Services (OAGS) is responsible for negotiating, awarding, and 

managing all contracts, cooperative agreements, interagency agreements, grants, administration of the 

purchase card program for FDA, MOUs, and technology transfers. OAGS is also responsible for writing 

acquisition policy, providing strategic business advice and support to our stakeholders, and liaising with 

the HHS Senior Procurement Executive. 

Administrative functions, such as payroll, travel, and timekeeping, will be provided by the Administrative 

Officer, Director’s Administrative Assistant, and other administrative support personnel. 

C.2.2.3 Office of Financial Operations 

The Offices that comprise the Office of Financial Operations (OFO) plan, direct, and coordinate a 

comprehensive financial management operations program for FDA, encompassing the areas of budget 

analysis, execution, automated financial systems, fiscal accounting, internal financial audit, financial 

services related to accounts payable, travel support and payroll liaison, and financial reporting. 

C.2.2.3.1 Office of Financial Management 

The Office of Financial Management (OFM) is FDA’s steward of financial assets and resources. OFM 

performs the following essential functions to support FDA’s response to an emergency: 

• Budget Execution. Apportions funds appropriated by Congress among components and oversees 

transfers of funds between components; this includes processing user fees. 

• Accounts Receivable – User Fees. Receives user fee payments, which allows FDA’s 

certification process to continue. 

• Financial Statements and Reports. Prepares the agency’s financial statements and maintains its 

general ledger. 

C.2.2.3.2 Office of Financial Services 

The Office of Financial Services is responsible for the following activities: 

• Directs and coordinates operations for financial services related to accounts payable, travel 

support, and payroll liaison. 

• Monthly, Quarterly, and Yearly Closing—coordinates month-end, quarter-end, and year-end 

close of financial operations within the Unified Financial Management System (UFMS). 

• Maintains liaison with the Program Support Center (PSC) and the Defense Financial Accounting 

System (DFAS) representatives on issues relating to pay and leave and monitors the processes to 

ensure the successful payment to employees. 

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• When necessary during an event, the Division of Travel Services may oversee the following: 

processing of vouchers and traveler’s reimbursements, the Concur Government Edition (CGE) 

system, the agency’s Travel Card and Centrally Billed Account programs, and travel process for 

all State employees working in tandem with ORA employees. 

C.2.3 Office of Information Management and Technology 

OIMT enables FDA’s strategic efforts to transform and improve the information systems and 

infrastructure needed to support critical agency operations. The Office implements and enhances common 

systems to support FDA’s regulated products. It also maximizes the availability and use of information 

technologies that increase or enhance electronic access for the public, as well as the full span of FDA’s 

external and internal customer base, while maintaining effective security. OIMT aligns IT investments to 

business goals that fully support core mission and business priorities and reduces costs of existing legacy 

systems. The Office consolidates, modernizes, and optimizes FDA’s IT infrastructure and provides the 

platform required for the agency to meet IT initiatives and to move towards the bioinformatics era of 

science-based decisions. 

In an emergency or disaster, OIMT is responsible for, but not limited to, the following activities: 

• Ensuring the command and control of all reporting to OIMT. 

• Ensuring data centers (there are four main data centers) are functioning and coordinating with the 

appropriate building management to determine the building status. 

• Ensuring IT security services are available that are essential to protect FDA’s IT assets and 

identifying and applying patches that will address the most critical security vulnerabilities. 

• Ensuring the availability of FDA local area network (LAN)/wide area network (WAN) that will 

be critical for both field and local users to access agency IT resources. 

• Maintaining Internet services that are critical to the agency’s ability to communicate with 

regulated industry and providing access to FDA’s internal and external IT resources. 

• Ensuring Active Directory availability to provide authentication services when users log onto 

FDA systems. 

• Ensuring telephone availability, Voice over Internet Protocol (VoIP) customer support, and 

continuity of agency email/BlackBerry services. 

• Monitoring the availability of agency Outlook Web Access (OWA). 

• Managing and maintaining IT help desk and application support services. 

• Ensuring a Special Routing Arrangement Service infrastructure that will support 16,000 

concurrent broadband users and approximately 350 dial-in users. 

• Ensuring FDA staff can perform non-standard queries and data extractions. 

• Ensuring agency computer application and file/print services. 

• Monitoring and maintaining the availability of applications and databases. 

• Procuring additional contract services or information system hardware/software components as 

appropriate. 

C.2.4 Office of Human Resources 

In an emergency or disaster, OHR is responsible for, but not limited to, the following activities: 

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• Reviewing employee issues related to telework, leave, flexiplace, social distancing, and other HR 

issues; assessing the impacts of related decisions, such as building closures; issuing clear 

guidance consistent with the Office of Personnel Management (OPM), HHS, and other 

administration directives and policies while integrating program priorities and mission 

requirements; and maintaining a clear line of communication on both an agency and individual 

level so that the implementation of policies is consistent and well understood across FDA. 

• Coordinating and liaising with the FDA Office of Financial Services to ensure OHR employees 

adhere to any timekeeping updates necessary to continue receiving compensation. 

• Providing coordination between FDA management and the Assistant Secretary for Health’s 

Commissioned Corps programs; serving the FDA Centers, special assignments, and details to 

other organizations and initiatives. 

• Providing leadership and direction regarding all aspects of agency-wide HR management. 

• Ensuring internal and external customer services continue to be provided. 

C.2.5 Office of Facilities Engineering and Mission Support Services 

In an emergency or disaster, OFEMS is responsible for, but not limited to, the following activities: 

• Ensuring FDA facilities are safe and available for staff and acquiring temporary facilities if 

necessary. 

• Providing direct interface with the U.S. General Services Administration (GSA) for services in all 

leased facilities. 

C.2.6 Office of Security and Emergency Management 

OSEM is responsible to assure that FDA is supported in the areas of personnel and physical security, and 

emergency management through a coordinated effort among these functional areas. This includes 

planning for continued operations in the face of a crisis and assuring that public health is protected to the 

greatest extent possible through coordinating emergency response activities involving FDA-regulated 

products. OSEM also coordinates agency COOP activities, which address how to continue agency 

operations when the availability of FDA facilities to accomplish agency work has been impacted by an 

emergency. 

C.2.6.1 Office of Security Operations 

OSO has responsibility for agency-wide physical and personnel security programs, including the 

suitability and National Security Information program. In an emergency or disaster, OSO is responsible 

for, but not limited to, the following activities: 

• Ensuring the national security clearances of personnel assigned to various EOCs as part of a 

response are either sent to or received by the appropriate EOC. 

• Providing guidance on the proper handling, marking, processing, and storage of classified 

materials. 

• Ensuring the physical security of all nationwide FDA facilities; the Physical Security Branch may 

coordinate with on-duty security guard personnel regarding any temporary staff deployment 

issues that may arise during an emergency. 

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C.2.6.2 Office of Emergency Management 

OEM serves as FDA’s focal point for coordinating emergency response activities involving FDAregulated products and in situations when agency resources need to be used or deployed. It coordinates 

intra- and interagency activities related to emergency preparedness and response and security operations. 

OEM assists in the development, management, and coordination of incident management policies and 

programs for FDA to ensure that a structure exists to respond rapidly and effectively to all hazards. OEM 

consists of a Director; Immediate Office; Program Operations and Coordination Staff (POCS); 

Emergency Planning, Exercises, and Evaluation Staff (EPEES); and OEM/OEO. OEM/POCS provides 

GIS support to the agency and manages the FDA After-Hours Emergency Call Center, GeoWeb (a 

geographic information portal), and the Emergency Operations Network – Incident Management System 

(EON-IMS). OEM/EPEES is responsible for emergency plans, exercises, and evaluation. Additionally, 

OEM serves as a coordinator to the HHS Office of the Assistant Secretary for Preparedness and Response 

(ASPR), providing situational awareness of all FDA-related emergencies, and ensures FDA’s emergency 

operations procedures are in alignment with national and HHS procedures. During an emergency 

response, OEM supports the agency with the following activities: 

• Coordination, monitoring, documentation, and reporting on all agency response activities and 

interagency communications through the Office of Emergency Operations (see Section C.2.6.2.1). 

• Provides Offices and Centers with maps and spatial analysis through GIS for use in strategic 

planning of agency emergency response activities. Additionally, GIS provides situational 

awareness during a response in the form of maps that depict FDA-regulated industry, locations of 

FDA response activities, and other areas of interest. GIS allows responders to explore spatial 

trends in information and visually communicate information that can support and improve 

decisions. 

• Oversees the FDA Emergency Call Center, which provides service for responding to public 

inquiries and reports related to FDA-regulated products as well as surge capacity service for 

managing increased volumes of inquiries due to an incident involving an FDA-regulated product. 

• Manages FDA’s EOC through OEO (see Section C.2.6.2.1). 

• Coordinates the agency’s evaluation or after action review of FDA’s responses to incidents and 

emergencies to determine appropriate internal and external referral for further action and 

recommended changes in agency policies and procedures. 

• Advises and assists key FDA officials on counterterrorism and intelligence matters. Serves as 

lead for the agency’s Special Events planning and preparedness activities. 

C.2.6.2.1 Office of Emergency Operations 

OEO is staffed with emergency coordinators and serves as the central headquarters coordination point for 

the agency’s response to adverse events and injuries associated with regulated products, foodborne 

illnesses, product tampering, and manmade and natural hazards. It serves as the agency focal point for 

emergency preparedness and response operating the 24/7 emergency response system, and manages the 

FDA Emergency Operations Center (EOC). OEO reviews and assists in the analysis of preliminary 

information about threats and hazards, and assists in the early recognition and agency notification of 

emergencies, outbreaks, natural disasters, and terrorism or other criminal acts. Part of OEO 

responsibilities is to manage the national Consumer Complaint System, which monitors reports of 

problems with FDA-regulated products for potential emergencies. OEO also works across the agency at 

the Headquarters level for planning and execution of FDA’s activities in Special Events, including 

National Special Security Events (NSSEs). Another responsibility is to participate in weekly National 

Biosurveillance Integration Center (NBIC) conference calls sponsored by DHS to provide a secure forum 

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for interagency information sharing for early recognition of biological events of national concern, both 

natural and manmade, to make a timely response possible. 

In an emergency or disaster, OEO’s staff members are responsible for, but not limited to, the following 

activities: 

• Coordinating, monitoring, documenting, and reporting on all agency response activities and interagency communications. 

• Coordinating resource requirements with headquarters Centers and Offices and issuing 

assignments to the field. 

• Managing FDA’s EOC and staffing it with personnel from OEM/OEO as operational status 

requires. When the EOC is activated, OEM may augment EOC operations with personnel from 

relavent Centers and Offices to monitor emergency situations, triage complaints and alerts, issue 

MAs to organizational components, coordinate overall agency response operations, and 

communicate with external partners requesting technical and material support. 

• Maintaining situational awareness on intelligence matters that may have an impact on FDA staff, 

facilities, and/or regulated products. 

• Triaging consumer complaints and alerts. 

• Collecting and disseminating situational awareness information on natural and manmade 

disasters. 

• Communicating with Federal agencies (e.g., HHS ASPR and the HHS Secretary’s Operations 

Center, CDC, USDA, DHS, National Oceanic and Atmospheric Administration [NOAA], EPA) 

as they request technical and material support from FDA. 

• Providing essential staff for the operation of FDA’s EOC and liaisons to the HHS SOC. 

C.3 OFFICE OF FOODS AND VETERINARY MEDICINE 

The FDA Foods and Veterinary Medicine (FVM) Program includes CFSAN and CVM, along with the 

food-related activities of ORA and the CORE Network, and draws on the resources and expertise of 

FDA’s NCTR and key OC staff Offices. 

OFVM provides executive leadership and strategic direction to the FVM Programs to protect and promote 

the health of humans and animals by ensuring the safety of the American food supply, food additives, and 

dietary supplements as well as the safety of animal feed and the safety and effectiveness of animal drugs. 

The FVM Program does this by setting science-based standards for preventing food and feedborne 

illnesses and ensuring compliance with these standards, protecting the food and feed supply from 

intentional contamination, and ensuring that food labels contain reliable information and encouraging 

product reformulation to allow consumers to make healthy choices and promote well-being. OFVM is 

also responsible for leading FDA’s efforts in responding to foodborne outbreaks and contamination. The 

FVM Program leads the implementation of the FDA FSMA. The FVM Program also promotes and 

protects the health of humans and animals by regulating the manufacture and distribution of food 

additives and drugs that will be given to animals. 

The FDA FVM Program protects and promotes the health of humans and animals by: 

• Posting vital and important information, emergency messages, and other communication information quickly to users via the FDA website, in coordination with OEA. 

• Ensuring the safety of foods for humans, including dietary supplements. 

• Ensuring the safety of animal feed and the safety and effectiveness of animal drugs. 

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• Setting science-based standards for preventing foodborne illness and ensuring compliance with 

these standards. 

• Coordinating foodborne outbreak surveillance, response, and post-response activities related to 

incidents involving multiple illnesses linked to FDA-regulated human and animal food and 

cosmetic products. 

• Protecting the food and feed supply from intentional contamination. 

• Ensuring that food labels contain reliable information consumers can use to choose a healthy diet. 

C.3.1 Center for Food Safety and Applied Nutrition 

CFSAN, in conjunction with the agency’s field staff, is responsible for promoting and protecting the 

public’s health by ensuring that the Nation’s food supply is safe, sanitary, wholesome, and honestly 

labeled and that cosmetic products are safe and labeled properly. CFSAN has the authority to regulate 

establishments that manufacture, process, pack, hold, or grow food involved in interstate commerce, 

including manufacturers, distributors, and warehouses. It also determines whether data collected by 

another agency or organization are adequate for FDA decisions regarding food and cosmetic issues. In an 

emergency or disaster, CFSAN is responsible for, but not limited to, the following activities: 

• Collaborating with other public health agencies and industry regarding food contaminants and 

other monitoring programs for foodborne illness programs. 

• Providing critical information on food safety, food defense, and regulatory issues to consumers, 

industry, and other Federal and SLTT governmental and international entities (all levels of the 

food chain). 

• Protecting human health through regulatory, legal, and administrative actions. 

• Participating actively in legal proceedings critical to the safety and defense of the food supply. 

• Using import alerts to prevent unsafe food and cosmetic products from entering the United States. 

• Facilitating coordination of food contamination investigations between FDA and the States. 

• Identifying foods that are at elevated risk of contamination and investigating the effectiveness of 

food processing and preparation practices. 

• Developing and disseminating recommendations on measures to prevent the contamination of 

FDA-regulated foods and cosmetics. 

• Developing and evaluating analytical methods for identifying food and cosmetic contaminants. 

• Critically reviewing cases and other regulatory actions sent from the Office of Compliance to 

evaluate whether proposed regulatory action is supported by findings and providing policy and 

technical input to FDA field investigations. 

• Identifying and training a cadre of CFSAN personnel for potential rapid deployment to the FDA 

EOC, to HHS, and to external organizations to provide support for contingency functions. 

C.3.1.1 Coordinated Outbreak Response and Evaluation Network 

The CORE Network is responsible for coordinating foodborne outbreak surveillance, response, and postresponse activities related to incidents involving multiple illnesses linked to FDA-regulated human food 

and cosmetic products. Members of the CORE Network at the FDA headquarters level are assigned on a 

continuous, full-time basis to multidisciplinary teams that coordinate efforts internally within FDA, 

including CFSAN, CVM, ORA, and OFVM, as well as with external stakeholders, including the CDC, 

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USDA, and State and local health, agriculture, and regulatory agencies. The network is led by the OFVM 

Chief Medical Officer (CMO)/Director of CORE, who has the overall responsibility for leadership and 

management of FDA’s activities related to incidents of illness linked to human food and serves as the 

spokesperson during outbreaks. 

CORE Network leadership includes a Deputy Director, who participates fully with the CMO in providing 

the leadership, policy development, decision-making, and strategic planning for food-related outbreaks 

and food safety issues affecting the public health within the purview of FDA. Additionally, two managers 

oversee the areas of Prevention (includes the Signals and Surveillance and Post-Response) and three 

Response Teams. Also included in the network are key strategic FDA resources in both the field and at 

FDA headquarters (the District Offices, the Rapid Response Teams [RRTs] that work with State partners; 

FDA’s OEA; the SMEs at CFSAN and CVM; and others as appropriate). In specific instances, the CORE 

Network will work with OEM to determine whether an IMG should be activated if the response capacity 

of CORE is exceeded. 

In specific incidents, OEM/OEO will be immediately notified if the size, severity, and/or scope of the 

response to an incident is above the capacity of CORE. In this case, CORE will request the assistance of 

the OEM to activate an IMG to coordinate the response to the incident consistent with the FDA EOP. 

C.3.2 Center for Veterinary Medicine 

CVM ensures the safety, efficacy, and quality of drugs for animals (including food-producing and 

companion animals), animal food and feed, and medical devices used on animals potentially threatened 

by an incident. In an emergency or disaster, CVM is responsible for, but not limited to, the following 

activities: 

• Protecting animal and human health through regulatory, legal, and administrative actions. 

• Actively participating in legal proceedings critical to the safety of the food and feed supply. 

• Using import alerts to prevent unsafe products from entering the United States. 

• Facilitating coordination of feed, meat, and milk residue investigations between FDA and the 

States. 

• Providing sponsors and other stakeholders with guidance on the use of animal drugs that serve as 

potential medical countermeasures in animals. 

• Providing information on critical safety and regulatory issues to stakeholders, consumers, 

industry, veterinarians, and other government officials. 

• Identifying feeds that are at elevated risk of contamination and investigating the effectiveness of 

feed processing and preparation practices. 

• Coordinating human and animal foodborne outbreak surveillance, response, and post-response 

activities related to incidents involving FDA-regulated animal food. 

• Coordinating animal outbreak surveillance, response, and post-response activities related to 

incidents involving FDA-regulated animal devices. 

• Collaborating with public health agencies regarding feed contaminant, tissue residue programs, 

and other monitoring programs for meat and poultry products. 

• Providing information regarding manufacturers’ compliance with Good Manufacturing Practices 

(GMPs) and other relevant animal drug product quality issues. 

• Providing technical advice and assistance in the assessment of animal drug or feed product 

possibly affected. 

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• Assessing the availability, production capacity, and surge capacity of animal drugs and providing 

information on alternative sources of critical products in shortage situations. 

• Providing an assessment on the diversion of contaminated human food for animal feed use. 

• Providing advice to pet owners regarding animal safety measures. 

C.4 OFFICE OF MEDICAL PRODUCTS AND TOBACCO 

OMPT provides executive leadership, management, and policy direction to all FDA medical product- and 

tobacco-related programs. The Office exercises, on behalf of the Commissioner, direct line authority over 

CDER, CBER, CDRH, and the Center for Tobacco Products (CTP). The Office directs the activities of 

FDA’s special medical programs, including OCP, the Office of Orphan Products Development, the Office 

of Good Clinical Practice (OGCP), and the Office of Pediatric Therapeutics (OPT). The Office directs 

efforts to integrate the programs, as necessary, of CDER, CBER, CDRH, and CTP, and thereby ensure 

the optimal use of all available FDA resources and tools to improve the safety and proper labeling of 

medical products and tobacco. The Office is responsible for the following activities: 

• Directs the development of integrated strategies, plans, policies, and budgets to build FDA’s 

medical product- and tobacco-related scientific and regulatory capacities and programs, including 

recruitment and training of key personnel and development of information systems. 

• Represents FDA on medical product- and tobacco-related matters in dealing with the Office of 

the Secretary of HHS, the White House, other elements of the Executive Branch, and with 

Congress. 

• In conjunction with the Deputy Commissioner for Global Regulatory Operations and Policy, 

represents FDA on medical product- and tobacco-related matters in dealing with foreign governments and international organizations. 

• Directs FDA efforts to build consistency and uniformity in the evaluation for safety and efficacy 

of new medical products and new tobacco products. 

C.4.1 Office of Special Medical Programs 

The Office of Special Medical Programs (OSMP) Immediate Office oversees and coordinates the 

program offices that comprise OSMP. The OSMP Immediate Office: 

• Provides leadership and direction in the coordination of internal and external review of pediatric 

science, safety, ethics, and international issues in accordance with laws and regulations. 

• Oversees the implementation of the Orphan Products provisions of the FD&C Act to encourage 

the development of drugs of limited commercial value for use in rare diseases and conditions to 

promote the public health; the Immediate Office provides leadership in developing and 

communicating agency policy on orphan product activities, including protocol assistance, 

designation, exclusivity, and grants and contracts. 

• Provides leadership and direction on Good Clinical Practice (GCP) and HSP regulation, policy, 

harmonization, and outreach activities; the Immediate Office oversees development of regulations 

and policy to help ensure protection of human subjects involved in FDA-regulated research and 

the integrity of data resulting from such trials. 

• Provides leadership and direction on issues involving the regulation of combination products, the 

classification of human medical products, and jurisdiction over human medical products; the 

Immediate Office oversees development of regulations, policy, procedures, and processes to 

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facilitate classification of human medical products and the agency’s regulation, review, and 

oversight of combination products. 

• Provides leadership in management and oversight of FDA Advisory Committees to provide 

consistent application of laws and policies applicable to such committees; the Immediate Office 

oversees development of policy, procedures, and processes to maintain and improve the agency’s 

Advisory Committee program. 

• Evaluates and responds to appeals involving product classification decisions, assignment of 

combination product decisions, and orphan product designations. 

C.4.1.1 Office of Good Clinical Practice 

In general, the mission of the OGCP focuses on longer term policy/regulation development and intraagency coordination of issues related to the conduct of clinical trials and the protection of the rights, 

safety, and welfare of subjects in FDA-regulated studies. There are, however, several mission-critical 

areas for which OGCP is responsible that require daily attention and that may have heightened 

importance during an emergency situation, particularly an emergency that directly impacts the conduct of 

ongoing clinical trials. These areas include addressing clinical trial/HSP inquiries, questions related to 

emergency or compassionate use of investigational articles, trial-specific concerns, EUAs, and coordination of interagency GCP/HSP issues. Should the emergency situation have a major impact on the conduct 

of clinical trials in one or more areas of the country, OGCP could potentially establish an emergencyspecific hotline, as was done in the aftermath of Hurricane Katrina. Major concerns regarding subject 

safety could include identification of an accessible clinical site(s) for continued subject care depending on 

the specific situation. 

C.4.1.2 Office of Combination Products 

OCP ensures the prompt assignment of combination products to FDA Centers, the timely and effective 

pre-market review of such products, and consistent and appropriate post-market regulation of like 

products subject to the same statutory requirements to the extent permitted by law. In addition, OCP is 

responsible for determining whether articles are drugs, devices, biological products, or combination 

products if their classification is unclear or in dispute. In an emergency or disaster, OCP is responsible 

for, but not limited to, the following activities: 

• Classifying articles as drugs, devices, biological products, or combination products. 

• Assigning an FDA Center to have primary jurisdiction for review of a combination product. 

• Ensuring consistency and appropriateness of post-market regulation of combination products. 

• Updating agreements, guidance documents, or practices specific to the assignment of 

combination products during the incident. 

• Working with FDA Centers to implement guidance or regulations to clarify the agency regulation 

of combination products. 

• Serving as a focal point for combination products issues for internal and external stakeholders. 

C.4.1.3 Office of Orphan Products Development 

The Office of Orphan Products Development develops and communicates agency policy and makes 

decisions on approval of sponsor requests and incentives, including orphan product protocol assistance, 

orphan product designation, orphan product exclusivity, and orphan product grants and contracts, to 

support clinical research and other areas of agency policy related to the development of products for rare 

disorders. It reviews IND and biologics applications and IDEs to locate the existence of products under 

investigational study that show promise for effectiveness for rare or common diseases but lack 

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commercial sponsorship. It assists sponsors, researchers, and investigators in communicating with agency 

regulatory officials and expediting solutions to problems in obtaining investigational exemptions or premarket approval status. 

C.4.1.4 Office of Pediatric Therapeutics 

OPT coordinates and facilitates all activities of FDA that may have any affect on a pediatric population or 

the practice of pediatrics or may in any other way involve pediatric issues. In an emergency or disaster, 

OPT is responsible for, but not limited to, the following activities: 

• In direct coordination with CDER’s Office of Surveillance and Epidemiology and CDER’s 

Pediatric and Maternal staff (within the Office of New Drugs), and in consultation with CDER’s 

Office of Counterterrorism and Emergency Coordination, review and address all adverse event 

reporting involving drugs used in the pediatric population. 

• In direct coordination with CDRH’s Pediatric Steering Committee and Medical Product 

Surveillance Network (MedSun), address emergency issues related to device use in pediatrics. 

• Provide consultation and coordination on pediatric issues across Centers and with external groups 

and agencies as well as provide representation on groups such as the Public Health Emergency 

Medical Countermeasures Enterprise (PHEMCE) working group. 

C.4.1.5 Advisory Committee Oversight and Management Staff 

The Advisory Committee Oversight and Management Staff (ACOMS) coordinates and facilitates all 

activities of FDA that are related to the establishment and operations of FDA’s Advisory Committees. 

ACOMS is responsible for seeing that all statutory and regulatory requirements and agency policies are 

met when conducting all Advisory Committee meetings, including the screening of members for potential 

financial conflicts of interests. In an emergency or disaster, ACOMS is responsible for the following 

activities, among others: 

• Overseeing the operations of the Centers to obtain the appropriate experts to attend a meeting. 

• Assisting the Centers, if necessary, in procuring a space to hold the meeting. 

• Assisting the Centers, the Regulations Policy Management staff, and the Associate Commissioner 

for Special Medical Programs in publishing public meeting announcements in the Federal 

Register and on the FDA website. 

• Reviewing the financial interests of all individuals invited to participate in the meeting for 

potential financial conflicts of interest. (This is conducted with the assistance of the Centers, the 

Ethics and Integrity staff, and the Associate Commissioner for Special Medical Programs. If any 

members require waivers to participate, ACOMS coordinates disclosure with the Division of 

Freedom of Information and the FDA web staff.) 

C.4.2 Center for Drug Evaluation and Research 

CDER ensures the safety, efficacy, and quality of prescription and over-the-counter drugs, (both brand 

name and generic), and therapeutic biological agents. In an emergency or disaster, CDER is responsible 

for, but not limited to, the following activities: 

• Providing sponsors and other stakeholders with regulatory guidance on the development and use 

of medical countermeasures against CBRNE agents or emerging infectious threats (e.g., severe 

acute respiratory syndrome [SARS] and 2009 H1N1 [swine flu]) when there is no FDA approval 

for the product or proposed indication or when another issue would cause the product to be 

considered adulterated or misbranded. 

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• Facilitating communications with manufacturers on adverse event reporting during an emergency. 

• Collaborating with public health agencies regarding drug and therapeutic biologic product 

stockpile issues, including labeling, appropriate usage, product performance, monitoring, use in 

special populations, product expiry (e.g., the Shelf Life Extension Program), and other evolving 

issues. 

• Processing EUA requests for drugs and therapeutic biologic agents after a public health 

emergency is declared by the Secretary. 

• Providing information to manufacturers regarding compliance with GMP and other relevant 

product quality issues, including extension of product expiry. 

• Assessing the availability, production capacity, and surge capacity of drugs and therapeutic 

biologic products used as countermeasures and providing information on alternative sources of 

critical medical countermeasures in shortage situations. 

• Managing CDER laboratory capabilities. 

• Monitoring media and marketplace for counterfeit or violative drugs (or advertising) of relevance 

to the emergency. 

• Enhanced monitoring and evaluation of adverse events associated with products relevant to the 

emergency. 

• Reviewing public communications related to CDER-regulated products relevant to the 

emergency. 

• Investigating potential root causes of adverse events or product quality issues reported with drug 

and therapeutic biologic products. 

C.4.3 Center for Biologics Evaluation and Research 

CBER ensures the safety, efficacy, and quality of biological products (including blood and blood 

products, vaccines, tissues, and cellular and gene therapies) potentially used as medical countermeasures. 

In an emergency or disaster, CBER is responsible for, but not limited to, the following activities: 

• Providing sponsors and other stakeholders with guidance on the use of biological products as 

medical countermeasures. 

• Using sound science and regulatory expertise to review, evaluate, and license new biological 

products that are safe, effective, and of high-quality standards. 

• Facilitating the availability of safe and effective vaccines, blood and blood products, cells, 

tissues, gene-therapies, devices, and other biological products used to prevent and treat disease 

outbreaks. 

• Collaborating with public health agencies regarding biologics stockpiling issues, including 

labeling, appropriate usage, product performance, monitoring, use in special populations, and 

other evolving issues. 

• Ensuring compliance with current GMP for all regulated manufacturers. 

• Providing regulatory guidance on the use of unapproved products or unapproved uses of 

approved products. 

• Processing EUA requests for biological products after a public health emergency is declared by 

the Secretary. 

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• Providing information regarding manufacturers’ compliance with current GMP and other relevant 

product quality issues. 

• Assisting in the assessment of potentially contaminated biological products. 

• Assessing the availability, production capacity, and surge capacity for biologic products used as 

medical countermeasures and providing information on alternative sources of critical medical 

countermeasures in shortage situations. 

• Managing CBER laboratory testing and lot release capabilities. 

• Communicating information, including risk information, about biological products to industry, 

consumers, SLTT governments, and other stakeholders. 

• Conducting post-marketing surveillance and enforcement activities relating to biological 

products. 

C.4.4 Center for Devices and Radiological Health 

CDRH ensures the safety, efficacy, and quality of medical devices, including IVD and radiological 

products. In an emergency or disaster, CDRH is responsible for, but not limited to, the following 

activities: 

• Processing EUA requests for medical devices (i.e., diagnostics, personal protective equipment 

[PPE], and radiological products) after a public health emergency is declared by the Secretary. 

• Facilitating the development, regulatory review, and production of diagnostic devices, PPE, and 

other devices that may be needed. 

• Conducting post-market surveillance to monitor the safety and effectiveness of devices used, 

including for diagnosis, therapeutics, PPE, and supportive care. 

• Supporting efforts to ensure an adequate supply of devices through cooperative interactions with 

manufacturers and distributors and coordination with the Strategic National Stockpile (SNS) to 

determine the adequacy of stocks and actions required to meet targeted amounts. 

• Using an emergency shortages database to identify and monitor supplies of certain devices that 

are or have the potential to be in demand. 

• Educating device users on how to use devices in a safe and effective manner. 

• Collaborating with public health agencies regarding product stockpile issues, appropriate usage, 

labeling, product performance, monitoring, use in special populations, and other evolving issues. 

• Communicating information, including risk information, about medical devices and radiationemitting products to industry, consumers, SLTT governments, and other stakeholders. 

C.4.5 Center for Tobacco Products 

CTP is responsible for protecting the public’s health by restricting the marketing and access of tobacco 

products to minors; regulating the manufacturing, distribution, and labeling of tobacco products; setting 

tobacco products standards; requiring registration of tobacco manufacturers; and requiring ingredient and 

constituent listings for tobacco products. In an emergency or disaster, CTP is responsible for, but not 

limited to, the following activities: 

• Collaborating with other public health agencies to communicate information regarding tobacco 

product contaminants and to coordinate monitoring for patterns of exposure and illness. 

• Protecting human health through regulatory, legal, and administrative actions. 

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• Participating actively in legal proceedings critical to ensuring compliance with tobacco product 

regulatory standards. 

• Facilitating coordination of tobacco product contamination investigations between FDA and 

SLTT governmental and international entities. 

• Identifying tobacco products that are at elevated risk of contamination and investigating the 

effectiveness of tobacco processing and preparation practices. 

• Developing and disseminating recommendations on measures to prevent the contamination of 

tobacco products. 

• Developing and evaluating analytical methods for identifying tobacco product contaminants. 

• Critically reviewing cases and other regulatory actions sent from the Office of Compliance to 

evaluate whether proposed regulatory action is supported by findings and providing policy and 

technical input to FDA field investigations. 

• Enhanced monitoring and evaluation of adverse events associated with products relevant to the 

emergency. 

• Communicating information, including risk information, about tobacco products to industry, 

consumers, SLTT governments, and other stakeholders. 

• Ordering a stop to the distribution of a tobacco product and recalling a tobacco product relevant 

to the emergency. 

C.5 OFFICE OF GLOBAL REGULATORY OPERATIONS AND POLICY 

OGROP provides executive oversight, strategic leadership, and policy direction to FDA’s domestic and 

international product quality and safety efforts, including global collaboration, global data-sharing, 

development and harmonization of standards, field operations, compliance, and enforcement activities. 

GROP is responsible for the following activities: 

• Drives improvement in FDA’s risk analytics and IT capability, in conjunction with OIMT, to 

enhance FDA’s gathering and use of intelligence in directing its regulatory efforts. 

• Leverages public and private sector third parties to increase FDA’s global knowledge and 

coverage. 

• Convenes and chairs a Global Programs Board consisting of the ACRA, the Directors of all FDA 

product Centers, and other agency leaders to coordinate and enhance FDA’s global efforts. 

• Provides executive leadership and management to all programs in ORA and OIP. 

• Exercises, on behalf of the Commissioner, direct line authority over ORA and OIP. 

• Exercises, on behalf of the Commissioner, all international and ORA-related legal authorities that 

the Commissioner is empowered to exercise under the FD&C Act, as amended; the PHSA; and 

other applicable laws. 

• Represents FDA on matters relating to domestic and international product quality and safety 

efforts in dealings with the Executive Branch, Congress, foreign governments and international 

organizations, and others. 

C.5.1 Office of International Programs 

OIP serves as the agency focal point for international issues. The Office leads, manages, and coordinates 

all of FDA’s international activities to effect an affirmative and strategic public health agenda in the 

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international area; enhance and maximize FDA’s communications and interactions globally, ensuring they 

reflect the agency’s policies and best scientific, legal, and policy thinking; ensure that FDA international 

communications and interaction are consistent with HHS public health objectives; and leverage resources 

with counterpart foreign agencies and international organizations in meeting FDA’s public health 

mission. In an emergency or disaster, OIP is responsible for, but not limited to, the following activities: 

• Managing foreign offices and FDA staff stationed overseas. 

• Coordinating FDA communications with DOS, including U.S. embassies abroad, foreign governments, and international organizations, including foreign embassies and consulates in the United 

States. 

• Exchanging information, and advising on clearing such, with foreign counterparts and other 

international partners to ensure compliance with laws and policies and consistency in responses. 

• Assessing in real-time and in-country, where possible, the conditions and events in those areas 

that might have an impact on the safety, quality, and availability of FDA-regulated products 

exported to the United States. 

• Engaging more proactively and consistently with various international communities in strategic 

regions abroad, including foreign governments, foreign regulatory counterparts, international 

organizations, other U.S. government colleagues working abroad, industry, and the academia/ 

research community; such engagements are intended to help FDA better accomplish its mission 

to collaborate with foreign regulatory authorities to reduce regulatory burdens, harmonize 

regulatory requirements, and establish appropriate reciprocal arrangements in order to promote 

and protect the public health of the United States by obtaining better information to help FDA 

Centers, ORA, and OC make better informed regulatory and other decisions. 

• Managing formal arrangements with foreign governments (e.g., MOUs, mutual recognition 

agreements, exchange of letters, confidentiality commitments) to facilitate rapid and efficient 

information exchange and other cooperation. 

• Facilitating international technical cooperation and assistance activities and capacity building for 

emergency collaborations. 

• Implementing policies and procedures pertaining to emergency international travel and 

processing international travel requests. 

• Facilitating international visitors as needed. 

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C.5.2 Office of Regulatory Affairs 

ORA protects consumers and enhances public health by maximizing compliance of FDA-regulated 

products and minimizing risk associated with those products. ORA is led by the ACRA and is the lead 

Office for all agency field activities. ORA is composed of: Office of Management; Office of 

Communications and Project Management; Office of Criminal Investigation; Office of Training 

Education, and Development; Office of Partnership and Operational Policy; Office of Human and Animal 

Food Operations; Office of Medical Products and Tobacco Operations; Office of Enforcement and Import 

Operations; and Office of Regulatory Science. In an emergency or disaster, ORA’s responsibilities 

include, but are not limited to, the following activities: 

• Coordinating, interpreting, and evaluating the agency’s overall compliance efforts. 

• Providing advice or assistance to the Commissioner and other key officials on regulations and 

compliance-oriented matters related to the incident. 

• Stimulating awareness within the agency of the need for prompt and positive action to ensure 

compliance by regulated industries. 

• Working to ensure an effective and uniform balance between voluntary and regulatory 

compliance and agency responsiveness to consumer needs. 

• Evaluating and coordinating all proposed legal actions to ascertain compliance with incidentrelated regulatory policy and enforcement objectives. 

• Executing direct line authority over all agency field operations; developing, issuing, approving, or 

clearing proposals and instructions affecting field activities; and serving as the central point 

within the agency through which headquarters offices obtain emergency field support services. 

• Providing direction and counsel to Program Directors in the implementation of policies and 

operational guidelines that form the framework for emergency management of agency field 

activities. 

• Developing and/or recommending to the Commissioner emergency policy, programs, and plans 

for activities between the agency and State and local governments. 

• Administering the agency’s overall Federal-State program and policy and coordinating the 

program aspects of agency contracts with State and local counterpart agencies. 

• Evaluating the overall management and capabilities of the agency’s field organization and 

initiating action to improve the management of incident-related field activities. 

• Maintaining liaison with other Federal agencies and providing assistance to States and localities 

in the event of a national disaster or other emergencies. 

• Participating in emergency preparedness and response activities associated with national events, 

natural and man-made disasters, and illness outbreaks/injuries. 

• Coordinating emergency activities with and providing assistance to Department components and 

other external stakeholders in the event of a natural disaster or other emergencies. 

• Providing planning, monitoring, command and coordination of response to national emergencies 

and natural and man-made disasters. 

• Providing programmatic assistance to States and localities in the event of a natural disaster or 

other emergency requiring agency assistance. 

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• Providing oversight of COOP, Safety and local Safety Committee, shelter in place, evacuation 

plans, and natural disaster management. 

C.5.2.1 Office of Management 

The Office of Management (OM) in an emergency or disaster is responsible for, but not limited to, the 

following activities: 

• Advising the ACRA, other ORA senior managers and staff on all areas of management, including 

budget formulation and execution, domestic and foreign travel, financial management, human 

capital management and analysis, ethics, labor relations, safety, and ORA-wide administrative 

operations and facilities management. 

• Overseeing the management of acquisitions and contracts within ORA. 

• Adjusting overall manpower allocations based on incident requirements. 

• Providing advice, counsel, and support on all areas of labor and employee relations. 

• Serving as emergency contact for any issues that occur outside of normal business hours in 

relation to travel. 

C.5.2.2 Office of Communications and Project Management 

The Office of Communications and Project Management (OCPM) provides, maintains and applies 

expertise in coordination of executive and legislative correspondence in support of ORA and FDA 

programs. 

OCPM leads the organization’s communications activities and provides counsel and advice to the ORA 

senior leadership on communications, develops communication strategies and plans to build awareness 

and promote important organization initiatives, and serves as ORA’s focal point for developing a full 

range of editorial, web, and digital media information, materials, and products for the organization’s key 

audiences (consumers, health professionals, industry and employees). 

OCPM provides executive secretariat support to ORA including coordinating executive and legislative 

correspondence and activities including managing and preparing other information such as briefing 

documents or speeches and presentations. 

OCPM is responsible for maintaining FDA’s rapid communication systems that interface with SLTT 

governments, major municipalities, other Federal partners, and national public health/regulatory 

associations. Emergency broadcast messages and 50-State conference calls are two examples of ways that 

information is disseminated to stakeholders. OCPM would work with FDA’s Office of External Affairs to 

coordinate communication and possibly provide staffing for an FDA JIC. 

OCPM may provide personnel in response to an incident to assist in the facilitation of communications 

with State and local partners. Staff members will be made available around the clock to notify and 

provide stakeholders with essential and relevant information. If a formal agency response structure such 

as the IMG is established, OCPM personnel could be assigned to the FDA JIC and perform duties as 

described in Section D.2.1.4.6, “State and Local Communications Group” and Section E.2.2, 

“Communicating with States, Terrorities, Tribal Nations, and Local Governments.” OCPM personnel 

may also be assigned to the General Staff section, such as Operations, as dictated by the incident 

response. 

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C.5.2.3 Office of Criminal Investigations 

The Office of Criminal Investigations (OCI) has primary responsibility for all criminal investigations 

conducted by FDA, including suspected tampering incidents and counterfeit products.25 Additionally, 

OCI is the primary POC for all law enforcement and intelligence issues pertaining to threats or perceived 

threats against FDA-regulated products. OCI has special agents at FDA headquarters and in field offices 

nationwide. OCI also maintains a full-time presence at the National Counterterrorism Center (NCTC), the 

FBI’s National Joint Terrorism Task Force (NJTTF), and DHS. In case of an emergency or disaster, OCI 

is responsible for, but not limited to, the following activities: 

• Advising and assisting the ACRA and other key FDA officials on regulations, criminal, counterterrorism, and intelligence matters. 

• Maintaining classified electronic connectivity with the U.S. Intelligence Community. 

• Directing FDA criminal investigation activities in coordination with other agency components 

and Federal, State, and local law enforcement agencies. 

• Implementing and enforcing agency policy related to criminal investigations. 

• Initiating and conducting criminal investigations under all statutes administered by FDA. 

• Coordinating assignments and activities involving undercover and surveillance personnel located 

in field offices throughout the United States. 

• Ensuring coordination of criminal investigation activities with FDA District offices and 

adherence to the agency’s enforcement priorities through cooperative relationships with field and 

headquarters organizational components. 

• Providing recommendations to OCC on referrals of criminal cases to DOJ, or directly to the 

U.S. Attorney when such direct reference is authorized, for further investigation and/or 

prosecution. 

• Maintaining automated data processing systems to be used for criminal investigations and related 

enforcement matters. 

• Participating in Grand Jury investigations and serving as agents of the Grand Jury. 

C.5.2.4 Office of Training Education and Development 

The Office of Training Education and Development (OTED) helps design, develop, and deliver the 

training, as needed. The office works across all ORA program areas. OTED promotes standardized 

utilization of NIMS according to the FDA NIMS Implementation Plan. 

C.5.2.5 Office of Partnerships and Operational Policy 

The Office of Partnerships and Operational Policy (OPOP) works collaboratively with State partners on 

contract inspection programs and implementation of National Standards, such as the Manufactured Food 

Regulatory Program Standards (MFRPS), as well as cooperative agreements designed to build capability 

and capacity. OPOP also manages the processes necessary to expedite information sharing through the 

issuance of commissions that allow the agency to rapidly share non-public information with State and 

local partners. 

OPOP sponsors and provides programmatic/administrative oversight to several funded cooperative agreement programs and grants. This support strengthens State and local food regulatory agency infrastructure 

25 Any deliberate contamination of an FDA-regulated product is a criminal act under Title 18 of the U.S.C. Section 1365 

(Tampering with Consumer Products). 

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and enhances our partners’ abilities to effectively respond to emergencies/incidents involving food or 

feed. Several of these programs, such as the RRT program, involve OP working in collaboration with 

relevant offices within ORA and OFVM to provide technical guidance and oversight and ensure the 

programs align with agency policy. 

The Office of Strategic Planning and Operational Policy (OSPOP), led by the Assistant Commissioner for 

Compliance Policy (ACCP), has the primary responsibility for advancing ORA’s goal to be strategic and 

to fully integrate risk management and data analysis into all policy and resource utilization decisions by: 

• Serving as the ORA focal point on significant policy issues that affect ORA programs and 

providing coordination, development, and direction on such issues. 

• Serving as the focal point for testimony requests, information disclosure requests (including those 

under 21 CFR 20.85, 21 CFR 20.88, and 21 CFR 20.89), and MOUs. 

• Conducting risk analysis in support of policy development and work planning and to support the 

establishment of priorities for inspection, analysis, and compliance actions. 

• Establishing and maintaining the ORA work plan in alignment with strategic and risk-based 

policy decisions. 

C.5.2.6 Office of Human and Animal Food Operations 

OHAFO coordinates and manages all agency field operations as they relate to the safety of the Nation’s 

domestically produced and imported human and animal foods, and cosmetics. OHAFO provides oversight 

of inspectional operations and compliance actions to protect and advance public health. Any part of 

agency field operations may be called upon to respond to or investigate an emergency. OHAFO develops 

issues, approves, and clears proposals and instructions affecting field activities; and serves as the central 

point within the agency through which headquarters offices obtain field support services. The OHAFO 

offices and their divisions working together with the field handle FDA’s day-to-day and emergency 

operations throughout the 12 Divisions. 

OHAFO coordinates emergency domestic and foreign field investigations. OHAFO represents and makes 

decisions on behalf of the Assistant Commissioner for Operations (ACO) relative to food/feed program 

investigatory operations, including emergency response activities and international affairs. OHAFO 

coordinates and manages all domestic and foreign field investigatory operations related to foods and feed 

regulated by the agency on behalf of the ACO; serves as the central point within the agency through 

which directorates and other headquarters offices obtain field support services for food and feed activities; 

and serves as the agency focal point in coordinating, directing, and assisting the field and headquarters 

offices with investigative food and feed activities. 

OHAFO is composed of Human and Animal Food East, Human and Animal Food West, and State 

Cooperative Programs, as well as the Audit Staff. The Human and Animal Food West consists of the 

Division of Domestic Human and Animal Food Operations and the Domestic Produce Safety branches. 

Human and Animal Food East contains the Division of Foreign Human and Animal Food operations. The 

Division of Foreign Operations is responsible for, but not limited to, security monitoring of shipments of 

food for potential contamination with CBRN agents; identifying shipments with potential terrorist 

connections; and coordinating specific actions against suspect shipments with FDA field personnel, OCI, 

and DHS CBP. 

In an emergency, OHAFO is responsible for, but not limited to, the following activities: 

• Providing national or subject matter experts as necessary in an emergency. 

• Developing compliance policy and recommending policy to the ACRA. 

• Serving as FDA’s focal point for guidance on recall plans and procedures. 

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• Directing and coordinating field activities in support of all food and animal feed facility 

investigations and inspections. 

• Maintaining liaison with other FDA components, industry, and other government agencies to 

ensure proper implementation and completion of assessment and investigation of regulated 

industry, impacted food facilities, and food products. 

• Directing multiple Division or Center food and animal feed inspection and investigation 

activities, which are regulated under the FD&C Act. 

C.5.2.7 Office of Medical Products and Tobacco Operations 

The Office of Medical Products and Tobacco Operations (OMPTO) represents and makes decisions on 

behalf of the ACO relative to medical products and tobacco investigatory operations, including 

emergency response activities and international affairs. OMPTO oversees four offices in the coordination, 

interpretation, and evaluation of the agency’s overall field inspections and compliance efforts in the areas 

of medical products and tobacco. OMPTO provides advice and counsel to the ACRA and other senior 

agency leaders on medical product and tobacco inspection, compliance and other field activities. OMPTO 

coordinates medical product and tobacco operations with the Office of Enforcement and Import 

Operations (OEIO) and the Office of Regulatory Science (ORS), and supports medical products and 

tobacco partnerships and policy through collaboration with the Office of Partnership and Operational and 

Policy (OPOP). OMPTO also oversees and coordinates across programs medical product and tobacco 

related recalls, consumer complaints, and quality system activities and directs and coordinates ORA’s 

emergency preparedness and response activities relative to medical products and tobacco. Each of these 

offices is led by a Director who directs and oversees the operations of the program in ORA Divisions, as 

well as ensures coordination between the field and headquarters program functions. 

OMPTO Offices: 

• Office of Bioresearch Monitoring Operations (OBIMO) 

OBIMO includes two divisions, the Division of Bioresearch Monitoring Operations I and II. The 

Immediate Office of the Director includes the Bioresearch Monitoring Operations Staff. In addition, 

OBIMO includes Postmarketing Adverse Drug Experience (PADE) and Risk Evaluation and Mitigation 

Strategies (REMS) inspections. 

• Office of Pharmaceutical Quality Operations (OPQO) 

OPQO includes the Division of Pharmaceutical Quality Operations I, II, III, and IV; the Division of 

Pharmaceutical Quality Programs; and the Division of Foreign Pharmaceutical Quality Inspections. 

Within each of the four field Divisions, there is a Pharmaceutical Quality Investigations Branch and a 

Pharmaceutical Quality Compliance Branch. (Note: Division 1 includes two Pharmaceutical Quality 

Investigations Branches.) 

• Office of Biological Products Operations (OBPO) 

OBPO includes two field divisions, the Division of Biological Products Operations I and II. Within the 

Immediate Office of the Director are the Biological Products Operations Staff and the Team Biologics 

Staff. 

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• Office of Medical Device and Radiological Health Operations (OMDRHO) 

OMDRHO has three Divisions—the Division of Medical Device and Radiological Health Operations I, 

II, and III. Within each of the three Divisions, there is a Medical Device and Radiological Health 

Investigations Branch, and a Medical Device and Radiological Health Compliance Branch. OMDRHO 

also includes the Foreign Medical Device and Radiological Health Inspection Staff as well as the Medical 

Device and Radiological Health Operations Staff within the Office of the Directors. 

• Tobacco Operations Staff 

The Tobacco Program includes one cadre of geographically dispersed employees. The Tobacco 

Operations Staff provides national and foreign coverage to conduct domestic and foreign inspections of 

tobacco finished product manufacturers, seek compliance and enforcement of the law and regulations 

designated to reduce the health burden of tobacco use, and conduct investigations at public events where 

tobacco product manufacturers distribute free samples. 

In an emergency, OMPTO is responsible for, but not limited to, the following activities: 

• Providing national or subject matter experts as necessary in an emergency. 

• Recommending policy to the ACRA. 

• Developing, recommending, and reviewing guidance on investigatory procedures related to 

medical products and tobacco. 

• Directing and coordinating emergency preparedness and field response related to medical 

products and tobacco. 

• Coordinating multiple Division inspection and investigation activities and serving as liaison with 

other FDA components. 

C.5.2.8 Office of Enforcement and Import Operations 

OEIO advises and provides assistance on regulations and compliance matters that impact policy development, implementation, and long-range goals. OEIO coordinates, interprets, and evaluates FDA’s overall 

compliance efforts within the United States and internationally. This Office acts as liaison with other 

Federal agencies and international organizations and governments on compliance matters, evaluates 

proposed legal actions, coordinates these actions with OO and OCC, and handles appeals of proposed 

compliance actions that are disapproved by the Centers or OCC. OEIO and has responsibilities, which 

include, but are not limited to, monitoring and controlling import and export activity associated with 

implicated product(s), countries, foreign manufacturers and shippers, filers, importers, and/or consignees 

and coordinating surveillance of imported products with the U.S. Customs and Border Protection (CBP). 

In an emergency, OEIO is responsible for, but not limited to, the following activities: 

• Serving as FDA’s focal point for guidance on recall plans and procedures. 

• Directing and coordinating field activities in support of all product recalls and import operations 

and import-related issues. 

• Maintaining liaison with other FDA components, industry, and other government agencies to 

ensure proper implementation and completion of recall plans and activities. 

• Coordinating Center enforcement actions against individuals and companies that violate the 

FD&C Act. 

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• Identifying unapproved, fraudulent, harmful, or ineffective FDA-regulated health products and 

initiating investigations, advisory or enforcement actions, and outreach activities when 

appropriate. 

C.5.2.9 Office of Regulatory Science 

ORS reports directly to the ACRA and oversees scientific operations related to human and animal food 

programs and medical products, and tobacco programs including emergency response activities and 

international affairs. ORS is ORA’s headquarters scientific office that oversees and manages technical 

and scientific staff related to human and animal food and medical and tobacco products regulated by the 

agency. 

In an emergency, ORS is responsible for, but not limited to, the following activities: 

• Preparing ORA laboratory response and monitoring surveillance databases. 

• Activating the Food Emergency Response Network (FERN). 

• Developing, recommending, and reviewing guidance on laboratory procedures. 

• Coordinating ORA laboratory response. 

C.5.2.9.1 Forensic Chemistry Center 

The Forensic Chemistry Center (FCC), located in Cincinnati, OH, is part of FDA’s ORA and reports to 

the Office of Regulatory Science. Its personnel perform forensic analysis of evidence and applied 

research on a daily basis, regularly providing expert technical support and associated testimony for FDA’s 

OCI as its primary laboratory. The laboratory also provides forensic analyses of samples in support of all 

of FDA’s Centers as well as other domestic and foreign public health partners. The FCC plays a major 

role in many programs initiated by FDA, particularly anti-counterfeiting, anti-tampering, and 

counterterrorism. 

C.5.2.9.2 Winchester Engineering and Analytical Center 

The Winchester Engineering and Analytical Center (WEAC) located in Winchester, MA, reports directly 

to ORA’s Office of Regulatory Science (ORS). WEAC holds ORA’s U.S. Nuclear Regulatory 

Commission (NRC) Materials License, and its personnel perform radionuclide-related laboratory research 

and analyses on a day-to-day basis. WEAC serves as FDA’s sole radiation analytical laboratory and 

provides radioanalytical analyses for samples. WEAC is also ORA’s only device-specialized laboratory 

and performs testing on various medical devices. 

ORA’s Radiation Safety Officer (RSO) is stationed at WEAC. The ORA RSO who reports to ORS’s 

Office of Business and Safety Operations (OBSO) leads responsibilities for the radiation safety program 

for ORA laboratories and field offices. 

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D. DIRECTION, CONTROL, AND COORDINATION 

FDA organizes emergency response operations in accordance with the concepts, principles, and terminology of the ICS, as defined within NIMS.26 Incident Command and subordinate Planning, Operations, 

Logistics, and Finance/Administration functions lay the foundation for the agency’s implementation of 

the ICS during an all-hazards response, at headquarters and field levels, and across geographic divides. 

The inherent design of this system enables rapid, scalable, and flexible agency-wide emergency 

management activities. Figure D-1 and Figure D-2 depict FDA’s emergency response command and 

coordinating structures and are followed by a brief description of each designated ICS position.27 

This section of the FDA EOP describes FDA’s application of the ICS. It is important to remember that 

two key principles of ICS are its scalability and flexibility. Emergency and disaster situations can be 

unpredictable and dynamic. To accommodate this, the ICS organizational structure was developed to be 

expanded easily from a very small size for routine operations to a larger organization capable of handling 

catastrophic events. Therefore, FDA’s organizational structure, while containing certain core positions, 

must be tailored to the specific requirements of each incident. Refer to the FDA EOP Incident Annexes 

for detailed information on FDA organizational constructs for individual hazards. 

For individual Center/Office emergency response organizations within this basic structure, refer to each 

organizational component’s EOP and/or SOPs. 

D.1 FIELD INCIDENT COMMAND 

The use of Incident Command in the field is achieved through the establishment of an IMT at appropriate 

field location(s) to determine field incident response objectives and execute the tactical strategy for 

responding to an incident per the agency’s priorities. The IMT is led by a field IC(s) who operates under 

the authority of ORA Management via a delegation of authority during an activation and is responsible 

for the overall management of the incident at the field level. ORA Management may be represented by a 

District Director (DD) or a Program Executive Group (PEG) consisting of the DD and the relevant 

Program Division Directors) (PDDs) of the programs impacted by the incident. Depending on the scope 

and scale of the incident, the IMT will coordinate with a headquarters (HQ) coordinating structure such as 

an Incident Management Group (IMG) (see Section B.2.2.3.3, “Headquarters Response”), the 

Coordinated Outbreak and Response Evaluation Network (CORE), or OEO. An IMG and IMT may or 

may not mobilize and/or demobilize concurrently. 

An IMT functions in accordance with ICS principles; it is scalable and flexible based on the complexity 

of the incident. The IC may establish Operations, Planning, Logistics, and/or Finance/Administration 

Sections with subordinate postions, as needed, to manage the agency’s on-the-ground response. Figure 

D-1 is an example of how an IMT may be organized. 

26 For more information on the ICS, refer to www.training.fema.gov/EMIWeb/IS/ICSResource/index.htm. 27 Depending on the level and complexity of incident requirements, certain agency ICS functions and positions may not be 

necessary. Refer to the FDA EOP Incident Annexes for specific personnel assignments. 

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Operations 

Section 

Liaison 

Officer 

Groups/ 

Divisions Units 

Program Executive 

Group 

Incident Commander 

Safety 

Officer 

Public Information 

Officer 

Units 

Planning 

Section 

Technical 

Specialists 

Logistics 

Section 

Units 

Finance/Adm in 

Section 

FDA Emergency Operations Plan 

Figure D-1. FDA Field Incident Management Team 

The IC will direct the field personnel to conduct tactical operations to determine the cause/source of the 

emergency and/or resolve the emergency, based on the IAP they develop and, in some cases, information, 

analysis, and direction received from the IMG. Depending on the nature and stage of the emergency, 

these operations might includefacility or field inspections, sample collection, laboratory analysis, 

traceback and traceforward investigations, import-related activities, recall efforts, and enforcement 

actions. In conducting these operations, Incident Command might interact with regulated entities, FDA 

headquarters, State and local officials, other Federal agencies, foreign regulatory authorities, and 

regional/local news media.

28 

When appropriate, the FDA field IC may be part of a UC with multiple ICs representing different 

agencies (e.g., FDA and a State health agency) or jurisdictions (e.g., Federal, State, local). The field IC 

may also be requested to provide a Liaison Officer (LNO) to a Regional or local UC. 

28 The IMG Public Information Officer coordinates development and release of agency public health and consumer protection 

messages for use with the public, media, and/or other agencies with approval from FDA headquarters and HHS. 

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D.1.1 Command Staff 

The command staff consists of the Liaison Officer, Safety Officer and Public Information Officer. When 

assigned, they report directly to the Incident Commander and provide information, safety, and liaison 

services in support of the incident.29 

D.1.1.1 Incident Commander 

The IC is responsible for the overall management of the incident and for providing direction and guidance 

to the Command and General Staffs. The IC assigns the Operations, Planning, Logistics and 

Finance/Administration Section chiefs as needed. When these positions are not filled, the IC is 

responsible for accomplishing or managing these aspects of the incident organization. The IC must assess 

the overall requirements of the incident and determine the best course of action for the incident 

management team to pursue. The key responsibilities of the IC are to establish priorities, determine 

incident objectives and direction for managing the incident, and to approve and authorize the 

implementation of the IAP. 

D.1.1.2 Liaison Officer 

For incidents that may be multijurisdictional, a LNO may be assigned as the point of contact for 

supporting agencies. The LNO’s primary function is to establish and coordinate interagency contacts and 

to keep the agencies informed of the incident’s status. 

D.1.1.3 Safety Officer 

The Safety Officer monitors incident operations and advises the IC on all matters relating to operational 

safety. The SO has the authority to immediately alter, delay, suspend, or terminate any and all operations 

that pose a danger to the life and health of personnel. 

D.1.1.4 Public Information Officer 

FDA has specific policies for handling public information. The IMT PIO works with the appropriate FDA 

organizational components to coordinate message development and dissemination as applicable. The IMT 

PIO maintains an accurate account of information about the incident to inform and update management, 

stakeholders, and the IMG PIO or JIC (if activated). 

D.1.2 General Staff29 

The General Staff is responsible for the major functional aspects of the IMT. The General Staff consists 

of Operations, Planning, Logistics, and Finance/Administration Sections. Each Section is led by a Section 

Chief who reports directly to the IC. 

D.1.2.1 Operations Section 

The Operations Section is responsible for managing field level tactical operations to meet the objectives 

set forth by the IC. Operations can be organized and executed by Strike Teams, Task Forces, Single 

Resources, Divisions, Groups, and/or Branches depending on the size, scope, and complexity of the 

incident. 

29 For a full description of IMT Command and General Staff responsibilities, refer to FDA’s Incident Management Handbook 

(IMH). 

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D.1.2.2 Planning Section 

The Planning Section is responsible for collecting, evaluating, and disseminating information pertaining 

to the incident. This Section documents and maintains information on the current and forecasted situation, 

as well as the status of FDA resources assigned to the incident. The Planning Section prepares the IAP, 

develops SitReps, organizes meetings and teleconferences, and maintains the status of resources assigned 

to the incident. The Section may include up to four primary units: Resouces, Situation, Demobilization, 

and Documentation. 

D.1.2.3 Logistics Section 

The Logistics Section is responsible for all service and support requirements of the team. This Section 

provides facilities, transportation, security, supplies, communications, and IT support services to field 

personnel as required. 

D.1.2.4 Finance/Administration Section 

The Finance/Administration Section is responsible for all financial considerations associated with an 

incident. This Section verifies time, approves procurements, manages compensation/claims, and tracks 

the overall cost of the response. 

D.2 HEADQUARTERS INCIDENT COORDINATION 

When necessary, headquarters will activate an incident coordination structure referred to as the IMG. 

(See Section B.2.2.3.3, “FDA Headquarters Response,” regarding which FDA officials have the authority 

to activate an IMG.) The IMG facilitates the integration of all FDA assets responding to an incident as 

required by the NRF. As the agency’s coordination structure, the IMG serves as the focal point for 

headquarters-level strategic coordination and provides recommendations for actions to take and priorities 

for the use of resources in support of incident management. The IMG has general oversight of the 

application of FDA resources in coordination with existing agency and interagency resource management. 

It provides strategic situational awareness and decision support across the full spectrum of incident 

management domains—prevention, protection, mitigation, response, and recovery. 

Because of FDA’s unique organizational structure, which involves emergency response resources and 

capabilities from multiple Centers and Offices, the FDA IMG coordinates unified agency responses to 

incidents, which is somewhat similar to an Area Command. The goal of the IMG is to facilitate a comprehensive, integrated, and coordinated approach to domestic and international incident management. 

For its coordination structure, FDA may adapt the headquarters-based Incident Command structure to 

address the scope of the incident, which at times acts as a hybrid coordination and command structure, as 

in the case of a pandemic influenza response. Figure D-2 is an example of how an IMG may be 

organized. This structure is flexible, and parts of it may be expanded or contracted as the emergency 

evolves. 

July 2019 63 FDA EOP Section D 
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Incident 

Management Team 

Operations 

Section 

Liaison 

Officers 

.... 

* as necessary 

Commissioner 

(or delegated authority) 

Agency Executive 

Group 

Agency Incident Coordinator 

Safety 

Officer 

Public Information 

Officer/Joint 

Information Center 

Logistics 

Section 

Units 

F1nance/Adm1n 

Section* 

FDA Emergency Operations Plan 

Figure D-2. FDA Headquarters Incident Management Group 

The FDA OEM may request that the FDA product Centers and OC Offices provide staff to support 

emergency operations based on the subject matter expertise required. FDA product Centers and OC 

Office staff may hold any position in the IMG (Command or General Staff) as requested by the AIC. 

D.2.1 Command Staff 

D.2.1.1 Agency Incident Coordinator 

The AIC has overall delegated authority and responsibility for agency-wide emergency operations and 

ensures information review for appropriate action, including referral to the Commissioner or AEG for 

executive-level direction or to headquarters or field units for any necessary follow-up. In addition, the 

AIC serves as the central point for headquarters coordination regarding issues and decisions involving 

FDA organizational components, the HHS SOC, other HHS OPDIVs and Staff Divisions, applicable 

Federal and State agencies, and foreign governments. The AIC is responsible for assigning the 

Operations, Planning, and other Section chiefs or, when these additional positions are not required, 

personally accomplishing or managing these aspects of the incident organization.

30 If an IMG is activated, 

the AIC and designated support staff will be physically located in the EOC, unless weather, building 

emergencies, or some other unforeseen circumstance prevents it. 

Until the Commissioner; Deputy Commissioner; or other designated senior agency official such as the 

Director, OSEM, appoints an AIC for any emergency or disaster involving multiple FDA organizational 

components and/or requiring external coordination, the OEM/OEO Director will serve as the AIC and 

will report to the Commissioner or his/her authorized designee. He/she is responsible for coordinating and 

providing situational awareness on all incident activities performed at the headquarters and field levels. 

The AIC responsibilities are to: 

• Develop broad objectives for agency-wide emergency response operations. 

• Coordinate with engaged headquarters and field Centers/Offices in the development of individual 

incident objectives and strategies. 

30 Refer to the FDA Incident Management Handbook for the specific time-phased emergency actions of the AIC. 

July 2019 64 FDA EOP Section D 
 

 

 

 

 

 

 

 

 

 

 

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• Allocate/reallocate agency resources as the established priorities change. 

• Ensure effective communications between headquarters and field organizational components. 

• Ensure overarching incident management objectives are met and do not conflict with each other 

or with agency policies. 

• Identify and report on critical agency resource needs. 

• Facilitate FDA’s transition to full recovery operations. 

• Establish communications channels with any field Incident Command structure (e.g., IMT). 

• Ensure that a formal incident After Action Review is completed and recorded after the incident 

stabilizes. 

The FDA Command Staff of the IMG and possibly in the field includes a Public Information Officer 

(PIO) and LNOs who report directly to the AIC. Additional Command Staff positions may be required, 

depending on the nature, scope, complexity, and number of locations of the incident(s), or according to 

specific requirements established by the AIC. At headquarters, a Legal Advisor may be assigned to the 

Command Staff as a Technical Specialist or to the Planning Section to advise the AIC on legal matters, 

such as emergency proclamations, and the legality of EUAs (legal rights and restrictions pertaining to 

product use). Similarly, a Medical Advisor or Science Advisor may be designated and assigned directly to 

the Command Staff to provide advice and recommendations to the AIC in the context of incidents 

involving medical and public health response or medical countermeasures considerations. Command Staff 

positions are discussed in the paragraphs that follow.

31 

D.2.1.2 Liaison Officers 

LNOs interface or report from external Federal agencies (i.e., HHS, CDC, USDA, EPA, DHS, FBI, or 

DOS) as representation to FDA during an incident. These Command Staff members serve as direct links 

between the AIC and their agency, providing input on their agencies’ policies, activities, concerns, 

resource availability, and other incident-related matters. These LNOs are responsible for maintaining an 

awareness of the situation, reporting relevant information, and facilitating communication regarding FDA 

requests for assistance from the LNO’s agency. Staff assigned to these positions must have the authority 

to speak for their parent agencies or organizations on all matters, following appropriate consultations with 

their agency leadership. Assistants and personnel from other agencies or organizations, public or private, 

involved in incident management activities may be assigned to the LNO to facilitate coordination. There 

may also be a need for a liaison with industry. 

D.2.1.3 Safety Officer 

The Safety Officer monitors incident operations and advises the AIC on all matters relating to operational 

safety, including the health and safety of emergency responder personnel. The Safety Officer is, in turn, 

responsible to the AIC for the systems and procedures necessary to ensure ongoing assessment of 

hazardous environments, including the incident safety plan, coordination of multiagency safety efforts, 

and implementation of measures to promote emergency responder safety as well as the general safety of 

incident operations. The Safety Officer has immediate authority to stop and/or prevent unsafe acts during 

incident operations. It is important to note that the agencies, organizations, or jurisdictions that contribute 

to joint safety management efforts do not lose their individual identities or responsibility for their own 

programs, policies, and personnel. Rather, each contributes to the overall effort to protect all responder 

personnel involved in incident operations. 

31 Refer to the FDA Incident Management Handbook for specific time-phased emergency actions of the Command Staff. 

July 2019 65 FDA EOP Section D 
 

 

 

 

 

 

 

 

 

 

 

 

 

Ii 

Agency Executive 

Group 

Agency Incident 

Coordinator 

IMG Public 

Information Officer 

PIO obtains clearance from 

AEG for public messages 

EOC 

Agency Spokespersons 

• Speaks from JIC cleared 

material and messages 

JIC 

JIC is a physical location used to coordinate: 

• Critical emergency information • Recommendations to the PIO for 

• Crisis communications AEG public messaging clearance 

• Public affairs functions • Representatives from OC Office 

• Communications with stakeholders and Centers 

IMT PIO 

• Represents and advises Incident Commander 

• Manages regional and local media and public inquiries 

• Works closely with JIC or IMG PIO to ensure authorized and consistent public messages 

FDA Emergency Operations Plan 

D.2.1.4 Public Information Officer 

The FDA JIC (see Section D.2.1.4.1) will be led by the IMG PIO and Deputy IMG PIO. The IMG PIO 

works with the appropriate FDA organizational components such as the product Centers and OEA to 

coordinate message development and dissemination.

32 FDA has specific policies for handling public 

information. The IMG PIO major responsibilities generally apply to any type of incident involving an 

FDA-regulated product. Additional staff may be tasked to support the IMG PIO. 

The FDA IMG PIO maintains regular communications with OEA as well as other Center and Office 

(i.e., OIP) public affairs and communications staffs and informs the IMG of any associated public 

information activities, concerns, and information requests. The IMG PIO is not necessarily the incident 

spokesperson, but the coordinator of message development and dissemination. 

In addition to the headquarters role, there may be one or more field IMT PIOs. The IMT PIO maintains an 

accurate account of information about the incident to inform and update the IMG PIO. For FDA incidents, 

the on-scene PIO must coordinate all information and media interactions with the IMG PIO. 

The relationship between these entities is illustrated in Figure D-3. Proper media clearance channels 

through HHS are not superseded by the figure below. Dependent on the incident’s strategic 

communication objectives, the IMG PIO’s responsibilities may be shared among other individuals and 

Offices in a FDA JIC as part of a larger Joint Information System (JIS). 

Figure D-3. FDA’s Joint Information System (JIS) 33 

The FDA JIC staffing composition and structure are determined by the various methods FDA uses to 

reach its multiple audiences. The following structure (Figure D-4) depicts the groups and liaisons that 

could be part of a FDA JIC. 

32 For more information, refer to the FDA Joint Information Center Handbook. 33 Joint Information System: Integrates incident information and public affairs into a cohesive organization designed to provide 

consistent, coordinated, accurate, accessible, timely, and complete information during crisis or incident operations. The 

mission of the JIS is to provide a structure and system for developing and delivering coordinated interagency messages; 

developing, recommending, and executing public information plans and strategies on behalf of the IC; advising the IC 

concerning public affairs issues that could affect a response effort; and controlling rumors and inaccurate information that 

could undermine public confidence in the emergency response effort. 

July 2019 66 FDA EOP Section D 
 

 

 

 

 

 

 

 

 

 

 

Ii 

Media Affairs 

Group 

(OEAOffice of Media Affairs) 

Web and Digital 

Media Group 

(OEA Web and Digital 

Media Staff) 

Stakeholder 

Outreach Group 

(OEA Office of Health and 

Constituent Affairs) 

State and Local 

Officials 

Group 

(ORA Office of Partnerships) ~ 

FDA Emergency Operations Plan 

Figure D-4. Possible Structure of FDA Joint Information Center 

The majority of incidents to which FDA responds do not call for all eight reporting elements depicted in 

the FDA JIC figure above. The four groups are the elements most likely to be activated. When span of 

control becomes an issue for the IMG PIO, the IMG Deputy PIO may be assigned to manage the FDA 

JIC staff. 

D.2.1.4.1 FDA Joint Information Center 

FDA’s JIC is a physical collocated group of representatives from the FDA Offices and Centers involved 

in the event who are designated to handle public information needs. The FDA JIC monitors and assesses 

the need for and effectiveness of public messaging regarding the incident and FDA’s response. The FDA 

IMG PIO works with the FDA JIC to provide a public messaging strategy for the incident. The AIC and 

AEG (see Section B.2.2.3.3 “FDA Heaquarters Response”) approve the strategy and messages. Target 

audiences include consumers, industry, Congress, and health professionals. 

The FDA JIC will be established in proximity to FDA’s EOC to provide a base of operation for the public 

information function to facilitate timely communication among its members. If a physical location within 

FDA facilities is not possible, the FDA JIC may function as a group using electronic communications 

such as conference calls, emails, and instant messaging. The FDA JIC will be activated when the IMG 

PIO and the AIC deem it will benefit the incident objectives to have the communication strategies 

coordinated in the same physical location or by electronic communications. 

An interagency unified JIC may be established at the national level to ensure consistent and accurate 

public messages are issued when multiple agencies and organizations are involved in a response. An 

interagency JIC is a collocated or collaborating group of representatives designated by their agencies and 

organizations to participate in the joint development, coordination, and delivery of public messages. An 

interagency JIC ensures the coordinated release of information under two NRF annexes—ESF #15 – 

External Affairs Annex and the Public Affairs Support Annex. If FDA is asked to participate in an 

interagency JIC, the IMG PIO will identify someone to serve as FDA’s representative on the interagency 

JIC. This representative will serve as a liaison to FDA’s JIC and report to the IMG PIO. 

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D.2.1.4.2 Media Relations Group 

During an incident response, the Associate Commissioner for External Affairs, in conjunction with the 

Director of OEA’s OMA, will appoint an experienced staff media officer to lead the FDA JIC’s Media 

Relations Group with responsibility for managing the news media outreach activities and message 

development of the FDA JIC. 

D.2.1.4.3 Web and Digital Media Group 

During an incident response, the Associate Commissioner for External Affairs, in consultation with the 

Director of OEA’s Web and Digital Media staff, will appoint a lead for the FDA JIC Web Group to 

manage the agency’s web and digital communications related to the incident, including web postings 

(e.g., portals, response questions and answers [Q&As]), FDA Voice blog, Twitter, Facebook, Flickr, 

widgets, searchable databases (for extensive recalls), postings on www.foodsafety.gov, or other 

government-wide websites such as www.recalls.gov. 

D.2.1.4.4 Stakeholder Outreach Group 

During an incident response, the Associate Commissioner for External Affairs, in conjunction with the 

Director of OEA’s Office of Health and Constituent Affairs (OHCA), will appoint a lead for the 

Stakeholder Outreach Group to manage outreach to and message development for external stakeholders34, 

as part of the FDA JIC. As needed, representatives from other OC Offices or Centers will be added to the 

group. For example, OEA’s Office of Communications will frequently be involved in advising on 

consumer messages and preparing external communications materials such as Consumer Updates, FDA 

Voice blogs, and FDA Fact Sheets. 

D.2.1.4.5 State and Local Officials Group 

During an incident response, the Director of ORA’s OP, in consultation with the Associate Commissioner 

for External Affairs, will appoint a lead for the State and Local Officials Group to manage the outreach 

and two-way communications with State and local officials as part of the FDA JIC. 

D.2.1.4.6 Call Centers Liaison 

During an incident response, the Associate Commissioner for External Affairs, in consultation with 

Directors of OEM and Center/Office communications offices, will appoint a Call Centers Liaison to the 

FDA JIC to ensure that up-to-date messages related to the incident and response are available to the 

general public and industry through the relevant agency Call Centers (if needed). 

D.2.1.4.7 Congressional Liaison 

During an incident response, the Associate Commissioner for Legislation, in conjunction with the 

Associate Commissioner for External Affairs, will appoint a Congressional Liaison to manage 

communications with congressional members as part of the responsibilities of the FDA JIC (if needed). 

D.2.1.4.8 International Liaison to External Unified JIC 

If an incident includes an international dimension, the Associate Commissioner for International 

Programs, in conjunction with the Associate Commissioner for External Affairs, will appoint an 

International Liaison who will manage communications with international partners as part of the FDA JIC 

(if needed). 

34 For FDA, the term stakeholder includes industry and industry associations, consumers and patients, health professionals, 

scientists and researchers, and the general public, among others. 

July 2019 68 FDA EOP Section D 
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Operations 

Section Chief 

Divisions and 

Groups 

Center Emergency 

Coordinators 

(as necessary) 

FDA Emergency Operations Plan 

D.2.1.4.9 Internal Communications Liaison 

During an incident response, the Associate Commissioner for External Affairs, in consultation with 

OEA’s Assistant Commissioner for Communications and the Associate Commissioner for Operations, 

will appoint an Internal Communications Liaison to ensure that FDA employees receive up-to-date 

information about the incident and the agency’s response efforts (if needed). 

D.2.2 General Staff 

The General Staff is responsible for the functional aspects of any ICS. The General Staff consists of 

Operations, Planning, Logistics, and Finance/Administration Sections composed of designated FDA 

headquarters and field emergency staff. The responsibilities associated with these Sections are discussed 

more fully below.35 

D.2.2.1 Operations Section 

The Operations Section is responsible for coordinating all agency activities in response to an identified 

threat or hazard, establishing an agency-wide common operating picture, and restoring normal operations. 

This Section may be composed of a Section Chief, Divisions, and Groups (each led by a designated 

Supervisor). Figure D-5 depicts FDA’s Operations Section. 

Figure D-5. Operations Section Organizational Elements 

Expansion or contraction of the Operations Section may vary according to numerous considerations and 

operational factors associated with an incident. In some cases, a functional approach may be used. In 

other cases, the organizational structure will be determined by geographical or Center/Office jurisdictional boundaries or a mix of functional and geographical considerations may be appropriate. The AIC 

will determine the appropriate organizational structure, based on previous experience and the specific 

circumstances of the incident at hand. 

D.2.2.1.1 Operations Section Chief 

Until the AIC appoints an Operations Section Chief, an emergency coordinator from OEM/OEO 

designated by the AIC will fulfill the role. The Operations Section Chief is responsible to the AIC for 

managing incident activities required to implement the agency IAP, as well as providing the AIC with 

regular status reports. The Operations Section Chief monitors initial and ongoing headquarters and field 

response activities, advises and assists the AIC on appropriate courses of action, responds to requests for 

assistance from internal organizational components and external partners, and coordinates regular status/ 

situation updates throughout the lifecycle of the incident. He/she has direct involvement in providing 

input to and implementing the IAP and serves as the focal point for intra- and interagency coordination 

and communications. The Operations Section Chief is collocated with the AIC at the FDA EOC. 

35 Refer to the FDA Incident Management Handbook for specific time-phased emergency actions of the General Staff. 

July 2019 69 FDA EOP Section D 
 

 

 

 

 

 

 

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D.2.2.1.2 Divisions and Groups 

Divisions may be established within the Operations Section to assign responsibility based on the physical/ 

geographic location(s) of an emergency or major disaster. Groups may also be assembled to combine 

similar activities being addressed for a single or multiple incident(s). For example, geographic Divisions 

may be created in support of a single or multiple responding FDA Districts, or to coordinate operations 

when a foreign country is involved. Functional Groups, on the other hand, may include personnel 

addressing investigations, enforcement, traceback, laboratory analysis, and other issues, depending on the 

nature and scope of the incident. Divisions and Groups are staffed by representatives from the OC, ORA, 

and Centers and may change both in designation and composition based on the specific incident 

requirements. They typically operate from the FDA EOC or alternate workspace locations as needed. A 

Supervisor shall be designated for each to oversee operations and provide status/situation reporting to the 

Operations Section Chief.36 

D.2.2.1.3 Center/Office Emergency Coordinators 

FDA product Centers and OC Offices shall designate a senior staff member and alternates to serve as the 

Center/Office Emergency Coordinator. The Center/Office Emergency Coordinator is responsible for 

advising the Center/Office Director of actions needed to address an incident, supervising and reporting on 

the Center’s/Office’s emergency response activities, triaging information requests received from the IMG 

Command or General Staff to appropriate Center/Office SMEs, and channeling necessary 

communications between the Center and other FDA organizational components (e.g., other 

Centers/Offices and the FDA EOC). 

He/she serves as the focal point for internal and external Center/Office communications during emergencies and disasters and is responsible for providing regular status reports as requested. During some 

large-scale or catastrophic incidents, Center/Office emergency coordinators may be directed to report to 

the FDA EOC to support initial or prolonged emergency operations. 

D.2.2.2 Planning Section 

The Planning Section is responsible for collecting, evaluating, and disseminating information pertaining 

to the incident. This Section documents and maintains information on the current and forecasted situation, 

as well as the status of FDA resources assigned to the incident. The Planning Section prepares the IMG 

IAP, compiles and consolidates FDA-wide SitReps, and organizes status/situation reporting meetings and 

teleconferences. As shown in Figure D-6, the Planning Section, led by a Section Chief, may include 

subordinate units (i.e., Resources, Situation, Documentation, and/or Demobilization) and Technical 

Specialists from FDA headquarters Centers and Offices to assist in evaluating the situation and forecasting requirements for additional agency resource support. 

36 Refer to the Incident Annexes of this EOP for detailed information on the functional groups established within the Operations 

Section to address specific incident requirements. 

July 2019 70 FDA EOP Section D 
 

 

 

 

 

 

 

 

 

 

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Resource 

Unit 

Situation 

Unit 

Units 

Planning 

Section Chief 

Technical 

Specialists 

Documentation Demobilization Intelligence 

Un~ Un~ Unit 

FDA Emergency Operations Plan 

Figure D-6. Planning Section Organizational Elements 

D.2.2.2.1 Planning Section Chief 

Until the AIC appoints a Planning Section Chief, an emergency coordinator from OEM/OEO 

designated by the AIC will fulfill the role. This individual oversees all data gathering and 

analysis activities regarding incident operations and assigned resources, coordinates planning 

and status/situation reporting meetings, and assists in the preparation and consolidation of the 

agency-level IAP. The Planning Section Chief is collocated with the AIC and Operations Section 

Chief at the FDA EOC. The Planning Section Chief is responsible for supervising the 

preparation and distribution of SitReps. See Section E.1.2, “Situation Reporting,” for additional 

information on SitReps. 

D.2.2.2.2 Units 

The Planning Section may have up to five primary units (described below) that support the Section 

Chief.37 Generally composed of headquarters staff, each unit operates from the FDA EOC unless 

otherwise directed. 

• Resource Unit. Makes certain that FDA resources (i.e., personnel, teams, and equipment) are 

available for assignment to or deployment during an incident. During IMG activations, the 

Planning Section Chief will generally activate a Status/Check-In Recorder under the Resource 

Unit, who will maintain an accurate record of all personnel reporting to and demobilizing from 

the IMG. 

• Situation Unit. Collects, processes, analyzes, and organizes ongoing situation information; 

prepares situation summaries; and develops projections and forecasts of future events related to 

the incident. 

• Documentation Unit. Maintains a record of the major steps taken to resolve the incident and files 

incident records for legal, analytical, and historical purposes. 

• Demobilization Unit. Develops an Incident Demobilization Plan that includes specific 

instructions for agency resources to return to normal operations. 

• Intelligence Unit. The intelligence function can be used to provide information that leads to the 

determination of cause, projection of spread, assessment of impact, or selection of 

countermeasures for a given incident (regardless of the source) such as public health events and 

disease outbreaks of unknown origins. In the later context, intelligence includes not only national 

37 The incident itself will primarily dictate the need for Planning Section units. Refer to the Incident Annexes of this EOP for 

detailed information on the types and composition of units needed for each situation. 

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security or other types of classified information, but also other operational information such as 

risk assessments and medical intelligence (i.e., surveillance). It must be analyzed and shared with 

appropriate personnel, designated by the Agency Incident Coordinator (AIC), to assist in decision 

making. 

D.2.2.2.3 Technical Specialists 

Technical Specialists have specialized skills and are activated only when needed.38 Technical Specialists 

are most often assigned to the specific area (e.g., Section, Branch, Unit, Division) where their services are 

needed and performed. These headquarters personnel may be assigned to the Planning Section, but may 

support any ICS function, including the Command Staff working directly for the AIC. Technical 

Specialists normally perform the same duties during an incident that they perform in their everyday jobs 

and operate from normal locations unless directed to report to the FDA EOC by the Planning Section 

Chief or AIC. 

The following are examples of the kinds of specialized expertise that may be required during an 

emergency or disaster: 

• Geographic Information Specialist. Collects, analyses, and disseminates location-based 

information to support the objectives of the IMG. Common roles include identifying areas 

affected by the incident and locating FDA assets and regulated industry. The Geographic 

Information Specialist produces maps and data products for use in situational awareness, 

operations management, and reporting. Requests for maps should be submitted to the Geographic 

Information Specialist. The Geographic Information Specialist position is normally located under 

the Planning Section but may assist other Sections of the headquarters IMG and field IMT as 

necessary. 

• Legal Specialist. Usually is a Manager or other Senior Attorney in the OCC or in OCET who 

provides advice on issues that involve application or interpretation of relevant statutes and 

regulations. For example, in some situations involving possibly adulterated food, the Legal 

Specialist might advise the IMG on the legal aspects of requesting records from food facilities 

under Section 414 of the FD&C Act. As another example, the Legal Specialist also reviews any 

EUA requests that might be submitted to the agency regarding medical countermeasures needed 

to protect responders and the public. In addition, the Legal Specialist considers legal issues in 

media releases and other documents prepared for the incident response. 

• Science/Medical Specialist. Advises on scientific and/or medical issues that arise during the 

response. The Science/Medical Specialist will have expertise in the scientific and/or medical 

aspects of the incident and will typically be a staff member from the lead Center(s) for the 

emergency. 

• International Specialist. Typically a staff member from OIP who advises on international issues 

that arise during the response. 

• Product Interface Specialist. A key Center SME, depending on the medical products necessary 

for the response, and an OCET staff member may advise on medical countermeasure issues that 

arise during the response. An OCET staff member may lead the coordination of cross-agency 

activities related to medical countermeasure use and availability activities. 

As needed, other Technical Specialists with expert knowledge in the following areas may be required: 

• Human/veterinary medicine • Pharmacology • Statistics 

38 The incident itself will primarily dictate the need for Technical Specialists. Refer to the FDA EOP Incident Annexes for 

detailed information on the types and numbers of Technical Specialists needed for each situation. 

July 2019 72 FDA EOP Section D 
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Supply 

Unit 

Facilities 

Unit 

Logistics 

Section Chief 

Communications 

Unit 

Services 

Acquisition Unit 

Technical Specialist 

(e.g., EOC Facility Manager) 

FDA Emergency Operations Plan 

• Biology • Epidemiology • Engineering 

• Chemistry • Toxicology • Data analysis 

D.2.2.3 Logistics Section 

The Logistics Section is responsible for all service support requirements needed to facilitate effective and 

efficient agency incident management operations. This Section provides facilities, transportation, security, 

supplies, communications, and IT support services to FDA headquarters and field personnel as required. 

The Logistics Section is led by a Section Chief. This role is initially filled by an OEM Emergency 

Coordinator or staff member; unless designated otherwise by the AIC, support units may be staffed from 

the Office of Management (OM), OIMT, and other headquarters Offices as appropriate. 

Figure D-8. Logistics Section Organizational Elements 

D.2.2.3.1 Units 

Units, such as Supply, Facilities, Communications, and Services Acquisition (described below), may be 

established within the Logistics Section based on the scope and complexity of incident operations. 

Composed of headquarters staff, each unit operates from normal work locations unless otherwise directed. 

The Logistics Section Chief will determine, in coordination with the AIC and given current and anticipated requirements, the need for establishing specific subordinate units. 

• Supply Unit. Coordinates ordering, receiving, processing, storage, inventory management, and 

distribution of supplies and materials for headquarters personnel. 

• Facilities Unit. Coordinates headquarters facility operations and building security support 

services during incident operations. 

• Communications Unit. Coordinates headquarters IT systems and equipment in support of 

incident operations and supervises and operates the Communications Center. 

• Services Acquisition Unit. Coordinates requirements for contracted services needed during the 

emergency response. 

D.2.2.3.2 Technical Specialists 

Technical Specialists have specialized skills and are activated only when needed. These headquarters 

personnel are assigned to the Logistic Section, but may support any ICS function. Technical Specialists 

normally perform the same duties during an incident that they perform in their everyday jobs and operate 

from normal locations unless directed to report to the FDA EOC by the Logistics Section Chief or AIC. 

The OEM EOC Manager is an example of a Technical Specialist who may be required during an 

emergency to provide specialized expertise. 

D.2.2.3.3 EOC Manager 

The EOC Manager will assist the IMG in performing the emergency response operations, which requires 

that EOC communication capabilities be functioning at all times, including access to network, databases, 

and the Internet. The EOC Manager is responsible for the technical requirements during COOP 

relocations and the operation of the EOC in accordance with the OEM COOP Plan. 

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In addition, the EOC Manager may assist with the transmission of electronic information during an 

emergency and analysis of information/data needs for a response. Onsite, the EOC Manager coordinates 

all enhancements of the agency’s data information systems, which pertain to critical and time-sensitive 

information. 

D.2.2.4 Finance/Administration Section 

A Finance/Administration Section39 is established only for those incidents requiring large-scale or 

extended agency operations or specific financial and administrative support services. Some of the functions that fall within the scope of this Section are accounting, payment processing, financial reporting, 

foreign and domestic travel expenditures, employee relocation, payroll liaison, and financial systems 

management. The Finance/Administration Section is led by a Section Chief staffed with support 

personnel as appropriate. 

Figure D-9. Finance/Administration Section Organizational Elements 

D.2.2.4.1 Units 

Units, such as Compensation and Claims, Procurement, Cost, and Time (described below), may be 

established within the Finance/Administration Section based on the scope and complexity of incident 

operations. Composed of headquarters staff, each unit operates from normal work locations unless 

otherwise directed. The Finance/Administration Section Chief will determine, given current and 

anticipated requirements, the need for establishing specific subordinate units. 

• Compensation and Claims Unit. Handles agency injury/illness compensation and claims. 

• Procurement Unit. Administers all financial matters pertaining to vendor contracts and is 

modified as needed. 

• Cost Unit. Provides cost analysis data for the incident. 

• Time Unit. Ensures proper daily recording of personnel time in accordance with FDA policies. 

D.2.3 Agency Executives 

D.2.3.1 Agency Executive Group 

The AEG is established when an emergency requires the involvement of senior FDA officials with the 

knowledge and authority to address a wide range of policy and resource issues. The AEG serves primarily 

to provide strategic policy direction and guidance for major agency emergency response activities and to 

approve important policy decisions, in consultation with the Commissioner and AIC. Decisions that may 

be within the AEG’s scope include addressing unprecedented legal, regulatory, policy, and resource 

39 In certain incidents, the Logistics and Finance/Administration Sections may be collapsed together under one Branch. During an 

influenza pandemic or alert, it is likely FDA’s ICS organizational structure will expand to include Logistics and Finance/ 

Administrative as part of the response. 

July 2019 74 FDA EOP Section D 
 

 

 

 

 

 

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problems and impasses brought about by the emergency and that impact the agency’s ability to respond 

effectively. 

Typically, members of the AEG include: 

• OSEM Director or designee 

• OEM Director or Designee 

• ORA Associate Commissioner or Deputy Associate Commissioner 

• ORA Office Director, for Program-specific incidents 

• OEA Associate Commissioner 

• Senior leadership from appropriate Offices/Centers (i.e., OCS/OCET, OCC, OGROP/OIP, 

OFVM, OPP, and OO/OFBA/OB) or their representatives 

D.2.3.2 FDA Executive Committee 

The FDA Executive Committee is a standing organizational management structure implemented by the 

Commissioner that addresses cross-cutting issues requiring the input of key agency leaders. The 

Committee employs the strength of a cross-cutting leadership structure to facilitate the governance of 

FDA. Issues in the following areas are identified and addressed: 

• Operational issues 

• Strategic direction and priorities 

• Scientific and policy issues 

The Commissioner serves as Chairperson, unless delegated to the Principal Deputy Commissioner, a 

Deputy Commissioner, the Chief of Staff, or the Chief Operating Officer. Committee members are: 

• Principal Deputy Commissioner 

• Deputy Commissioners 

• Chief Operating Officer 

• Chief Counsel 

• Chief of Staff 

• Directors of CBER, CDER, CDRH, CFSAN, CTP, CVM 

• Associate Commissioner for Regulatory Affairs 

• Chief Scientist 

Other participants and observers who are full-time or permanent part-time employees of the agency or 

other such employees of the Federal government may participate and attend in certain circumstances. 

Such invitees should be confirmed by the Chairperson and/or designated staff and should generally attend 

the meeting only in relation to an agenda item. 

D.2.4 Multiagency Coordination 

Many of the incidents to which FDA responds involve other agencies that have a stake in providing 

response or needed resources. If the product involved in an incident crosses agency jurisdictional lines, 

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the Multiagency Coordination (MAC) system may be used to support a unified coordination of operations. The primary function of the MAC system is to coordinate activities above the field level and to 

prioritize incident demands for critical or competing resources, thereby assisting the coordination of field 

operations. 

In this unified coordination approach, representatives from each agency meet to set goals and decide how 

each agency can contribute to the achievement of the goals. There can be strong, formal command and 

control relationships between and among the agencies, or the command and control linkages can be based 

on informal but structured arrangements that recognize Federal and State responsibilities. It can be as 

simple as a teleconference or, alternately, require an assembled group and associated support systems. 

Such an assembled group comprises senior officials from the agencies involved in the response who are 

brought together to form a MAC Group, providing executive guidance to individual agency Incident 

Command groups on policy, resource allocation, and communications. 

A MAC Group may be supported by a MAC Group Coordinator, who may supervise MAC Group 

Situation Assessment and Resources Information Units that collect and assemble information needed for 

the MAC Group to fulfill its mission. These units would obtain such information from the agency’s IMG/ 

IMT. The MAC Group may also have its own Public Information Unit to coordinate summary information and access to information sources with the media and other governmental entities. This function is 

often called a Joint Information Center (or JIC). 

The results of the MAC Group’s deliberations are distributed by its members directly to their own 

organizations as well as through the normal chain of command (e.g., EOCs, Incident Command/ 

Coordination Groups, etc.). 

Regardless of the level of government involved in response to an incident, all MAC Groups have five key 

functions. These functions include: 

1. Direction and Control. Provide indirect control and direction for complex or multijurisdictional 

incidents. Serve as a single POC for prioritizing incidents and for facilitating access to critical 

resources. 

2. Information Collection and Evaluation. Serve as a central point for collecting, analyzing, and 

interpreting information from a variety of sources. 

3. Coordination. Play a key role in coordinating the information flow and resources for complex 

incidents or multiple incidents occurring simultaneously. 

4. Priority Setting. Prioritize incidents and critical resources using the priorities established by the 

NPG as well as the priorities used to guide development of incident objectives (Life Safety, 

Incident Stabilization, and Property and Environmental Conservation), and use these priorities at 

the policy level. 

5. Resource Management. Manage scarce resources in line with incident priorities; resource 

management includes identifying and acquiring needed resources in addition to allocating 

existing or known resources. 

D.2.5 Multiagency Coordination Group for Foodborne Illness Outbreaks40 

FDA, along with USDA agencies, HHS, and the CDC, has created a Multiagency Coordination Group for 

Foodborne Illness Outbreaks (MAC-FIO) (see Figure D-9). This approach to unified coordination 

includes a MAC Group that comprises senior officials from each agency, and these personnel provide 

40 Information excerpted from FACT SHEET: Multiagency Coordination Group for Foodborne Illness Outbreaks (MAC-FIO), 

November 2012. 

July 2019 76 FDA EOP Section D 
 

 

Ii 

Local/State/Tribal 

Government 

Officials 

Regulatory and 

Public Health 

Agencies' 

Representatives 

Consultation and 

Collaboration Agency Executives 

Mult1agency Coord1nat1on Group 

HHS USDA 

Other 

FSIS relevant 

APHIS agencies FDA CDC FNS (EPA, 

Consultation and 

Collaboration 

Support and 

Coordination 

AMS 

OIG 

OHS, etc.) 

••• 

I 

t 

Coordination of 

Messaging 

Joint Information 

Center 

Public 

Messages t Resource Requests 

and Reporting (IAP) • Coordination of Messaging 

Incident Commander/Unified Command 

FDA Emergency Operations Plan 

executive guidance to individual agency Incident Command groups on policy, resource allocation, and 

communications. 

Figure D-10. MAC-FIO Unified Coordination for Foodborne Illness Outbreaks 

The MAC-FIO may be alerted when indicators of a large-scale foodborne illness outbreak potentially 

involving more than one agency become evident. This pre-alert is intended to ensure the critical coordination among agencies involved under a unified structure for all large-scale foodborne illness outbreaks 

involving multiple agencies. A formal MAC-FIO in place can also be activated expeditiously to provide 

the executive guidance to Incident Command through the agencies’ response coordinating bodies and 

ensure: 

• Coordination of the development and implementation of a flexible, scalable, and adaptable 

response among Federal, State, local, and tribal governments to multijurisdictional foodborne 

illness outbreaks. 

• Coordination between law enforcement agencies and public health agencies of investigations of 

foodborne illness outbreaks due to intentional contamination. 

• Coordinated communication strategy to the public, industry, and other international and domestic 

partners. 

• Coordinated collaborative efforts among Federal, State, and local governments in identifying the 

source of the contamination and removal of contaminated products/ingredients through a 

coordinated traceback and recall of all contaminated food, feed, and ingredients. 

• Coordinated development of measures to prevent future contamination and illnesses. 

• Established systematic and proactive approach for managing incidents across multiple 

jurisdictions as well as established a national-level policy coordination structure. 

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E. COMMUNICATIONS AND INFORMATION MANAGEMENT 

Effective emergency management and incident response activities rely upon flexible communications and 

information systems that provide for a “common operating picture” across all agency components and 

staff. Properly planned, established, and used communications processes and systems enable the vertical 

and horizontal dissemination of information among and between FDA organizational components; with 

Federal, SLTT, and foreign government agencies; and to the news media, industry, and consumers. 

E.1 INTRA-AGENCY COORDINATION 

During the course of any incident for which an FDA response may be necessary, timely communications 

and information sharing among agency units is critical to assist FDA leadership and staff with gaining 

and maintaining situational awareness and making decisions. Incident information, such as emergency 

alerts and status/situation reporting, can aid in developing an agency IAP, serve as the basis for releasing 

public messages, determine the need for involvement of FDA organizational components, and satisfy 

RFIs. The following are examples of information generated by responsible FDA emergency staff and the 

technological systems they rely upon for use during an incident to build an agency-wide “common 

operating picture.” 

E.1.1 Emergency Alerts 

FDA may be alerted to a threat or hazard through a variety of means, including from FDA headquarters 

Centers/Offices or District offices, other government agencies, consumers, and industry. Formal 

notifications typically occur by phone (primary) to the OEM/OEO with appropriate follow-up by email 

and/or fax referencing the initial emergency alert. 

FDA Office of Emergency Management 

Office of Emergency Operations 

10903 New Hampshire Avenue 

Building 32, Suite 1395 

Silver Spring, MD 20993 

Main OEO 

301 796 8240 

Toll Free Number 

1 866 300 4374 

Fax Number 

EOC: 301 847 8544 

Main: 301 847 8543 

Email 

Emergency.Operations@fda.hhs.gov 

An OEM/OEO Emergency Coordinator records the initial call and subsequent follow-up information. 

After regular duty hours (8:00 a.m. to 4:30 p.m. Eastern Time, Monday through Friday, excluding Federal 

holidays) and when the Office is not operating, an answering service refers all emergency calls to an OEO 

Late Duty Officer (LDO). Upon receipt, the Emergency Coordinator or LDO uses a predeveloped calldown tree/notification list for internal and external distribution of emergency alerts. 

For each incident, OEM/OEO will provide notification about the incident to those appropriate officials 

and staff of the Centers and Offices who may have a response role in that particular incident. 

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Also, the OEM/OEO Director may send notification of EOC operating status level and additional staffing 

requirements to all involved parties. 

E.1.2 Situation Reporting 

Standardized incident reporting and documentation procedures ensure that agency-wide situational 

awareness is maintained and provide emergency personnel with easy access to critical information. Status 

reports relay information specifically related to the availability or assignment of agency resources. 

SitReps offer a snapshot of each tasked organizational component’s emergency operations and contain 

confirmed information regarding the explicit details of the incident (who, what, when, where, and how). 

Transmission of this data in a common format, and at predesignated intervals, enables FDA to rapidly 

share critical intelligence and information between headquarters and field elements and with external 

partners as appropriate. 

During an incident, FDA IMTs, field offices, and Centers may provide regular SitReps via the EON-IMS, 

which is discussed in-depth below. These SitReps highlight significant event information and emergency 

response activities (e.g., investigations, analyses, public affairs, cooperating agencies, scientific data, 

legal court matters). District, Senior, and Center emergency coordinators are responsible for configuring 

the SitRep process, defining recipients, and reviewing and accepting inputted information. 

Once field SitReps have been approved/confirmed by emergency coordinators, the Planning Section 

Chief, in coordination with Command and General Staff located at the FDA EOC, assembles a 

consolidated SitRep and posts to the EON-IMS. This report combines relevant data from field SitReps for 

dissemination across FDA and is used to provide operational information to external Federal agencies. 

E.1.3 Emergency Operations Network – Incident Management System 

In addition to primary modes of voice and data communications (telephone and email), theEmergency 

Operations Netowrk -Incident Management System (EON-IMS)41 serves as the central hub for 

exchanging, storing, and relaying all incident-related information within the agency. Managed by OEM, 

this system integrates multiple data streams from other electronic systems, such as the Electronic 

Submission Gateway (ESG), the EON Call Center, the Mission Accomplishment and Regulatory 

Compliance Service-Recall Enterprise System (MARCS-RES), and from FDA laboratories and 

investigators and external agencies, into a coherent fashion during critical decision points. The EON-IMS 

creates a safety net that significantly reduces the probability that incidents will prevent FDA from 

accomplishing its objectives and minimizes the impact of these events on normal operations. It provides a 

web-based connection for all agency organizational components and their partners through which 

accurate real-time data about an incident can be shared and discussed, and is used in all situations 

requiring efficient receipt and dissemination of large volumes of information to FDA stakeholders, 

including the public and other government agencies. 

The EON-IMS, which is critical for comprehensive performance of agency incident management 

functions, has three components: (1) incident tracking and contact management, (2) a collaboration and 

knowledge management tool for meetings and document management, and (3) a GIS for mapping and 

impact assessment. Through EON-IMS, FDA ensures that its emergency response is uniform, consistent, 

and coordinated. Participants are able to provide input and access real-time data, agency emergency plans 

and procedures, contact databases, and analysis tools, which enhance response capabilities. 

41 Additional EON-IMS resources (e.g., user manual, reference sheets, etc.) may be found on the FDA intranet at 

http://inside.fda.gov:9003/ProgramsInitiatives/EmergencyPreparednessandResponse/EmergencyOperationsNetworkIncident 

ManagementSystemEONIMSResources/default.htm or by contacting OEM. 

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E.1.4 Government Emergency Telecommunications Service 

In response to White House guidance, the National Communications System (NCS) developed the 

Government Emergency Telecommunications Service (GETS) to ensure key personnel can communicate 

over local and long-distance telephone networks during an emergency. GETS can provide users a high 

likelihood of call completion during the most severe conditions of network congestion and disruption. 

There is an additional feature that can be activated on the GETS card called Wireless Priority Service 

(WPS). WPS allows GETS users to have their official cell phone number associated with their GETS 

service and ensures cellular communications are also available. Located on each GETS card are 

instructions for its use. 

E.2 INTERGOVERNMENTAL COORDINATION 

Coordination with responsible government agencies at the Federal and SLTT levels must be effective 

during emergency and disaster situations to ensure that resource allocations are efficient, policy is 

understood, and that roles are well defined. Considering that Federal agency responsibility varies from 

one type of incident to another, and that State and local government organizations differ from those of the 

Federal government, the specific number of agencies that should cooperate in a given situation is highly 

dependent on the incident at-hand and its location(s) as well. However, specific FDA organizational 

components are charged with establishing and maintaining communications at the various intergovernmental levels, regardless of incident size, complexity, or geographic location. These headquarters and 

field organizations are described below. 

E.2.1 Communicating with Federal Government Agencies 

OEM/OEO staff is responsible for coordinating Federal interagency liaison activities and establishing 

communications with the headquarters emergency operations offices and staff of Federal agencies during 

incidents of varying nature and scope. Through the use of dedicated communications channels, standardized reporting mechanisms, and the deployment of internal and external liaisons, OEM/OEO is able to 

maintain contact with the HHS SOC, CDC Director’s Emergency Operations Center (DEOC), 

USDA/FSIS, and other Federal department/agency EOCs as appropriate. OEM/OEO or the IMG 

represents the agency on national level conference calls, with input from IMTs, Centers, and Offices as 

needed. Centers may have technical consultation with other government agencies during an emergency 

and provide updates about significant consults to the agency through the IMG if activated, or OEM/OEO. 

The lead District, in coordination with the FDA EOC, is also responsible for communicating with appropriate Federal field offices and incident management field structures, such as the DHS/FEMA Regional 

Response Coordination Center (RRCC), JFO, and any established disaster recovery centers. 

During emergency response operations, a requirement may exist to conduct secure communications with 

other government agencies. This situation requires strict adherence to guidelines and regulations for 

handling, processing, and storing sensitive/classified materials. FDA restricts access to sensitive and 

classified material to ensure its release to only those agency personnel who possess appropriate security 

clearances and a need-to-know. OSEM/OSO maintains a list of locations and numbers of agency secure 

voice and data equipment. This list is available at: 

http://inside.fda.gov:9003/administrative/security/communicationssecuritycomsec/ucm019842.htm 

E.2.2 Communicating with State, Local, Tribal, and Territorial Governments 

During an incident, both the lead District and other investigating Districts are responsible for establishing 

communications with responsible State agencies. Usually, FDA will work through the State in coordinating efforts at the local level or through the use of the State’s predesignated RRTs. However, depending 

upon the State, it may be more appropriate for FDA District offices, in coordination with the FDA EOC, 

to work directly with local government to address the situation. 

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The Office of Communications and Quality Program Management (OCQPM) maintains a rapid 

communication system to alert officials in State governments, major municipalities, and poison control 

centers and to quickly enlist nationwide assistance for the agency’s emergency operations. During an 

incident, the OCQPM will: 

• Ensure the appropriate State agencies, such as agriculture and health departments, are notified of 

significant confirmed incidents within their States or which cross State borders, indicating the 

potential for problem FDA-regulated products to enter commerce. 

• Prepare (or distribute) information requested by States during the emergency response operations 

and ensure they are fully advised as to what action(s) FDA can recommend under the 

circumstances of the specific incident. 

E.2.3 Communicating with Foreign Governments 

During an incident when commerce with Canada or Mexico is involved, FDA’s response coordination 

will be performed by OEM/OEO in cooperation with OIP. When commerce with other countries is 

involved, OIP, in direct coordination with OEM/OEO, will establish, supervise, and/or coordinate and 

maintain appropriate communication channels. 

E.3 PUBLIC MESSAGING 

Public messaging consists of the agency processes, procedures, and systems to communicate timely, 

accurate, and accessible public health and medical information to the media and directly to FDA stakeholders (both directly and indirectly affected). Information must be coordinated and integrated across 

FDA organizational components at the headquarters and field levels, as well as with other Federal and 

SLTT government agencies and industry partners to protect consumer well-being and decrease the risk of 

illness, injury, disease, or death. Well-developed communications plans and strategies executed by 

responsible FDA staff help to ensure that messages, alerts and warnings, educational materials, and 

situational updates are developed and distributed to numerous audiences in a timely, consistent manner. 

FDA’s OMA, within the OEA, is responsible for coordinating the release of information to the public 

during an emergency or disaster. It serves as the agency’s primary liaison with the news media and 

develops FDA’s public health and consumer protection messages. During an emergency, OMA Public 

Affairs Specialists, in direct coordination with the assigned IMG PIO, Center media representatives, and 

all responding field offices, issue press releases, media advisories, and other public statements; respond to 

media requests; and arrange and support media interviews. 

OEA’s Office of Communications develops and promotes FDA consumer health information, which 

consists of time-sensitive public health and product safety alerts and information about FDA’s roles and 

responsibilities in protecting and promoting public health. The goals of this Office during an incident 

include promoting improved outreach and readership of FDA consumer health information, sharing timesensitive public health and product safety alerts, and facilitating public understanding of FDA’s roles and 

responsibilities in protecting and promoting public health. 

OEA’s Web and Digital Media staff ensures that vital and important information and consumer health 

messages are expeditiously posted to FDA’s website (www.fda.gov) and updated as needed. The Web and 

Digital Media staff also coordinates web communications with OMA, HHS/ Assistant Secretary for 

Public Affairs (ASPA), other Federal agencies, and State and local governments to ensure a consistent 

and comprehensive approach that reduces duplication of messages. 

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E.3.1 Coordination with Other Federal Agencies 

Coordination with other external Federal agencies is also conducted to ensure the provision of a common 

message. In accordance with the NRF, pre-identified incident communications protocols are established 

and ready for use during an incident requiring a coordinated Federal response. 

The National Incident Communications Conference Line (NICCL) is used for transmission and exchange 

of critical and timely (e.g., “breaking”) incident information among Federal and affected SLTT 

authorities. If the nature of the incident is of critical importance and urgency, DHS Public Affairs will 

maintain a controller on the line continuously to provide and receive updates from departments and 

agencies. During sustained incident management activity, the NICCL will be used for daily or other 

incident communications coordination calls. DHS Public Affairs will maintain a summary of key NICCL 

communications and interagency coordination actions. 

Throughout an incident, OMA will take guidance from and work closely with the HHS Office of the 

ASPA in publicizing public health messages and implementing a strategic communications plan that: 

• Coordinates and expedites FDA messages with HHS/ASPA and other partners to ensure 

consistency. 

• Disseminates clear and accurate messages that maintain, increase, or restore public trust and 

confidence. 

• Uses a variety of vehicles to distribute public health messages. 

OEA also coordinates web communications with HHS/ASPA, other Federal agencies, and State and local 

governments to ensure a consistent and comprehensive approach that reduces duplication of messages. 

E.3.2 Congress 

FDA’s OL directs and manages FDA’s legislative needs, pending legislation, oversight activities, and 

congressional relations consistent with the mission of the agency. In an emergency or disaster, the OL is 

responsible for, but not limited to, the following activities: 

• Keeping Congress apprised of FDA actions relative to the incident in coordination with the HHS 

Office of the Assistant Secretary for Legislation (ASL). 

• Responding to congressional RFIs related to the incident. 

• Arranging and supporting congressional meetings, briefings, and hearings. 

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F. AUTHORITIES AND REFERENCES 

The legal authorities that guide the structure, development, and implementation of the FDA EOP include 

statutes and regulations, presidential directives, national strategies, and Federal government plans and 

guidance. In addition, internal emergency plans and procedures augment the FDA EOP and provide 

specific guidance to agency personnel during emergencies and disasters. These documents are listed 

chronologically by category and summarized below.42 

Authorities and references specific to individual hazards are also included in the FDA EOP Incident 

Annexes. 

F.1 STATUTES 

AND 

REGULATIO 

NS 

F.1.1 Federal Food, Drug, and Cosmetic Act 

FDA’s mission is mandated by the Federal Food, Drug, and Cosmetic Act of 1938 (FD&C Act), 

21 U.S.C. § 301, as amended 

(https://www.fda.gov/RegulatoryInformation/LawsEnforcedbyFDA/FederalFoodDrugandCosmeticActFD 

CAct/default.htm). The following FD&C Act provisions govern FDA emergency actions: 

a. In consultation with experts in science, medicine, and public health and, in cooperation with consumers, users, manufacturers, importers, packers, distributors, and retailers of regulated products, 

FDA is charged with (1) promoting the public health by promptly and efficiently reviewing 

clinical research and taking appropriate action on the marketing of regulated products in a timely 

manner, and (2) with respect to such products, protecting the public health by ensuring that foods 

are safe, wholesome, sanitary, and properly labeled; human and veterinary drugs are safe and 

effective; there is reasonable assurance of the safety and effectiveness of devices intended for 

human use; cosmetics are safe and properly labeled; the public health and safety are protected 

from electronic product radiation; and tobacco products are properly labeled and are not 

contaminated. 

b. FDA is charged with ensuring that safe and effective drugs, biologics, and devices are available 

for emergency use. 

c. If FDA finds a reasonable possibility that a tobacco product contains a manufacturing or other 

defect not ordinarily contained in tobacco products on the market that would cause serious, 

adverse health consequences or death, the agency can order that distribution of any such tobacco 

product immediately cease and can order a recall as necessary. FDA may also provide notice to 

persons subject to the risks associated with the use of such tobacco product. 

d. If FDA determines that a tobacco product presents an unreasonable risk of substantial harm to the 

public health, the agency can provide notice to the public as necessary to eliminate such risk, 

including issuing public service announcements. 

e. FDA is authorized to inspect the records of each person who manufactures, processes, transports, 

distributes, receives, holds, packages, exports, or imports tobacco products if the agency has a 

42 This list is not exhaustive, and the associated summaries should not be used as a substitute for the authorities and references 

themselves. 

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reasonable belief that a tobacco product is part of illicit trade, smuggling, or counterfeiting 

operations. 

f. The Commissioner of Food and Drugs or designee may request a firm to initiate a recall when a 

product has been distributed that presents a risk of illness or injury or gross consumer deception; 

when the responsible firm has not initiated a recall of the product; and when an agency action is 

necessary to protect the public health and welfare. A request by FDA that a firm recall a product 

is reserved for urgent situations and is to be directed to the firm that has primary responsibility for 

the manufacture and marketing of the product that is to be recalled. 

g. Under the Project BioShield Act of 2004 (P.L. 108-276), the FD&C Act is amended to allow 

FDA, in response to a declaration issued by the HHS Secretary, to authorize the use, with 

appropriate safeguards, of unapproved drugs, devices, or biological products or the use of 

approved products for unapproved uses. Before FDA can issue an EUA, the HHS Secretary must 

declare an emergency justifying the authorization to use the product, based on one of three 

determinations: (1) a determination by the Secretary of Homeland Security of a domestic 

emergency, or the significant potential for a domestic emergency; (2) a determination by the 

Secretary of Defense of a military emergency, or the significant potential for a military 

emergency; (3) a determination by the HHS Secretary of a public health emergency under PHSA 

or , (4) the Secretary of Homeland Security makes a Material Threat Determination. 

h. The Pandemic and All-Hazards Preparedness Act (P.L. 109-417), December 2006, amends the 

FD&C Act to direct FDA to establish a team of experts on manufacturing and regulatory 

activities (including compliance with current GMP) to provide both offsite and onsite technical 

assistance to the manufacturers of qualified countermeasures, security countermeasures, or 

vaccines at the request of such a manufacturer and at the discretion of the Secretary, if the 

Secretary determines that a shortage or potential shortage may occur in the United States in the 

supply of such vaccines or countermeasures and that the provision of such assistance would be 

beneficial in helping alleviate or avert such shortage. 

i. The Pandemic and All-Hazards Preparedness Reauthorization Act (PAHPRA), (P.L. 113-5), 

March 2013, builds on work the U.S. Department of Health and Human Services has undertaken 

to advance national health security, amending the Public Health Service Act, authorizing funding 

through 2018 for buying medical countermeasures under the Project BioShield Act, and 

increasing the flexibility of BioShield to support advanced research and development of potential 

medical countermeasures. PAHPRA also enhances the authority of the U.S. Food and Drug 

Administration to support rapid responses to public health emergencies. The purpose of the 

Pandemic and All-Hazards Preparedness Reauthorization Act is “to reauthorize certain programs 

under the Public Health Service Act and the Federal Food, Drug, and Cosmetic Act with respect 

to public health security and all-hazards preparedness.” 

The Food Safety Modernization Act of 2011 (FSMA) (P.L. 111-353) amends the FD&C Act as follows: 

a. If FDA reasonably believes an article of food, and any other article of food that the Secretary 

reasonably believes is likely to be affected in a similar manner, is adulterated and presents a 

threat of serious adverse health consequences or death to humans or animals, each person 

(excluding farms and restaurants) who manufactures, processes, packs, distributes, receives, 

holds, or imports such article must permit FDA to have access to and copy certain records 

relating to such article and to any other article of food the Secretary reasonably believes is likely 

to be affected in a similar manner. 

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b. If FDA believes there is a reasonable probability that the use of or exposure to an article of food, 

and any other article of food that the Secretary reasonably believes is likely to be affected in a 

similar manner, will cause serious adverse health consequences or death to humans or animals, 

each person (excluding farms and restaurants) who manufactures, processes, packs, distributes, 

receives, holds, or imports such article must permit FDA to have access to and copy certain 

records relating to such article and to any other article of food the Secretary reasonably believes is 

likely to be affected in a similar manner. 

c. FDA may order the detention of any article of food that is found during an inspection, 

examination, or investigation if FDA has reason to believe that such article is adulterated or 

misbranded. 

d. If FDA determines there is a reasonable probability that an article of food (other than infant 

formula) is adulterated under Section 402 of the FD&C Act or misbranded under Section 403 of 

the FD&C Act and the use of or exposure to such article will cause serious adverse health consequences or death to humans or animals, the Secretary must provide the responsible party with an 

opportunity to cease distribution and recall such article. If the responsible party refuses to or does 

not voluntarily cease distribution or recall such article within the time and in the manner 

prescribed by the Secretary, the Secretary may, by order, require such person to (A) immediately 

cease distribution of such article; and (B) as applicable, immediately notify all persons (i) manufacturing, processing, packing, transporting, distributing, receiving, holding, or importing and 

selling such article; and (ii) to which such article has been distributed, transported, or sold, to 

immediately cease distribution of such article. 

e. Food facilities must report to FDA as soon as practicable, but in no case later than 24 hours, 

within determining there is a reasonable probability that the use of, or exposure to, an article of 

food manufactured, processed, packed, or held at the facility will cause serious adverse health 

consequences or death to humans or animals. 

f. If FDA determines that food manufactured, processed, packed, received, or held by a facility has 

a reasonable probability of causing serious adverse health consequences or death to humans or 

animals, FDA may suspend the registration of a facility that was responsible for such reasonable 

probability, or knew of or had reason to know of such reasonable probability, and packed, 

received, or held such food. If a facility’s registration is suspended, no person can introduce food 

from such facility into interstate or intrastate commerce in the United States. 

F.1.2 Public Health Service Act 

The Public Health Service Act (PHSA), (42 U.S.C. § 262): National Preparedness for Bioterrorism and 

Other Public Health Emergencies, as amended, charges FDA with assisting the Secretary, other HHS 

OPDIVs, and Federal and SLTT government partners in response to bioterrorism and other public health 

emergencies.

43 

F.1.3 Federal Anti-Tampering Act 

The Federal Anti-Tampering Act (FATA), 18 U.S.C. 1365, authorizes FDA to investigate any tampering 

of FDA-regulated consumer products.43 

43 To find these Public Laws, go to https://congress.gov/ and click on Public Laws. 

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F.1.4 Bioterrorism Act 

FDA is responsible for carrying out certain provisions of the Public Health Security and Bioterrorism 

Preparedness and Response Act of 2002 (Bioterrorism Act) (P.L. 107-188).43 

Particularly, Subtitle A (Protection of Food Supply) and Subtitle B (Protection of Drug Supply) of 

Title III provide for the following FDA authorizations: 

• FDA may detain any article of food found during an inspection, examination, or investigation that 

presents a threat of serious adverse health consequences or death to humans or animals. 

• FDA is authorized to access certain records when there is a reasonable belief that an article of 

food is adulterated and presents a threat of adverse health consequences or death to humans or 

animals. 

• Owners and operators of foreign or domestic food facilities that manufacture or process, pack, or 

hold food for human or animal consumption in the United States must submit information (i.e., 

identity of the food, manufacturer and shipper, grower, country of origin, country from which the 

food is shipped, and anticipated port of arrival) to FDA about the facility and emergency contacts. 

• FDA shall receive prior notice of imported food shipments before the food arrives at any U.S. 

port, which must include the article, the manufacturer and shipper, the grower (if known within 

the specified time in which notice is required), the country of origin, the country from which the 

article is shipped, and the anticipated port of arrival, and conduct a bioterrorism risk assessment. 

• FDA is charged with providing for research on tests and sampling methodologies designed to test 

food to detect adulteration rapidly, particularly methodologies that detect intentional adulteration 

and tests that are suitable for inspections of food at ports of entry to the United States. 

• FDA is authorized to conduct examinations and investigations through the officers and employees 

of another Federal department or agency, pursuant to an MOU, at facilities or other locations that 

are jointly regulated by FDA and such department or agency. FDA is required to notify States 

when there is credible evidence or information indicating that a shipment, or portions of a 

shipment, of imported food presents a threat of serious adverse health consequences or death to 

humans or animals. 

• Another Federal department’s or agency’s officers and employees are authorized to conduct 

examinations and investigations on FDA’s behalf, pursuant to the signing of an MOU between 

FDA and the head of the other Federal agency. 

• FDA, in direct coordination with the CDC and USDA, is charged with coordinating the 

surveillance of zoonotic diseases. 

F.1.5 Stafford Act 

The Robert T. Stafford Disaster Relief and Emergency Assistance Act (Stafford Act), P.L. 93-288 (1988), 

as amended, codified at 42 U.S.C. § 68 (2007), describes the programs and processes by which the 

Federal government provides disaster and emergency assistance to State and local governments, tribal 

nations, eligible private nonprofit organizations, and individuals affected by a declared emergency or 

major disaster. The Stafford Act covers all hazards, including natural disasters and terrorist events 

(https://www.fema.gov/robert-t-stafford-disaster-relief-and-emergency-assistance-act-public-law-93-288-

amended). 

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F.1.6 Public Readiness and Emergency Preparedness Act 

The Public Readiness and Emergency Preparedness Act of 2005 (PREP Act) (P.L. 109-148), PHSA 

§ 319F-3 and § 319F-4, authorizes the Secretary to issue a declaration to provide immunity from tort 

liability for 

certain claims that are causally related to development, distribution, administration, or use of “covered 

countermeasures” and authorizes an emergency fund in the U.S. Department of the Treasury for 

compensation for injuries from covered countermeasures 

(www.phe.gov/Preparedness/legal/prepact/Pages/default.aspx). 

F.1.7 Title 18 and Title 21 United States Code 

FDA investigative jurisdiction includes the FD&C Act and other related Acts (Title 21 U.S.C. and 

related Acts), FATA (Title18 U.S.C. § 1365) and other criminal violations of Title 18 U.S.C.4343 

F.1.8 Code of Federal Regulations Title 21 

Title 21, Chapter I, is the portion of the CFR that governs FDA-regulated products within the United 

States.. These regulations are enforced by FDA, based on the FD&C Act and other applicable laws 

(www.accessdata.fda.gov/scripts/cdrh/cfdocs/cfcfr/cfrsearch.cfm). 

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PRESIDENTIAL DIRECTIVES 

The following presidential directives mandate action from all Federal departments and agencies, 

including FDA as an HHS OPDIV. 

F.1.9 PPD-2, National Strategy for Countering Biological Threats 

This Strategy outlines the vision for addressing the challenges from proliferation of biological weapons or 

their use by terrorists (https://www.hsdl.org/?abstract&did=31404). 

F.1.10 PPD-8, National Preparedness 

Presidential Policy Directive 8 (PPD-8), National Preparedness, requires the development of a national 

preparedness goal and national preparedness system. PPD-8 is designed to facilitate an integrated, all-ofNation/whole community, capabilities-based approach to preparedness. 

PPD-8 replaces Homeland Security Presidential Directive-8 (HSPD-8), National Preparedness, and 

HSPD-8 Annex I, National Planning, which are rescinded, except for paragraph 44 of HSPD-8 Annex I. 

Individual plans developed under HSPD-8 and HSPD-8 Annex I remain in effect until rescinded or 

otherwise replaced (www.dhs.gov/presidential-policy-directive-8-national-preparedness). 

F.1.11 National Preparedness Goal 

The National Preparedness Goal (NPG) sets the vision for nationwide preparedness and identifies the core 

capabilities and targets necessary to achieve preparedness across five mission areas laid out under PPD-8: 

Prevention, Protection, Mitigation, Response, and Recovery (www.fema.gov/learn-about-presidentialpolicy-directive-8). 

F.1.12 National Preparedness System 

The National Preparedness System is an integrated set of guidance, programs, and processes, enabling the 

Nation to meet the NPG. Designed to guide domestic efforts of all levels of government, the private and 

nonprofit sectors, and the public, the National Preparedness System includes guidance for planning, 

organization, equipment, training, and exercises needed to build and maintain domestic capabilities in 

support of the NPG (www.fema.gov/learn-about-presidential-policy-directive-8). 

F.1.13 National Planning Frameworks 

The National Planning Frameworks, which are part of the National Preparedness System, set the strategy 

and doctrine for building, sustaining, and delivering the core capabilities identified in the NPG. They 

describe the coordinating structures and alignment of key roles and responsibilities for the whole 

community and are integrated to ensure interoperability across all mission areas (www.fema.gov/learnabout-presidential-policy-directive-8). 

There is one framework for each of the five preparedness mission areas addressed in PPD-8: 

• National Prevention Framework 

• National Protection Framework 

• National Mitigation Framework 

• National Response Framework (second edition) 

• National Disaster Recovery Framework 

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F.1.14 HSPD-5, Management of Domestic Incidents 

HSPD-5 requires the Secretary of Homeland Security to develop and administer a national incident 

management system that will provide a consistent nationwide approach for Federal, State, and local 

governments to work effectively and efficiently together to prepare for, respond to, and recover from 

domestic incidents, regardless of cause, size, or complexity. HSPD-5 also requires the Secretary of 

Homeland Security, after consultation with appropriate Federal officials, to develop and administer a 

National Response Plan (NRP). The Directive orders the heads of all Federal agencies to adopt NIMS and 

NRP and to provide assistance to the Secretary in their development and maintenance 

(www.dhs.gov/laws-regulations-1). 

F.1.15 HSPD-7, Critical Infrastructure Identification, Prioritization, and 

Protection 

HSPD-7 establishes a national policy for Federal agencies to identify and prioritize U.S. critical 

infrastructure and key resources and to protect them from terrorist attacks 

(www.dhs.gov/xabout/laws/gc_1214597989952.shtm). 

F.1.16 HSPD-9, Defense of United States Agriculture and Food 

HSPD-9 establishes a national policy to defend the agriculture and food system against terrorist attacks, 

major disasters, and other emergencies (https://www.hsdl.org/?view&did=444013). 

F.1.17 HSPD-18, Medical Countermeasures Against Weapons of Mass 

Destruction 

HSPD-18 establishes an approach for the development and acquisition of medical countermeasures for 

attacks involving CBRN agents (https://www.hsdl.org/?view&did=456436). 

F.1.18 NSPD-51/HSPD-20, National Continuity Policy 

This directive, also known as National Security Presidential Directive 51 (NSPD-51), establishes a 

comprehensive national policy on the continuity of Federal government structures and operations and a 

single National Continuity Coordinator responsible for coordinating the development and implementation 

of Federal continuity policies (https://www.hsdl.org/?view&did=476323). 

F.1.19 HSPD-21, Public Health and Medical Preparedness 

HSPD-21 establishes a national strategy that will enable a level of public health and medical preparedness 

sufficient to address a range of possible disasters (https://www.hsdl.org/?view&did=480002). 

F.1.20 HSPD-22, Domestic Chemical Defense 

HSPD-22 establishes a national policy and directs actions to strengthen the ability of the United States to 

prevent, protect, respond to, and recover from terrorist attacks employing toxic chemicals and other 

chemical incidents. (This directive is classified and, thus, not publicly available.) 

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F.2 NATIONAL 

STRATEGIES 

F.2.1 National Strategy for the Physical Protection of Critical Infrastructures 

and Key Assets 

The National Strategy for the Physical Protection of Critical Infrastructures and Key Assets establishes a 

foundation for building and fostering the cooperative environment in which government, industry, and 

private citizens can carry out their respective protection responsibilities more effectively and efficiently. 

Moreover, this Strategy identifies a clear set of national goals and objectives and outlines the guiding 

principles that underpin the efforts to secure the infrastructures and assets vital to national security, 

governance, public health and safety, economy, and public confidence (www.dhs.gov/national-strategyphysical-protection-critical-infrastructure-and-key-assetsNational Strategy for Physical Protection of 

Critical Infrastructure and Key Assets | Homeland Security). 

F.2.2 National Strategy for Homeland Security 

The National Strategy for Homeland Security guides, organizes, and unifies the Nation’s homeland 

security efforts. Homeland security is a responsibility shared across the entire Nation, and the Strategy 

provides a common framework to prevent and disrupt terrorist attacks; protect the American people, 

critical infrastructure, and key resources; respond to and recover from incidents that do occur; and 

continue to strengthen the foundation to ensure long-term success. It builds upon the 2002 version; 

reflects an increased understanding of the terrorist threats confronting the United States today; 

incorporates lessons learned from exercises and real-world catastrophes, including Hurricane Katrina; and 

proposes new initiatives and approaches that will enable the Nation to achieve its homeland security 

objectives (www.dhs.gov/xabout/history/gc_1193938363680.shtm). 

F.2.3 National Security Strategy 

The National Security Strategy guides, organizes, and unifies our Nation’s homeland security efforts and 

lays out a strategic approach for advancing American interests, including the security of the American 

people, a growing U.S. economy, support for our values, and an international order that can address 21stcentury challenges (https://www.whitehouse.gov/wp-content/uploads/2017/12/NSS-Final-12-18-2017-

0905.pdf). 

F.3 FEDERAL PLANS AND GUIDANCE 

F.3.1 Comprehensive Preparedness Guide 101 

The Comprehensive Preparedness Guide (CPG) 101: Developing and Maintaining Emergency 

Operations Plans expands on FEMA’s efforts to provide guidance about response and recovery planning 

to SLTT governments. It also extends those planning concepts into the prevention and protection mission 

areas. CPG 101 integrates concepts from the National Preparedness Guidelines, NIMS, NRF, National 

Strategy for Information Sharing (NSIS), and National Infrastructure Protection Plan (NIPP), and it 

incorporates recommendations from the 2005 Nationwide Plan Review (https://www.fema.gov/medialibrary/assets/documents/25975). 

F.3.2 National Incident Management System 

NIMS provides a systematic, proactive approach to guide departments and agencies at all levels of 

government, NGOs, and the private sector to work seamlessly to prevent, protect against, respond to, 

recover from, and mitigate the effects of incidents, regardless of cause, size, location, or complexity, to 

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reduce the loss of life and property and harm to the environment. NIMS works hand-in-hand with the 

NRF. It provides the template for the management of incidents, while the NRF provides the structure and 

mechanisms for national-level policy for incident management. 

NIMS is not an operational incident management or resource allocation plan. It represents a core set of 

doctrines, concepts, principles, terminology, and organizational processes that enable effective, efficient, 

and collaborative incident management (https://www.fema.gov/nims-doctrine-supporting-guides-tools). 

NIMS has established ICS as the standardized incident organizational structure for the management of all 

incidents. 

F.3.3 National Infrastructure Protection Plan 

NIPP, and its supporting Sector-Specific Plans (SSPs), provides a coordinated approach to critical 

infrastructure and key resources (CIKR) protection roles and responsibilities for Federal and SLTT 

government and private sector security partners. NIPP sets national priorities, goals, and requirements for 

effective distribution of funding and resources, which help ensure the Nation’s government, economy, 

and public services continue in the event of a terrorist attack or other disaster 

(www.dhs.gov/xlibrary/assets/NIPP_Plan_noApps.pdf). 

The SSPs provide the means by which the NIPP is implemented across all 18 CIKR sectors, as well as a 

national framework for each sector to address its unique characteristics and risk landscape. FDA is 

responsible for the food sector (except meat; poultry; and frozen, dried, and liquid eggs, which are under 

the authority of the USDA/FSIS). Agency food sector protection efforts are detailed in the Agriculture 

and Food CIKR SSP to the NIPP (www.fda.gov/downloads/Food/FoodDefense/ucm081308.pdf). FDA 

also supports HHS, which is responsible for the SSP for the public health and medical sector. 

F.3.4 National Preparedness Guidelines 

The National Preparedness Guidelines organizes and synchronizes national (including Federal and 

SLTT) efforts to strengthen preparedness. The Guidelines guide national investments in national 

preparedness, incorporate lessons learned from past emergencies and disasters into national preparedness 

priorities, facilitate a capability- and risk-based investment planning process, and establish readiness 

metrics to measure progress and a system for assessing the Nation’s overall preparedness capability to 

respond to major events, especially those involving acts of terrorism. There are four critical elements to 

the Guidelines: (1) the National Preparedness Vision; (2) the 15 National Planning Scenarios; (3) the 

Universal Task List (UTL); and (4) the Target Capabilities List (TCL) (www.dhs.gov/nationalpreparedness-guidelines). 

F.3.5 National Response Framework 

The NRF presents the guiding principles that enable first responders, decision makers, and supporting 

entities to prepare for and provide a unified national response to emergencies and major disasters—from 

the smallest incident to the largest catastrophe. It establishes a comprehensive, national, all-hazards 

approach to domestic incident management and defines the key principles, roles, and structures that 

organize the way the Nation responds. 

The NRF, an update to the 2004 NRP, describes how communities, tribes, territories, States, the Federal 

government, and private sector and nongovernmental partners apply these principles for a coordinated, 

effective national response. This document also identifies special circumstances where the Federal 

government exercises a larger role, including incidents where Federal interests are involved and 

catastrophic incidents where a State would require significant support. The NRF enables first 

responders, decision makers, and supporting entities to provide a unified national response 

(https://www.fema.gov/media-library/assets/documents/117791). 

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F.3.6 National Disaster Recovery Framework 

The NDRF (https://www.fema.gov/national-disaster-recovery-framework) is a guide that enables effective 

recovery support to disaster-impacted SLTT jurisdictions. It provides a flexible structure that enables 

disaster recovery managers to operate in a unified and collaborative manner. It also focuses on how best 

to restore, redevelop, and revitalize the health, social, economic, natural, and environmental fabric of the 

community and build a more resilient Nation. 

The NDRF is consistent with the vision set forth in PPD-8 (https://www.fema.gov/learn-aboutpresidential-policy-directive-8), National Preparedness, which directs FEMA to work with interagency 

partners to publish a recovery framework. 

The NDRF introduces six new Recovery Support Functions (https://www.fema.gov/recovery-supportfunctions) that provide a structure to facilitate problem-solving, improve access to resources, and foster 

coordination among State and Federal agencies, nongovernmental partners, and stakeholders. Each RSF 

has coordinating and primary Federal agencies and supporting organizations that operate together with 

State, local, and tribal government officials, NGOs, and private sector partners. 

The NDRF presents three positions that provide focal points for incorporating recovery considerations 

into the decision-making process and monitoring the need for adjustments in assistance where necessary 

and feasible throughout the recovery process. Those positions are Federal Disaster Recovery Coordinator 

(FDRC), State or Tribal Disaster Recovery Coordinators (SDRCs or TDRCs), and Local Disaster 

Recovery Managers (LDRMs) (www.fema.gov/national-disaster-recovery-framework). 

F.4 FDA SUPPORTING DOCUMENTATION 

F.4.1 Center/Office Emergency Plans and Procedures 

Some FDA organizational components have developed individual emergency plans and operating 

procedures that define the scope of incident management activities necessary for that Center or Office. 

These EOPs and subordinate procedural documents present specific details on Center/Office response to 

emergencies and disasters, such as assigning staff roles, responsibilities, and lines of authority; detailing 

projected times, places, and coordination mechanisms for carrying out emergency actions; describing how 

staffs and facilities are protected; and identifying the personnel, equipment, facilities, supplies, and other 

resources necessary for use during response and recovery operations. 

The following represent the compendium of existing FDA emergency/disaster plans and procedures. Each 

supports implementation of the FDA EOP and is available to assist FDA personnel during prevention, 

preparedness, protection, mitigation, response, and recovery activities. 

• Regulatory Procedures Manual, Chapter 8, “Emergency Procedures” (July 2012) 

www.fda.gov/ora/compliance_ref/rpm/chapter8/ch8.html 

• Investigations Operations Manual 2013, Chapter 8, Subchapter 8.5, “Disaster Procedures” 

www.fda.gov/ora/inspect_ref/iom 

• FDA Incident Management Handbook (September 2013). This handbook is designed to assist 

FDA personnel in the use of ICS and NIMS during incident response operations and planned 

events. The handbook is an easy reference job aid for responders and includes position-specific 

checklists. The handbook provides guidance and protocols for responders and management to 

understand what their positional responsibilities are under ICS/NIMS and how these positions 

integrate with the overall response structure. 

• FDA Joint Information Center Handbook (November 2013). This handbook is for personnel 

assigned to a FDA JIC as part of an IMG incident response or planned event. The handbook 

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describes the organization of FDA personnel tasked with public information responsibilities. The 

handbook provides an organized approach to providing accurate, coordinated, timely, and 

accessible information to FDA audiences as an emergency situation evolves. 

• Continuity of Operations (COOP) Plan for the Office of the Commissioner (January 2013) 

Copies of individual Center and Office emergency plans and procedures may be found on the 

Center/Office intranet web pages on inside.fda. 

F.4.2 SOP for FDA Headquarters Building Closures and Dismissal of 

Employees 

The current operational status of FDA headquarters’ buildings and dismissal of employees related to 

administrative situations including all FDA locations in the Washington, D.C., metropolitan area, 

including the White Oak Campus, is provided at www.fda.gov/AboutFDA/WorkingatFDA/ 

BuildingsandFacilities/default.htm. 

F.4.3 Center/Office COOP Plans 

FDA has designed COOP Plans for each of its headquarters and field organizational components, 

including OC, ORA, CBER, CDER, CDRH, CFSAN, CVM, NCTR and District offices. These plans 

ensure that agency essential functions can continue to be performed from alternate locations during all 

hazards, including localized acts of nature, accidents, and technological or attack-related situations. 

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G. PLAN MANAGEMENT 

G.1 COORDINATION 

The FDA OEM is responsible for the overall management and maintenance of the FDA EOP (including 

all annexes and appendices) and for ensuring that changes and revisions occur, including their preparation, coordination, publication, and distribution. OEM, in consultation with all responsible agency Centers 

and Offices, coordinates plan reviews to address lessons learned from real-world and simulated incidents 

and incorporates necessary organizational or technological changes. 

G.2 MAINTENANCE 

Any FDA headquarters or field organizational component may propose changes to the FDA EOP. All 

proposed changes are to be captured within the “Record of Changes” section to this EOP and submitted to 

OEM for formal review. Approval from the appropriate Center/Office senior official should be secured 

prior to submitting any proposed change. 

Once OEM receives a proposed change to the FDA EOP, it will coordinate a review with all applicable 

Centers and Offices to determine its suitability for inclusion in the plan. Once this coordination has been 

finalized, OEM will issue an official Notice of Change agency-wide and provide the intra- and Internet 

links to the updated plan. 

• The Notice of Change will specify the date, number, subject, purpose, background, and action 

required, and provide the change language. 

• Once published, the changes will be considered part of the FDA EOP for operational purposes 

pending a formal revision and re-issuance of the entire document. 

G.3 PROMULGATION 

The OEM Director is responsible for coordinating reviews of the basic plan and all applicable annexes to 

the FDA EOP and for re-adoption and distribution every four years or more frequently as deemed 

necessary. The annual review will consider lessons learned and best practices identified during exercises 

and/or actual emergencies and disasters. Any changes that result from reviews will be incorporated in the 

FDA EOP and any supporting Center/Office emergency plans and procedures. 

Prior to any reissuance of the EOP, or at the request of the Commissioner or his/her authorized 

representative, OEM will work with agency headquarters and field emergency coordinators and others as 

appropriate to revise key areas of the plan. OEM will disseminate the final draft of the revised FDA EOP 

for review and concurrence prior to submitting to the Commissioner for approval and promulgation. 

G.4 STANDARDS FOR SUPPORTING DOCUMENTATION 

The FDA EOP, including the basic plan and all annexes, is the core plan for FDA emergency operations 

and provides the structures and processes for coordinating agency incident management activities for 

emergencies, including natural disasters, terrorist attacks, and other criminal acts. It provides an umbrella 

configuration for existing emergency plans and procedural documents (with appropriate modifications 

and revisions) as integrated components, supplements, or supporting material. 

All FDA organizational components must incorporate common principles, concepts, and language when 

developing or updating individual emergency plans and procedures. Accordingly, all Center/Office 

emergency documentation shall be compatible with the FDA EOP. 

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G.5 TRAINING AND EXERCISES 

FDA shall conduct and/or participate in HHS and other organizations’ tests, training, and exercises to 

ensure that agency personnel are familiar with assigned emergency roles and responsibilities and that the 

FDA EOP can be implemented rapidly and effectively. 

Any deficiencies, findings, areas recommended for corrective action, or improvements arising from 

exercises will be addressed through additional training, plan updates, and/or demonstrations in subsequent 

emergency preparedness events. 

G.6 IMPLEMENTATION 

The FDA EOP, including the basic plan and all annexes, is effective for execution upon and pursuant to 

approval by the Commissioner. 

OEM shall ensure this FDA EOP is subject to regular maintenance, review, and updates based on organizational and procedural changes, AARs, and new guidance. At any time, agency emergency coordinators, 

upon approval by the Center/Office senior official, should recommend to OEM improvements and 

changes thereto that are appropriate. The FDA EOP and any approved changes will be forwarded to all 

organizational components with responsibilities for implementation of the plan. 

The FDA EOP shall be placed on the FDA websites (intranet) inside.fda and (Internet) www.fda.gov and 

updated as changes occur. 

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FOOD & DRUG 

ADMINISTRATION 

U.S. DEPARTMENT OF HEALTH AND HUMAN SERVICES 

U.S. Food and Drug Administration 

Appendices to the 

FDA Emergency Operations Plan 

Version 3.0 

July 2019 

OFFICE OF EMERGENCY MANAGEMENT 
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FDA Emergency Operations Plan 

APPENDICES TABLE OF CONTENTS 

Appendix A: FDA Support for the Emergency Support Function Annexes to the

National Response Framework.............................................................................App A-1 

A.1 ESF #8 – Public Health and Medical Services................................................................. App A-1 

A.2 ESF #10 – Oil and Hazardous Materials Response ........................................................ App A-3 

A.3 ESF #11 – Agriculture and Natural Resources ................................................................App A-4 

Appendix B: FDA Support for the Incident Annexes to the NRF ............................... App B-1 

B.1 Biological Incident Annex ................................................................................................. App B-1 

B.2 Catastrophic Incident Annex ............................................................................................ App B-1 

B.3 Food and Agriculture Incident Annex...............................................................................App B-2 

B.4 Nuclear/Radiological Incident Annex ............................................................................... App B-3 

B.5 Terrorism Incident Law Enforcement and Investigation Annex ....................................... App B-4 

Appendix C: Processing Mission Assignment Sub-Taskings ................................... App C-1 

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

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

C.3 Scope ...............................................................................................................................App C-1 

C.4 Procedure.........................................................................................................................App C-2 

C.4.1 Processing Action Request Form .......................................................................App C-2 

C.4.1.1 FDA/State Coordination......................................................................App C-2 

C.4.1.1 Initial FDA Internal Coordination (Field and Headquarters)................App C-3 

C.4.2 Processing a Mission Assignment Sub-Task......................................................App C-3 

C.4.2.1 FDA/FEMA/HHS Coordination............................................................App C-3 

C.4.2.2 FDA Internal Coordination ..................................................................App C-4 

C.4.2.3 MA Monitoring and Closeout ..............................................................App C-4 

Attachment C-1: FDA Pre-Scripted Mission Assignments......................................App C-1-1 

Attachment C-2: RRF for FDA Retail Food Establishment Inspections Sample....App C-2-1 

Attachment C-3: MA Form Based On Completed RRF Sample...............................App C-3-1 

Attachment C-4: Stafford Act Mission Sub-Tasking Based on MA Form Sample .App C-4-1 

Appendix D: Characteristics of Potential Foodborne Agents.................................... App D-1 

Appendix E: Chemical Agents – Background Information ........................................ App E-1 

E.1 General Information ......................................................................................................... App E-1 

E.2 Classes of Chemical Warfare Agents .............................................................................. App E-1 

E.3 Nerve Agent Exposure Versus Nerve Agent Intoxication ................................................ App E-2 

E.4 Chemical Agent Characteristics....................................................................................... App E-3 

E.5 List of Additional Chemical Agents................................................................................... App E-4 

Appendix F: Biological Agents – Background Information ....................................... App F-1 

F.1 General Information ......................................................................................................... App F-1 

F.2 Classes of Biological Warfare Agents.............................................................................. App F-1 

F.3 Epidemiologic Clues That May Signal a Covert Bioterrorism Attack ............................... App F-2 

F.4 Bioterrorism Agents/Diseases By Category..................................................................... App F-3 

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FDA Emergency Operations Plan 

Appendix G: Oversight of Select Agents and Toxins by HHS/CDC and 

USDA/Animal and Plant Health Inspection Service.............................................App G-1 

G.1 HHS Select Agents and Toxins........................................................................................App G-1 

G.2 Overlap Select Agents and Toxins...................................................................................App G-2 

G.3 USDA Select Agents and Toxins .....................................................................................App G-2 

G.4 USDA Plant Protection and Quarantine Select Agents and Toxins.................................App G-2 

Appendix H: Domestic and International Traceback/Traceforward........................... App H-1 

H.1 Domestic ..........................................................................................................................App H-1 

H.2 International......................................................................................................................App H-1 

Appendix I: Memorandum of Understanding................................................................App I-1 

Appendix J: Forms and Templates...............................................................................App J-1 

Appendix K: Glossary of Terms...................................................................................App K-1 

Appendix L: List of Acronyms and Abbreviations...................................................... App L-1 

LIST OF FIGURES 

Figure C-1. Process Overview ...........................................................................................................App C-2 

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FDA Emergency Operations Plan 

Appendix A: 

FDA Support for the Emergency Support Function Annexes 

to the National Response Framework 

The Emergency Support Function (ESF) annexes to the National Response Framework (NRF) provide the 

structure for coordinating Federal interagency support for a Federal response to an incident. These are 

mechanisms for grouping functions most frequently used to provide Federal support to States and 

Federal-to-Federal support, both for declared disasters and emergencies under the Robert T. Stafford 

Disaster Relief and Emergency Assistance Act (Stafford Act) and for non-Stafford Act incidents. 

The ESF annexes are used by both Federal and State governments as the primary mechanism at the operational level to organize and provide assistance. ESFs align categories of resources and provide strategic 

objectives for their use. ESFs use standardized resource management concepts such as typing, inventorying, and tracking to facilitate the dispatch, deployment, and recovery of resources before, during, and after 

an incident. 

Depending on the nature of the emergency, FDA’s emergency response roles and responsibilities may fall 

under one or more of the following ESFs. 

A.1 ESF #8 – PUBLIC HEALTH AND MEDICAL SERVICES 

The ESF #8 – Public Health and Medical Services Annex44 provides the mechanism for Federal 

assistance to supplement State, local, tribal, and territorial (SLTT) and insular area resources in response 

to a disaster, emergency, or incident that may lead to a public health, medical, behavioral, or human 

service emergency, including those that have international implications. 

Primary Agency 

• U.S. Department of Health and Human Services (HHS) 

ESF Coordinator 

• HHS 

Scope 

ESF #8 provides supplemental assistance to SLTT and insular area governments in the following core 

functional areas: 

• Assessment of public health/medical needs 

• Health surveillance 

• Medical surge 

• Health/medical/veterinary equipment and supplies 

• Patient movement 

• Patient care 

• Safety and security of drugs, biologics, and medical devices 

• Safety and security of blood and tissues 

• Food safety and defense 

• Agriculture safety and security 

• All-hazards public health and medical consultation, technical assistance, and support 

• Behavioral healthcare 

44 For more information on ESF #8, refer to www.fema.gov/media-library/assets/documents/32198?id=7359. 

Appendix A: FDA Support for the 

July 2019 App A-1 ESF Annexes to the NRF 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Public health and medical information 

• Vector control 

• Guidance on potable water/wastewater and solid waste disposal 

• Mass fatality management, victim identification, and decontaminating remains 

• Veterinary medical support 

Core Capabilities and Actions 

The following table lists the response core capabilities that ESF #8 most directly supports along with the 

related ESF #8 actions. 

Table A-1. ESF Roles Aligned to Core Capabilities 

Core Capability ESF #8 – Public Health and Medical Services 

Public Information  Coordinates the Federal public health and medical messaging with jurisdictional officials. 

and Warning  Continuously acquires and assesses information on the incident. Sources of information may include 

State incident response authorities; officials of the responsible jurisdiction in charge of the disaster 

scene; and ESF #8 support departments, agencies, and organizations. 

 Provides public health, behavioral health, disease, and injury prevention information that can be 

transmitted to the general public and responders who are located in or near affected areas in 

languages and formats that are understandable to individuals with limited English proficiency and 

individuals with disabilities and others with access and functional needs. 

 Supports a Joint Information Center (JIC) in the release of general medical and public health 

response information to the public. 

Public and Private Blood and Tissues Safety and Security 

Services and  Monitors and ensures the safety, availability, and logistical requirements of blood and tissues. This Resources includes the ability of the existing supply chain resources to meet the manufacturing, testing, storage, 

and distribution of these products. 

Food Safety, Security, and Defense 

 In coordination with ESF #11, may task HHS components and request assistance from other ESF #8 

partner organizations to ensure the safety, security, and defense of federally regulated foods. 

Agriculture Safety and Security 

 In coordination with ESF #11, may task ESF #8 components to ensure the health, safety, and 

security of food-producing animals, animal feed, and therapeutics. ESF #8 may also provide 

veterinary assistance to ESF #11. Support will include the amelioration of zoonotic disease and 

caring for research animals where ESF #11 does not have the requisite expertise to render 

appropriate assistance. 

Public Health and Safety and Security of Drugs, Biologics, and Medical Devices 

Medical Services  During response, provides advice to private industry regarding the safety and efficacy of drugs; 

biologics (including blood, tissues, and vaccines); medical devices (including radiation emitting and 

screening devices); and other products that may have been compromised during an incident and are 

HHS-regulated products. 

All-Hazard Public Health and Medical Consultation, Technical Assistance, and Support 

 Providing advice on protective actions related to direct human and animal exposures and on indirect 

exposure through contaminated food, drugs, water supply, and other media. 

Public Health Aspects of Potable Water/Wastewater and Solid Waste 

 Assists in assessing potable water, wastewater, solid waste disposal, and other environmental health 

issues related to public health in establishments holding, preparing, and/or providing food, drugs, or 

medical devices at retail establishments and medical facilities;examining and responding to public 

health effects from contaminated water; conducting field investigations, including collection and 

laboratory analysis of relevant samples; providing equipment and supplies as needed; and providing 

technical assistance and consultation. 

Appendix A: FDA Support for the 

July 2019 App A-2 ESF Annexes to the NRF 
 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Agency Actions 

FDA will provide support, personnel, or expertise to HHS for many of the HHS responsibilities listed 

below. FDA will also: 

• Monitor blood and tissue supplies, shortages, and reserves. 

• Ensure the safety and security of food in coordination with other responsible Federal agencies 

(e.g., U.S. Department of Agriculture [USDA]). In cooperation with SLTT and insular area 

officials, assess whether food manufacturing, food processing, food distribution, food service, and 

food retail establishments in the affected area are able to provide safe food. 

• In cooperation with SLTT and insular area officials as well as the food industry, conduct 

tracebacks and/or recalls of adulterated products. 

• In cooperation with SLTT, insular area, and Federal officials, provide guidance regarding the 

proper disposal of contaminated products and the decontamination of affected food facilities in 

order to protect public health. 

• Provide public health risk communication messages and advisories that communicate, in a 

culturally and linguistically appropriate and accessible manner, relevant information on health 

hazards or other situations that could potentially threaten public health. 

• Disseminate public health information on protective actions related to exposure to health threats 

or environmental threats. 

• Notify or respond to foreign country potential health threats as required by International Health 

Regulations (IHR). 

• Provide support for public health matters for radiological incidents as a member of the Advisory 

Team for Environment, Food, and Health. 

• Consult public health and medical subject matter experts (SMEs) with ESF #8 supporting organizations (including partners representing all appropriate populations such as pediatric populations, 

populations with disabilities and others with access and functional needs, the aging, and those 

with temporary or chronic medical conditions). 

A.2 ESF #10 – OIL AND HAZARDOUS MATERIALS RESPONSE 

The ESF #10 – Oil and Hazardous Materials Response Annex45 provides Federal support in response to 

an actual or potential discharge and/or release of oil or hazardous materials (HazMat) when activated. 

Primary Agencies 

• U.S. Environmental Protection Agency (EPA) 

• U.S. Department of Homeland Security (DHS)/U.S. Coast Guard (USCG) 

ESF Coordinator 

• EPA 

Scope 

ESF #10 may be activated as described in the NRF for a Stafford Act response, at the Secretary of 

Homeland Security’s discretion, and/or in response to a request for Federal-to-Federal support. Federal 

response to oil or HazMat incidents may also be carried out under another key Federal response authority 

45 For more information on ESF #10, refer to www.fema.gov/media-library/assets/documents/32241?id=7376. 

Appendix A: FDA Support for the 

July 2019 App A-3 ESF Annexes to the NRF 
 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

called the National Oil and Hazardous Substances Pollution Contingency Plan (NCP),

46 a regulation 

from 40 Code of Federal Regulations (CFR) Part 300. The NCP is an operational supplement to the NRF 

and may be used in conjunction with, or independent from, the Stafford Act. 

The scope of ESF #10 includes the appropriate actions to prepare for and respond to a threat to public 

health, welfare, or the environment caused by actual or potential oil and HazMat incidents. 

HHS Actions 

HHS directly supports ESF #10 with the following action: 

• FDA: Works in cooperation with EPA and USDA to ensure the proper disposal of contaminated 

food or animal feed. 

A.3 ESF #11 – AGRICULTURE AND NATURAL RESOURCES 

The ESF #11 – Agriculture and Natural Resources Annex47 organizes and coordinates Federal support for 

the protection of the Nation’s agricultural and natural and cultural resources during national emergencies. 

ESF #11 works during actual and potential incidents to provide nutrition assistance; respond to animal 

and agricultural health issues; provide technical expertise, coordination, and support of animal and 

agricultural emergency management; ensure the safety and defense of the Nation’s supply of meat, 

poultry, and processed egg products; and ensure the protection of natural and cultural resources and 

historic properties. 

Primary Agencies 

• USDA 

• U.S. Department of the Interior (DOI) 

ESF Coordinator 

• USDA 

HHS Functions 

This section describes specific functions performed by HHS as an ESF #11 support agency: 

• HHS National Veterinary Response Teams, veterinary officers of the Commissioned Corps of the 

U.S. Public Health Service (USPHS), and other veterinary medical professionals within its 

divisions (such as the Centers for Disease Control and Prevention [CDC], FDA, and the National 

Institutes of Health [NIH]) are the primary Federal resource for treatment of injured and/or ill 

pets, service animals, working animals, laboratory animals, and livestock. Under its own statutory 

authority, HHS can manage and conduct animal response to zoonotic diseases in order to protect 

human health. 

• For livestock or poultry diseases exotic to the United States that are either not or only mildly 

zoonotic, HHS supports the USDA and its authority to manage a foreign animal disease response 

with the resources listed above. 

46 For more information on the NCP, refer to www.epa.gov/OEM/content/lawsregs/ncpover.htm. 47 For more information on ESF #11, refer to www.fema.gov/media-library/assets/documents/32213?id=7365. 

Appendix A: FDA Support for the 

July 2019 App A-4 ESF Annexes to the NRF 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Appendix B: 

FDA Support for the Incident Annexes to the NRF 

The Incident Annexes to the NRF describe the concept of operations (CONOPS) to address specific 

contingency or hazard situations or an element of an incident requiring specialized application of the 

NRF. 

Depending on the nature of the emergency, FDA’s response efforts support the following NRF Incident 

Annexes. 

B.1 BIOLOGICAL INCIDENT ANNEX 

Coordinating Agency 

• HHS 

Purpose/Scope 

The NRF Biological Incident Annex48 outlines the actions, roles, and responsibilities associated with a 

response to a human disease outbreak of known or unknown origin requiring Federal assistance. In this 

annex, a biological incident includes naturally occurring biological diseases (communicable and 

noncommunicable) in humans as well as terrorist events. This definition also includes those biological 

agents found in the environment, or diagnosed in animals, that have the potential for transmission to 

humans (zoonosis). The annex outlines biological incident response actions, including threat assessment 

notification procedures, laboratory testing, joint investigative/response procedures, and activities related 

to recovery. 

The annex supports policies and procedures outlined in ESF #8, ESF #10, ESF #11, ESF #15 – External 

Affairs, the Terrorism Incident Law Enforcement and Investigation Annex, and the International 

Coordination Support Annex. 

HHS serves as the Federal government’s primary agency for the public health and medical preparation 

and planning for and response to a biological terrorism or outbreak that results from either a known or 

novel pathogen, including an emerging infectious disease. 

The USDA serves as the government’s primary agency for outbreaks and/or attacks that may occur in 

animals used in the commercial production of food. USDA may also serve as the government’s primary 

agency for attacks on food processing, including slaughtering facilities under its regulatory purview. In 

the event of a food or animal event, HHS may provide additional public health and veterinary 

epidemiological assistance to USDA. Wildlife events will be placed under the purview of DOI, while 

those involving marine animals will be managed and monitored by the U.S. Department of Commerce. 

HHS Responsibilities 

See ESF #8 for additional information. 

48 For more information on the NRF Biological Incident Annex, refer to 

www.fema.gov/pdf/emergency/nrf/nrf_BiologicalIncidentAnnex.pdf. 

Appendix B: FDA Support for 

July 2019 App B-1 the Incident Annexes to the NRF 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

B.2 CATASTROPHIC INCIDENT ANNEX 

Coordinating Agency 

• DHS/Federal Emergency Management Agency (FEMA) 

Purpose/Scope 

The Catastrophic Incident Annex to the NRF (NRF-CIA)49 establishes the context and overarching 

strategy for implementing and coordinating an accelerated, proactive national response to a catastrophic 

incident. A catastrophic incident, as defined by the NRF, is any natural or man-made incident, including 

terrorism, that results in extraordinary levels of mass casualties, damage, or disruption severely affecting 

the population, infrastructure, environment, economy, national morale, and/or government functions. 

During a catastrophic incident, normal procedures for certain ESFs may be expedited or streamlined to 

address the magnitude of urgent requirements of the incident. All ESFs must explore economies of scale 

to maximize utilization and efficiency of limited resources. 

A more detailed and operationally specific Catastrophic Incident Supplement to the NRF (NRF-CIS) is 

published independently of the NRF and its annexes. 

FDA Responsibilities 

Upon notification from the National Operations Center (NOC) that the NRF-CIA has been implemented, 

Federal departments and agencies immediately: 

• Take actions to activate, mobilize, and deploy incident-specific resources in accordance with the 

NRF-CIS. 

• Take actions to protect life, property, and critical infrastructure under their jurisdiction and 

provide assistance within the affected area. 

• Commence those hazard-specific activities established under the appropriate and applicable NRF 

Incident Annex(es), including the NRF-CIA. 

• Commence functional activities and responsibilities established under the NRF ESF annexes. 

All Federal departments and agencies and organizations assigned primary or supporting ESF 

responsibilities immediately begin implementation of those responsibilities as appropriate or when 

directed by the President. 

B.3 FOOD AND AGRICULTURE INCIDENT ANNEX 

Coordinating Agencies 

• USDA 

• HHS 

Purpose/Scope 

The NRF Food and Agriculture Incident Annex50 describes the roles and responsibilities associated with 

all incidents involving the Nation’s agriculture and food systems that require a coordinated Federal 

response. The following are objectives of a coordinated national response to an incident impacting food 

and agriculture: 

49 For more information on the NRF-CIA, refer to www.fema.gov/pdf/emergency/nrf/nrf_CatastrophicIncidentAnnex.pdf. 50 For more information on the NRF Food and Agriculture Incident Annex, refer to 

www.fema.gov/pdf/emergency/nrf/nrf_FoodAgricultureIncidentAnnex.pdf. 

Appendix B: FDA Support for 

July 2019 App B-2 the Incident Annexes to the NRF 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Detect the event through the reporting of illness, disease/pest surveillance, routine testing, 

consumer complaints, and/or environmental monitoring. 

• Determine the primary coordinating agency. 

• Determine the source of the incident or outbreak. 

• Control and contain the distribution of the affected source. 

• Identify and protect the population at risk. 

• Assess public health, food, agriculture, and law enforcement implications. 

• Assess the extent of residual biological, chemical, or radiological contamination, then 

decontaminate and dispose as necessary. 

The NRF Food and Agriculture Incident Annex supports policies and procedures outlined in the NRF, 

ESF #8 – Public Health and Medical Services Annex, ESF #10 – Oil and Hazardous Materials Response 

Annex, ESF #11 – Agriculture and Natural Resources Annex, Terrorism Incident Law Enforcement and 

Investigation Annex, and the Federal Food and Agriculture Decontamination and Disposal Roles and 

Responsibilities document. 

HHS Responsibilities 

Specific responsibilities are described in greater detail in ESF #8, ESF #10, and ESF #11. 

HHS provides leadership by ensuring the safety and security of food, animal feed, food-producing 

animals, and animal therapeutics. HHS, through the CDC and in coordination with States, develops and 

implements surveillance systems to monitor the health of the human population. 

HHS, through FDA, has statutory authority for all domestic and imported food except meat, poultry, and 

egg products that are under the authority of the USDA Food Safety and Inspection Service (FSIS). FDA 

also has statutory authority for animal feed and for the approval of animal drugs intended for both 

therapeutic and nontherapeutic use in food animals as well as household pets and service animals. 

FDA Responsibilities 

FDA responsibilities are as follows: 

• If FDA suspects a threat involving biological or chemical agents, nuclear/ radiological material or 

indications that instances of disease may not be the result of natural causes, the U.S. Department 

of Justice (DOJ) must be notified through the DOJ Federal Bureau of Investigation Weapons of 

Mass Destruction (FBI WMD) Operations Unit. 

• Any potential or actual incidents requiring a coordinated Federal response involving 

contaminated food, infected animals or plants, or economically devastating plant pest infestation 

should be reported to the Secretary of Homeland Security through the NOC at 202-282-8101 and 

brought to the attention of designated officials according to ESF #8 and ESF #11. 

• If terrorist activity is suspected in connection with the incident, procedures outlined in the 

Terrorism Incident Law Enforcement and Investigation Annex will be followed. 

B.4 NUCLEAR/RADIOLOGICAL INCIDENT ANNEX 

Coordinating Agencies 

• U.S. Department of Defense (DoD) 

• U.S. Department of Energy (DOE) 

• DHS 

Appendix B: FDA Support for 

July 2019 App B-3 the Incident Annexes to the NRF 
 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• EPA 

• National Aeronautics and Space Administration (NASA) 

• U.S. Nuclear Regulatory Commission (NRC) 

Purpose/Scope 

The Nuclear/Radiological Incident Annex (NRIA) to the NRF describes the policies, situations, 

CONOPS, and responsibilities of the Federal departments and agencies governing the immediate response 

and short-term recovery activities for incidents involving release of radioactive materials to address the 

consequences of the event. These incidents may occur on federally owned or licensed facilities, privately 

owned property, urban centers, or other areas and may vary in severity from the small to the catastrophic. 

The incidents may result from inadvertent or deliberate acts. The NRIA applies to incidents when the 

nature and scope of the incident requires a Federal response to supplement the State, tribal, or local 

incident response. 

This annex applies to two categories of nuclear and radiological incidents: (1) inadvertent or 

otherwiseaccidental releases and (2) releases related to deliberate acts. These incidents may also include 

potential release of radioactive material that poses an actual or perceived hazard to public health, safety, 

national security, and/or the environment. The category covering inadvertent releases includes: two 

categories of nuclear facilities (commercial or weapons production facilities), lost radioactive material 

sources, transportation accidents involving nuclear/radioactive material, domestic nuclear weapons 

accidents, and foreign accidents involving nuclear or radioactive material that impact the United States or 

its territories, possessions, or territorial waters. The second category includes, but is not limited to, 

response to the effects of deliberate attacks perpetrated with radiological dispersal devices (RDDs), 

nuclear weapons, or improvised nuclear devices (INDs). 

This annex applies whenever a Federal response is undertaken unilaterally pursuant to Federal authorities 

or when an incident exceeds or is anticipated to exceed State, tribal, or local resources. The level of 

Federal response to a specific incident is based on numerous factors, including the ability of State, tribal, 

and local officials to respond; the type, amount, and custody of (or authority over) radioactive material 

involved; the extent of the impact or potential impact on the public and environment; and the size of the 

affected area. 

FDA Responsibilities 

FDA responsibilities are as follows: 

• Provide a representative to the Advisory Team to develop coordinated advice and 

recommendations on environmental, food, health, and animal health matters for the Incident 

Command/Unified Command (UC), DHS, Joint Field Office (JFO) Unified Coordination Group, 

the coordinating agency, and/or State, tribal, and local government as appropriate. 

• Provide laboratory capabilities for food and agriculture analysis. 

− FDA must maintain laboratory capability for regulatory, confirmatory, and screening analysis 

for both routine and emergency response operations including: 

 Maintaining an alternate laboratory location for both routine and emergency response 

confirmatory analysis in the case of an emergency shutdown of the Winchester 

Laboratory 

 FDA must maintain Food Emergency Response Network (FERN) capability to screen 

and triage food and agricultural samples for response to a radiological emergency. 

Appendix B: FDA Support for 

July 2019 App B-4 the Incident Annexes to the NRF 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

B.5 TERRORISM INCIDENT LAW ENFORCEMENT AND INVESTIGATION ANNEX 

Coordinating Agency 

• DOJ/FBI 

Purpose/Scope 

The purpose of the Terrorism Incident Law Enforcement and Investigation Annex is to facilitate an 

effective Federal law enforcement and investigative response to all threats or acts of terrorism within the 

United States, regardless of whether they are deemed credible and/or whether they escalate to an “incident 

of national significance.” To accomplish this, the annex establishes a structure for a systematic, coordinated, unified, timely, and effective national law enforcement and investigative response to threats or acts 

of terrorism within the United States. 

This annex is a strategic document that: 

• Provides planning guidance and outlines operational concepts for the Federal law enforcement 

and investigative response to a threat or an actual terrorist incident within the United States. 

• Acknowledges and outlines the unique nature of each threat or incident, the capabilities and 

responsibilities of the local jurisdictions, and the law enforcement and investigative activities 

necessary to prevent or mitigate a specific threat or incident. 

FDA Responsibilities 

FDA responsibilities are as follows: 

• Provide support to Federal law enforcement and investigative response efforts related to threats or 

acts of terrorism involving or impacting FDA-regulated products. 

• If terrorist activity is suspected in connection with any incident involving FDA-regulated product, 

the Terrorism Incident Law Enforcement and Investigation Annex will be followed and the Office 

of Criminal Investigations (OCI) should be notified of such. OCI will coordinate the terrorism 

incident law enforcement response with the FBI. 

• Provide laboratory capabilities for food and agriculture analysis. 

− FDA must maintain essential laboratory capability for testing of its regulated products. 

− ORA laboratory network provides redundant capability in key areas such that analytical 

operations associated with an emergency can still be conducted in the event of a shutdown of 

one of the laboratories. 

 The FDA FERN includes a group of labs supported by the agency Cooperative 

Agreement Program (CAP) that have key microbiological, chemical, and radiological 

testing capability. These CAP labs can also be utilized in an emergency situation to 

provide essential testing in FDA priority areas as well. 

Appendix B: FDA Support for 

July 2019 App B-5 the Incident Annexes to the NRF 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix B: FDA Support for 

July 2019 App B-6 the Incident Annexes to the NRF 
 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Appendix C: 

Processing Mission Assignment Sub-Taskings 

C.1 PURPOSE 

The purpose of this appendix is to establish a uniform procedure for FDA to execute sub-tasks under 

mission assignments (MAs). The appendix supports HHS MAs under the NRF and the National Disaster 

Recovery Framework (NDRF). 

FDA provides timely disaster response operating under its own authorities. In response to a catastrophic 

event, there are cases where DHS/FEMA will issue MAs to HHS/FDA to provide additional resources to 

States and local jurisdictions affected by the disaster. Types of assignments include supporting States for 

the inspection of retail food establishments and pharmacies, sample collection, and providing SMEs. A 

list of possible assignments is provided at Attachment C-1 (FDA Pre-Scripted Mission Assignments). 

MAs are addressed in the FDA Emergency Operations Plan (EOP) in Section B.2.2.3.4, “Mission 

Assignments in Support of State and Local Response.” 

C.2 ASSUMPTIONS 

Assumptions are as follows: 

• MAs may be issued when the NRF or NDRF is activated as part of a Stafford Act declaration that 

requires a coordinated Federal response to manage a disaster and/or emergency. MAs may also be 

issued to HHS when Recovery Support Function (RSF) annexes are activated under the NDRF. 

• The need for Federal assistance exists when the incident is of such severity and magnitude that 

SLTT resources are exceeded. The SLTT requests support activities outside the normal scope of 

FDA’s mission. 

• This appendix refers only to MAs issued by FEMA to HHS and not requests for assistance from 

other Federal and/or SLTT agencies. The term “mission assignment” may at times be used to 

describe a variety of missions and tasks undertaken by FDA. 

• FDA completes assignments only as MA sub-tasks issued by HHS. FDA does not sub-task other 

Federal agencies. Offers of assistance from other Federal agencies should be referred to the HHS 

SOC or FEMA. 

• MA funds are used appropriately and expeditiously. Financial operations are conducted in 

accordance with established Federal law, policies, regulations, and standards to protect Federal 

government resources from waste, fraud, and mismanagement. 

C.3 SCOPE 

This appendix applies to all FDA personnel involved in processing an HHS MA sub-task, including FDA 

field and headquarters staff and HHS response elements including the EMG Operations, the Human 

Services Watch Officer, SOC Operations Officers, and ASPR Administration and Finance (A&F). 

Appendix C: Processing 

July 2019 App C-1 Mission Assignment Sub-Taskings 
 

 

 

source 

Request Form 

ll 

Joint Field 

Office 

Mission Assignment FEMA 

Review/Approval 

-

--

-- 11111111 FDA District 

l Sub-tasking 

111111 Coordination/Assistance 

If Revision Required 

Sub-tasking 

- Document Flow 

Mission 

Assignment 

FDA Emergency Operations Plan 

C.4 PROCEDURE 

C.4.1 Processing Resource Request Form 

C.4.1.1 FDA/State Coordination 

While the State is responsible for determining their specific needs during a disaster, FDA field staff may 

assist the State in developing language for inclusion into Resource Request Forms (RRFs) if requested 

(see Attachment C-2 [RRF for FDA Retail Food Establishment Inspections Sample – FEMA Form 010-

0-7]). The MA sub-task process allows FDA to be reimbursed for providing States with additional 

resources and assistance beyond the services and guidance provided by FDA during normal operations. 

Figure C-1 provides an overview of the process. 

Figure C-1. Process Overview 

The MA sub-task process is as follows: 

1. Information exchanges with the State can be initiated by District offices on an informal basis to 

ensure requests are within FDA’s capabilities and to facilitate coordination. To expedite this step, 

see Attachment C-1 for a list of FDA Pre-Scripted Mission Assignments (PSMAs) prepared 

specifically for FDA as HHS MA sub-tasks. PSMAs provide examples and templates for the 

State to use in developing specific requests and submitting them in RRFs. See Attachment C-2 

for instructions on completing RRFs and a sample RRF. 

2. Once FDA field begins discussions above with the State, the Office of Emergency Management/ 

Office of Emergency Operations (OEM/OEO) should be notified of a possible RRF to be 

submitted to FEMA. 

3. During the information exchange, it may be necessary to assist the State to define requests. 

Specific State requirements should be identified and compared with State capabilities. If a gap is 

identified, appropriate FDA resources should be identified for meeting shortfalls in coordination 

with OEM/OEO. 

Appendix C: Processing 

July 2019 App C-2 Mission Assignment Sub-Taskings 
 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

4. The State is responsible for initiating, reviewing, and submitting all RRFs to FEMA for review, 

approval, and submission to the appropriate department/agency/ESF. Attachment C-1 also 

provides a draft statement of work developed by FDA. 

5. HHS may deploy an Incident Response Coordination Team (IRCT) to be primarily responsible 

for supporting the Federal public health and medical management of an incident. The IRCT 

provides the field management component of the Federal public health and medical response. 

FDA field staff will advise the IRCT as appropriate regarding the scope of any RRF. FDA may 

provide a liaison to the IRCT. 

6. FEMA receives and reviews the RRF to determine if the request is appropriate for the specific 

event. If FEMA agrees, the RRF is submitted to the appropriate ESF agency for their review, cost 

estimation, and return to FEMA for final review and approval. 

C.4.1.2 Initial FDA Internal Coordination (Field and Headquarters) 

Initial FDA internal coordination (field and headquarters) including the following: 

1. Activation of an ESF/RSF, where FDA is a support agency, may indicate that MAs may be subtasked to FDA. For incidents that may require FDA support to the States, OEM/OEO will inform 

the appropriate FDA Centers/Offices that activation has occurred and MA sub-tasks may be 

received. 

2. If an FDA Incident Management Group (IMG) is established in the FDA Emergency Operations 

Center (EOC), MA sub-task reviews will be performed by the appropriate IMG member. If an 

IMG is not established, MA sub-task reviews will be performed by OEM/OEO. From this point 

forward in the appendix, the term “FDA EOC” refers to the IMG or OEM/OEO. 

3. If an Incident Management Team (IMT) is established by an FDA District Office, MA sub-task 

reviews will be performed by the appropriate IMT member designated by the Incident 

Commander (IC). If an IMT is not established, MA sub-task reviews will be performed by the 

appropriate staff from the Program or District Office. 

C.4.2 Processing a Mission Assignment Sub-Task 

FEMA may issue MAs to other Federal agencies to (1) address a State’s request for Federal assistance to 

meet emergency needs or (2) support overall Federal operations pursuant to, or in anticipation of, a 

Stafford Act declaration. 

C.4.2.1 FDA/FEMA/HHS Coordination 

FDA/FEMA/HHS coordination will be as follows: 

1. The FEMA JFO will develop an MA (see Attachment C-3 [MA Form Based on Completed RRF 

Sample – FEMA Form 010-0-8]) based on the RRF. MA development will take place with input 

and review by the District Director (DD), or designee from the relevant District, in consultation 

with the FDA EOC, and in coordination with the HHS Regional Emergency Coordinator (REC). 

The cost associated with the execution of the MA will be based on PSMA cost estimates or other 

cost information from the FDA Office of Regulatory Affairs (ORA) and/or relevant Centers. 

2. FEMA will task HHS by sending the formal MA with the FEMA Integrated Financial 

Management Information System (IFMIS) stamp (certification of funds) to the HHS SOC 

(hhs.soc@hhs.gov). 

3. The FDA EOC will alert the appropriate Centers/Offices that an MA sub-task is forthcoming. 

Appendix C: Processing 

July 2019 App C-3 Mission Assignment Sub-Taskings 
 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

4. Upon approval, HHS/ASPR A&F will send the MA to HHS EMG Operations for the final 

approval before sub-tasking FDA. 

5. The HHS/ASPR A&F will send the signed sub-task to the FDA EOC obligating funds for FDA to 

respond to the State’s request. 

6. The FDA EOC will forward the sub-task to the ORA Office of Resource Management (ORM) 

and Office of Financial Management (OFM) for review and signature. Based on their review, 

ORA ORM/OFM will provide final review and signature and forward back to the FDA EOC. 

7. The FDA EOC will scan the signed sub-task, enter it into the Emergency Operations Network – 

Incident Management System (EON-IMS), and send it back to the HHS SOC with a copy to 

HHS/ASPR A&F. 

C.4.2.2 FDA Internal Coordination 

FDA internal coordination is as follows: 

1. The FDA EOC notifies appropriate Program and District staff and Centers/Offices of the sub-task 

approval. 

2. Sub-tasks will be documented in the Incident Action Plan (IAP). 

3. The FDA EOC transmits the sub-task funding requirements to the Office of the Commissioner 

(OC)/Office of Operations (OO)/Office of Finance, Budget, and Acquisition (OFBA)/Office of 

Financial Operations (OFO)/OFM/Division of Budget Execution and Control. 

4. The Division of Budget Execution and Control informs the Office of Global Regulatory 

Operations and Policy (OGROP)/ORA/ORM/Division of Budget Formulation and Execution, 

which is responsible for issuing accounting data and providing funding to the District Office for 

response actions. OGROP/ORA/Office of Policy and Risk Management (OPRM)/Division of 

Planning, Evaluation, and Management may establish a Program Account Code (PAC) or refer to 

an existing one to provide for time reporting. Response personnel enter data (such as laboratory 

and investigation time expended) into the Field Accomplishments and Compliance Tracking 

System (FACTS) on an ongoing basis. 

5. FDA field staff for the affected area notifies the FEMA JFO or District Offices, the affected 

State(s), and others as appropriate of the receipt of a valid sub-tasking from HHS and corresponding authorization to take appropriate response actions. 

C.4.2.3 MA Monitoring and Closeout 

The MA monitoring and closeout process is as follows: 

1. During operations under the sub-task, the FDA EOC will monitor the expenditure of funds in 

order to avoid potential over-spending. When the obligation level approaches 75 percent of 

authorized funds, the FDA EOC will notify HHS/ASPR A&F if any additional funding needs are 

anticipated. HHS/ASPR A&F will coordinate with FEMA to amend the MA as required. 

Justification for additional funding is required. The FDA EOC needs to be kept apprised of any 

changes in the scope of the sub-task. 

2. When nearing completion of the mission, FDA field staff will discuss with the appropriate FEMA 

JFO ESF lead and State representatives any issues regarding the completion of the work and 

ensure the work has been completed in a satisfactory manner. Decisions regarding the official end 

date of the mission will be made during this communication. 

Appendix C: Processing 

July 2019 App C-4 Mission Assignment Sub-Taskings 
 

 

 

 

FDA Emergency Operations Plan 

3. Upon deactivation of the MA, FDA field staff must provide the FEMA MA Manager (with a 

courtesy copy to the Human Services Watch Officer) with a listing of any other ongoing subtasks and their status, Property Disposition Forms (if applicable), and financial and program 

points of contact (POCs). 

4. Prior to demobilization, any deployed FDA personnel will notify their supervisor and the FDA 

EOC of travel arrangements. 

5. The FDA EOC will compile and submit all data, costs, and supporting documentation as 

requested in the Stafford Act Mission Assignment Sub-Tasking Form (see example in 

Attachment C-4) to HHS/ASPR A&F. 

6. HHS/ASPR A&F is responsible for submitting all close-out reports to the FEMA MA office for 

any additional eligible reimbursable costs incurred during the mission. 

Appendix C: Processing 

July 2019 App C-5 Mission Assignment Sub-Taskings 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix C: Processing 

July 2019 App C-1 Mission Assignment Sub-Taskings 
 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Attachment C-1: 

FDA Pre-Scripted Mission Assignments 

Requests for support from State and local agencies can be made directly to FDA or, in the case of a 

declaration of a major disaster or emergency, through FEMA. In order to assist States and local agencies 

with such requests, FDA has developed PSMAs under ESF #8, which can be used as examples to 

expedite the preparation and submission of such requests. Draft MA text is provided below. 

Assistance Requested 

HHS will provide food and product safety investigations to augment State and local staff in support of 

disaster operations in response to [insert disaster name/#]. 

Statement of Work 

At the direction of, and in coordination with FEMA, HHS will address immediate and short-term issues 

that impact whether food, drugs, biologics, and medical devices that have been directly affected by this 

incident are still appropriate for use. HHS will also assist in determining what steps, if any, may be 

employed to restore drugs, biologics, medical devices, and food to a condition whereby they would be 

fit for use. FDA investigators and consumer safety officers will assist State and local staff with the 

following services: 

• Collect and analyze samples of foods, drugs, cosmetics, and/or medical devices for attributes, 

as necessary, to assist in providing assurance that commodities are fit for use. 

• Conduct food safety inspections at retail food service establishments to ensure compliance with 

food safety standards, to include restaurants, school and hospital cafeterias, daycare center 

food service establishments, temporary shelters, and others. 

• Conduct biologic, drug, and medical product safety inspections of pharmacies, hospitals, retail 

establishments, and other establishments that provide human and/or animal drugs, biologics, 

and medical devices to ensure these items have been stored under appropriate conditions and 

are fit for use. 

• Conduct assessments for acceptable levels of radiation emission in facilities where diagnostic 

x-ray and mammography equipment are installed. 

• Train disaster response personnel in food safety, preparation, handling, and storage. 

Lease or Purchase of Accountable Property 

None. 

FEMA Logistical Support 

• Teams may require some level of base operating support (e.g., food, shelter, laundry). 

• MA task orders will be issued for individual personnel and/or teams as required by the incident 

and will specify times, location, and dates. 

• HHS may sub-task other Federal agencies for disaster medical support requirements as needed. 

Attachment C-1: 

July 2019 App C-1-1 FDA Pre-Scripted Mission Assignments 
 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Type of Assistance 

Direct Federal assistance. 

Cost depends on which of the following resources are utilized. All teams will not necessarily be 

deployed: 

• FDA Retail Food Establishment Inspections. FDA investigators (consumer safety officers) 

to augment State and local staff to perform inspections of establishments serving food at retail 

in <location> for conformance to appropriate food safety standards. Such establishments may 

include restaurants, school and hospital cafeterias, daycare center food service establishments, 

and temporary shelters, among others. 

• FDA Food, Cosmetic, and Medical Product Establishment Inspection. FDA investigators 

(consumer safety officers) to augment State and local staff to conduct inspections of establishments that prepare, pack, and/or hold human and/or animal food, human and/or animal drugs, 

biologics, cosmetics, and/or medical devices to help ensure such commodities are safe, 

effective, and/or otherwise fit for use. 

• FDA Pharmacy Inspections. FDA investigators (consumer safety officers) to augment State 

and local staff to perform inspections of pharmacies and other establishments offering human 

and/or animal drugs, biologics, and medical devices at retail to assist in ensuring such drugs, 

biologics, and medical devices have been stored under appropriate conditions and are fit for 

use. 

• FDA Sample Collections. FDA investigators (consumer safety officers) to augment State and 

local staff to perform sample collections of human and/or animal foods, cosmetics, human 

and/or animal drugs, biologics, and medical devices for subsequent analyses. 

• FDA Analysts. FDA analysts (including microbiologists, chemists, biologists, and other 

disciplines as appropriate) to augment State and local staff to analyze samples of foods, drugs, 

medical devices, and cosmetics to assist in providing assurance that these commodities are fit 

for use. 

• FDA Food Safety Training. FDA investigators (consumer safety officers) or other FDA staff 

with food safety expertise to provide training in food safety preparation, handling, and storage 

to volunteers and/or other appropriate disaster response personnel. 

• FDA SMEs. FDA SMEs to augment State and local staff to address issues that impact whether 

human and/or animal drugs, biologics, human and/or animal foods, and medical devices are 

appropriate for use and/or to provide guidance on what steps, if any, may be employed to 

restore human and/or animal drugs, biologics, human and/or animal foods, cosmetics, and 

medical devices to a condition whereby they would be fit for use. 

• FDA X-Ray Mammography Analysis. FDA investigators (consumer safety officers) with 

expertise in this area to augment State and local staff to conduct assessments (field tests) of 

facilities where diagnostic x-ray and mammography equipment are installed, to help ensure the 

equipment is operating within acceptable radiation emission limits. 

Attachment C-1: 

July 2019 App C-1-2 FDA Pre-Scripted Mission Assignments 
 

 

 

 

FDA Emergency Operations Plan 

Attachment C-2: 

RRF for FDA Retail Food Establishment Inspections Sample 

Instructions on Completing the Resource Request Form (RRF) 

The State requesting assistance will need to complete Section I and Section II; most items are selfexplanatory. For item II.1 (Description of Requested Assistance), the appropriate PSMA can form the 

basis for the text to be inserted. PSMAs serve only as a guide to expedite the process; the text can be 

modified as needed to reflect the mission, local conditions, and State requirements. 

In addition, HHS requires a preliminary estimate of costs based upon the number of resources for the 

duration deployment. Use the following as a basis for an estimate: 

1. Deploy one investigator for 7 days: $5,000 

(does not include standard pay; includes travel, per diem, and overtime) 

Calculate: 

Weeks x Personnel Deployed x 5,000 = Estimated Cost 

Example: 

2 weeks x 5 personnel x 5,000 = $50,000 

NOTE: The costs are only estimates that should be used for development of RRFs. These estimates may 

be adjusted by HHS/ASPR A&F or FEMA prior to issuance of the MA. If the funding amount on the subtask is below the estimated cost provided by FDA, the Program and/or District Office should notify the 

FDA EOC, who will discuss with HHS/ASPR A&F. 

Attachment C-2: RRF for FDA 

July 2019 App C-2-1 Retail Food Establishment Inspections 
PAPERWORK B RDEJI DDSClcO!S1.I RE HOTICE 

PU~lc. reporu g oonre r ns ~ IS estrma:ed to averag;! ~ r:nlruJtE& p on5e. Ttl2 oo esurna:e I rF, ewlllg 1116lrllc"Jorn;, 

5Eerdllng e>:latlDjJ dala 500!02 gatl:1Ef1ng and mant31lll g e rti!ell!e ,~ arm roqils:tig and E111mltt1Djj r:mallb IS r,eqiilcd to 

,oo or retail! Ile ems_ Y,IIIJ are not req rE<I ID ~ood :o 1tils Otilleclto rmau nless It ,!IEf{'ays a Ir,/ OPlB, ,Clllllrd number . .Serm oommenlE 

regarllDjJ 1tle ,a=iraq or 1tle IMJrde ,~:mate aoo aziy· '61.g9i=61loo:; ror rE<loong this ~1Jllile11 :oc I orma o c E<:'Jons Ma ~Ent Depaillme 1 ar 1'1001 d 

.Security. felferal Emergl!\lley M agemen.l ,"-gem:!!", 5'll C S1r-eet. sv,. Vo'ali~llll, DC .20412-31 D • p, fCll1l 111.Ji:llllll Plti)2ct ( 1661ll-lloD471. HO•TE: 0€1 

11Cil se1111 :!fO!fI ,comp1eted torm o Is ,address_ 

IL REQl!fESTIING ASSISTANCE (Tobe ,eomple:led bff Requestorl 

lease prini) 

, _ Requestol's OJ,garnizati 

CMDOH 

2. Trtle 

Proor:-am Manaaer 

5.fax o.. 

Ill. REQUESHt4G AS,S'ISTA~CE {To be compl'.eted by Req;1.1estor) 

1 _ Description ,of Requested Assistmce: 

-_ DeliYery Site Location 

R 

r 

r 

r 0 1her Coordin 

3. Priarify 1 Lifesa.Ying 1 

18 Hlg 

r 0 1her Coordinu- •..._ ____________ _ 

4. Immediate: Action Required r Yes r tllo 

11\1''_ STATEIIENIT Or WOIRJK. (Operations Section 0 nl:y) 

1- OFA. A.coon 0 - r 

, _ f EMA f'roiecl Mana,ger 

7_ Sta. e: i: ,of Work 

r Rejected 

Reason I Oispos~ an 

6. E-Mail 

n Donations 

• • • r 

n 

Other (IExpla- ) 

Re:quisf · ans 

Procunement 

I teragency Agreement 

sion Assignment 

2. 24 our Ph one# 

5. 24 our Phone# 

g,_ IEs -rm'ed Cosl 

, _ Da.te and Time eeded 

0 , 

ESfl' !FA.: HH<S -----1 

RSFtOrA: -----1 

Other: 

IJ.ate!T 1111 e: 

----1 

3. faoc ~ 

1 Reques,tor alified 

r EMA rORM 0 10'-0cl F'REVIOU5!LY ffgci :36 

DEPAR'TMEN OF OMELA D SEGUR 

Fed,eral Emel'genc.y Management Agency 

RESOURCE REQUEST IIFORM (RRF) 

O_M_e_ tlo_ 166(}C(J002 

&pires May 31, .2M7 

FDA Emergency Operations Plan 

Attachment C-2: RRF for FDA 

July 2019 App C-2-2 Retail Food Establishment Inspections 
ECAPSfNEMIS .as'k ID: 

Received b~ l a and Org - tion) 

RES-OURCE IR:EQUEST FORM IRRF) 

TRACKING IINFO'RMATION (FIBMA IUse On'lyJ, 

ReS011roe Request # Rq ram Code/Event# 

Slate D 1me Received 

lNSTRUCTION,S, 

1 Originated 

as ~-e.rbal 

lterns. ,on ihe REoSaurce Reqμesl ·onn at are not ·spe,cificaty listed ai,e sefw-aplanatory. Indicate "see attached" in 

space ,o:r more inforrre-1ion is i,eq,uired. 

field for which ad 

L Who is req,ues • gas ·Slanoe? Completed l:J.y reql!lestar. 

D. What needs to be done?· Cample l:J.y quest er. 

·• resource sharlfaSs., statemenl 

Br:il!.cit)!;. The• i,equestar's priori!,;, , · c1, may differ from lhe priarily in IBOX IIL 

or simply sral e proble fneed . 

~ The• pers;on at ihe d eliYery site• cooli1:l ina • g reception and · 'lizaoon 

i,equired . 

our camact infamla.tion 

In for Direct f,ederal As,si~trice WEA) 

DI. A.cti perations Section Chief or ReS011r,ce Capability Branch Dii,ectar. 

Aecei,t)Beject Operations S 

i,equest .aocepted. cooli1:l i 

inwhred in coaronati 

ooon. 

As-signed to· Operations ,01 •ouroe Capabilily Elrandh Dire<:tor assitJ}s taslfs ,origination. may indicate the if A AD1ian Officer. 

Operations Sec · Ohie e lhe AD1ian Officer · nawn, or tasked organization may ma'l;e lhis assignment. is mar be 

EimagencySuppart Funciia...._-.... - FEMA. Org · tion (i.e.; l ogi.sliics), ,or oih o rgen'ization. 

Dajemme Assigned· Operations Secoon Chie'or Resowce- Capabilily lBranch Dirrectar pl'D "des date and time "when ·sourcingi ·should begin. 

W . S1atemen1 of Wor (OPS Section Use Only): Compte.ted by e Opet-alioos Section C · for esouroe Capabilily Branch irector. 

OFA Actioo Officer; Ops Sed:ion Ohie'" abrains ··ro OFA · i,equest fijfilled by a MA.; 24-hr phoneffax requil'ed. lnfamiation used in eC-A!PS. 

FEIMA Project P,fanagec Provided by Opera.· ns Secti Ohief; a Region PFT: 2 ~ phooeKax reqμired. ln'ormation used in eCAIPS. 

Sta!ement o' Wort· escription of ias ·s to be· perfooned. Could be to assess a problem and report bac • or ,ooud be to proceed WjJ, .a specific 

.aooon. If 40- 1 or MA, · . goes in "j.usiifica1ian" lab in eCAPS. 

V. Action Ta en (OPS Section Use ly): Compe,ted by Operations Section Chief, ReSOllrce- Capability Branch [)ii,eai:ar. '1A U'n· or logistics. 

Resource Re(!Yesl Res,fts· Ops Seccon Chie' , Resource- Su~part Section ·hie', M~ nil, or 06 s'hould noie whal type ,01 document the 

aooon resdted in by "chec; ingi appropriate box i e., M1 Aid, Donations, Requisition, Procurement , I M 0 1her. If "Other" is seJected 

· •·. in appropriate ~ onse er stale ··see l:J.elcwi" .and ,give delail de.scrip ·on in isposf ·on· fie.Id. "Dispositi • 'ield shom:I no!B SIE\PS ta kJ to 

,complete lhe Aooan. petSDnn sub-las ed .agencies, tracts and alher reS011rCes. "li2ied. 

TRACKING INF iRMA ION. Carnple by Action ra.cks. Required · a5 requests . 

PREVIOUS Y ff @ c 13a Page 2 2 

FDA Emergency Operations Plan 

Attachment C-2: RRF for FDA 

July 2019 App C-2-3 Retail Food Establishment Inspections 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Attachment C-2: RRF for FDA 

July 2019 App C-2-4 Retail Food Establishment Inspections 
PAPERWORK BURDEN DISCLOSURE NOTICE 

Public rEpJrlDJ bm:len or lhis funn · estimate<l to .aiierage 20 minutes per response. The bum es e. indooes lhe • for re,,iewing inslnEtions. 

sea.rchng existing cllta soorces, ,gaiherng and man · · g, the. needed ta, and ,compl · , aid subm:lling, this farm. This collecoon d infonmtoon is req.iired ID 

obtan or retain benefits, Yau are not reqused to re5pOM to lhis ooledion ,of il'Tfoonation lri:s.'5 it dSflb;s a Yal id 0MB cootrol rurl:Ef". Send comments 

regsroirg lhe accuracy of the buroet1 es1imate aid any 91.Q1es1ions far redlalg this burden to: l'Tfonmlion Ccllections Mlnagement. ~parimenl ci Homeland 

Sea.uity. Federal Emergen::y Managemenl Aqency, ro:I C Street, SW. Washington. DC 20472-3 100, Paperworil Reductioo Projecl (1&JINI047}. NOTE: Do 

not send your eompleted foml to this address. 

I. TRACK ING INFORMATION (FEMA Use. On ly) 

State 

CM (state of Columb ia ) tncident 2(] 17 102505 

Program CodelEvent Num ber 

40a6DR-OM 'umcane Zulu 

IL ASSISTANCE R EQUIRED 

As:s,i stance Requested 

Resou rce Request umber 

1509-- 158871 

DatetTime. Received 

12/04/2017 2306 

r See Attached 

S wi~ provide. food and produ ct safety i:nve.s/liga:ors to aug me.n state. mbal and local sta · 

H rricane Zuli.J i ll lhe Slate of Columbia. 

isaste.r ,ope.rat ions i ll re.spor>Se. to 

De.l ivery L,ocafion 

Various [oca~ons througnoul. Columnia 

tnilfator/Re.ques :or ame. 

Kurt Dana1dio 

Site POC Name 

JAIMES ALFRED 

IV. DESCRIPTION 

statement o,Wo;d< 

Priority r 

r 

Da'.e 

121'0412(] 17 

1 . Lifesavfn g1 Ix 3. igh 

2. Life sustaining r 4 . Nonna! 

Ix See Attached 

At the. direction of and ill coo er , HHS will provide. rood and product safety invesljgafors ro augnneilli slate and local staff ro 

perfurm inspedions. eslabl , serving, food at re.tail e.stabfi5'h me.rns for •confoimaooe to appropriate. food safety standards. Su:ch 

e.sbblishme.nis m ay included r-e.s!au ranl15. school and hospital ca · e.ria.s; day care. center food servi:ce es bli'shrneillis; empora,y shelters. 

Yoo- ,;:gancy 11115! ,-a:111T.~ 1lle llillJIIIE- MA -ce at [esl ar:ffll.lBlly a,;~-l>y f EI L!\ to rrarrtal rEln:t>Jl'Jalll;! a!.I.lKl<t • Aooruall llJta m"5I a.so be ~-IIE<l r.o FEM!\ no later mn Ile llwll lllJ6tle!i6 ,aay al1Er seal ql.Ell1H Ell<I ,Ctoae. fn1lmliallllf1 be aJllfftt'._ t,J, fiiil,IA--lllia,;le,--Mlt-\JLCJ@ISls.g!W. f'llr PH!. ~ an~ rEIIID'J""'11Bl1 ~E'aSe 

"1all lt!p1.1>1•.ow.1Ema.~ffiil«wl<l:ng-<llsas'.;,r-ass1&tmce. 

As-s,jgned Agency 

HHS (DEPT. OF EAlTH & HUMt\N SVC.) 

Iii Ne---,,y or r Amendme.nJ to, MA # : 

ESFfOFAIRSF Action Office;r 

RONAILD LENZI 

V. COOROINAT1ION IFEMA Use Only ) 

Type of MA: 

sta.:e Co st Share. Peroerrt 25 

Projiected Start Date 

12/0612DH 

T,ota1 Cos Es!imated 

S3S5.000.00 

Phone# 

(3(]5) 5~9400 

To 

peraoons . uppon 

r Staie ~are (0%) 

State Cost Snare Amount . 96,,250 

Fund Cita!ion: 20 7 -06-- 4 , 8 ,6 D R XXXX-250 8 -0 Appropriation cod'.e: 7DXD702 

Missioll Assig me;rrt !Manager (Pre.parer} 

MINDY CDONAJ..D 

''ComptrollertF,unds Control (Funds Review ) 

KENNEY JEFFERS 

FBMA FORM D1 D--0--8 PREVIOl'JSIL Y FF 90-12:Q 

Estimated Projected End Date 

1131f2(] 18 

e.q,uire.cl this Obfjgatxm Cyd\? 

Date 

12J!l5.'20 17 

Date 

12J!l5.'20 17 

Da.e 

12J!l5.'20 17 

Page 1 ,cf 2 

DEPARTMENT OF HO MEI.AND SECURITY 

Federal Emergency Management Agency 

MISSION ASSmGNMENT (MA) 

OM .. B. No. 1660--0002 

tlpi,,esMay3'1, 20'17 

FDA Emergency Operations Plan 

Attachment C-3: 

MA Form Based on Completed RRF Sample 

Attachment C-3: 

July 2019 App C-3-1 MA Form Based on Completed RRF 
VI. APIPROVAI.. 

•Sbte Awroving Offici'a l (Required for A} 

"'Federal Aipproving1 Offiri'al (Req) ired ~ all) 

. AOK GRAJ-IAM 

VIII. OBI..IGATION (FEIMA.Use Olilly) 

Mi:ssi:on Assi g mesrrt mber 4 ,CJ86 

Amendment Number CJ 

MISSIOri ASSIGl'iMENT (MA) 

Amount This Actioo $385,000 

Cum live Amou t $ 385.[IOD 

ti Signature ,required! for- a.11 IMAs" 

IIN!SliRl'JCTlONS, 

Lerns en the 1ssion Assignment (MA) ·· ttia~ are riot ~st ai,e self-explanatory. 

I. RACK!ING INFORiMAlilONI. Completed by Resource Support Sectioo or Operations - ··. Required for a I requests . 

.s:tare;. If m "-State. choose stat e most I elyto, receive resource(s}. (i e .• when using 7220-SU Program Gede) 

Resource Bet! ue-st NIP · IBased on chroootog;cal log nu mber. IJ5;ed for trackrng1. 

Program CodeJE,,eeyt No,· The pre-declaratio n, ,emerge;ncy. or maj or dis~er number assigned~ ng 1lile ,everit. Examples: 

7220-SU. 3130-EIM. I124~DR. 

II. AS,SISTANCE R EQl!JESliEID. Compl eLed by requeslor. 

Assistaooe Be,:;iuested· Details from the Resouroe Reque.st Form wi'll 

!rneiJl@I Cqntrp] !)Ip · lnterrtal reques re erenoe. log. or control nu 

llllitia':mi'Reguestor: e initiator ay be an imfivid ua'I ng o 

POC Na~:. The person cc»rd nating reception and u1i~!io 

Ill. 

on behaff of lhe POC. 

FEMA mganiz:atio ,or other orga:niza1ion, 

emainder of IMA u.'Sed on 

veri:fication of irrfcmmrtion m,llsn:,,ooi:lt, 

est ed~al agency to, perform r;eimbursable wort un der (M!A}. D ber~ validafun an 

is completed and issued. 

IV. cy Actioo Officer. 

State;mem qf Wort· Det• d desefiplion ,ct work to be performed that indludes: Overview o MA, ,o.bjec1ives. l.asik.s, reso roes. perSionrtel. 

deFJVerab!le. location, period cf performance and comprehen sive cost eslims-~e · !I" period oi performance•. Sta'.eme of Wort may be atlE.ched .. 

Adkjitiona gu"idance concerning lhe wri1i g1 of a sta·erne of Wert ,can be· n,d in the M ission Assignme t Gu.de and FAR. 

Assjgned £,Qeocy; Agency receiving the t.lAfro:m PEMA. Acli\!lities.wilhrn the scope of an ESFIRSF result in MA ~ mary agency. Gile 

subordirtate ,CJC"g a:niza1ion if applicabl e. Exampl e; DO -FM OOE-SAD. 

Projecled start!End Pa e· If end ds-~e is oo· clear. estimate and budge,; for 30. 6D, ,or QO days. !hen ree'o'a a-~e. . D is not ao::ep!able; a date 

must be en~ewed. 

Total Cost Estima~e: Enter doltar ,,. ue arid attach a detailed tx1Cfge,t ,cutllinrng1 p!!l'S<lrtnel, equipmerit. contraci. sub-tasik.ed agency. travel and 

ether costs. The cost estimate sh oold inclll.lcfe !he to'!a'I cost projeclion for th.e IMA scross the enJ · e le;ng1h of the MA. The QCJ day obliga1ion 

cycle is used to, obligate fundi 91 in .QD day incFernerits. when comp.le · en pe.riod is ,expect ed to, exceed 9D days .. 

V. COOR,IIJIN'ATl'ONL Completed by IMAM. excepl: for Project M ger and ComptroOer signatures. 

Type of Mt\: Select cnliy one. 

Ap:pmprialtiqn Gode: s · tic data Do no- change. i;s. is for information only. s oold no· be used to report i emal ageno, finances ro reas'Ury. 

Re1xllti1119: IMA agencies are required ~o prowde repor1i g1 as de!e:rmi d by !he Program anager. 

VI. Afil"ROVAL. Ccmple!ed by State Approving Official and Feden .Approving Offici . 

VIII. OBI..IGATION. Compl e;i.ed by Financial Speciatist 

Mls:aioo Assignment Nlq : Assigned in FEMA fi:nanci sys.em chronologically using assi:grted agency acronym arid two,dig it num ber. 

Amendment No,.: Note s'Upplement nu Iler. er ,example: OOE: SAD--01. Supp. 1, or DOR-00. Supp. 3. Amount ihis Action: aken from to- cost es1ims-.e ab ove. 

Cumulaiwe Amount: Cumu fai:ille 91iT"IC · for this MA. including amendmerits, 

FEIMA FORM D1 D-0-8 PIREVIOUSIL Y FF 00-12.tl Page 2 ,Di 2 

FDA Emergency Operations Plan 

Attachment C-3: 

July 2019 App C-3-2 MA Form Based on Completed RRF 
 

 

 

 

 

FDA Emergency Operations Plan 

Attachment C-4: 

Stafford Act Mission Sub-Tasking Based on 

MA Form Sample 

Stafford Act Mission Assignment Sub-Tasking Form 

Mission Assigned Primary Agency: U.S. Department of Health and Human Services (HHS) 

Sub-Tasked Agency: U.S. Food and Drug Administration (FDA) 

Tasking Statement/Statement of Work: 

Provide food and product safety investigators to augment State, tribal, and local staff in support of disaster 

operations in response to Hurricane Zulu and in the State of Columbia. This tasking covers incremental salaries 

and travel expenses starting on December 6, 2017. 

Project Completion Date: January 31, 2018 (may be extended by email from Mr. David Dolinsky) 

Authorized Funding: $380,000 

Statutory Authority: Robert T. Stafford Disaster Relief and Emergency Assistance Act of 1988, as amended, 

42 U.S.C. 5121-5201 

Accounting Information: 

FDA shall bill and provide supporting documentation to HHS/ASPR using the following information: 

To: FDA From: HHS/ASPR 

Agency Location Code (ALC): 75060099 75030030 

Appropriation Number: 47-31-1004 

Mission Assignment Number: 4086DR-CM-HHS05 4086DR-CM-HHS05 

CAN / Account Number: 1996389 

Object Class: Multiple 25308 

Amount This Action: $380,000 $380,000 

DUNS Number: 927645532 803192033 

Document Number: 

Employer Identification Number (EIN): 53-0196965 26-1864515 

HHS/ASPR, the primary agency, is responsible for monitoring the work progress of a sub-tasked support agency 

and approving the request for reimbursement submitted by the support agency. Any costs and supporting documentation must be provided to the HHS/ASPR POC prior to submitting and Intra-governmental Payment and 

Collection (IPAC). This sub-task will be automatically closed and deobligated 60 days after the project completion date if costs are not presented. As such, all documentation supporting requests for reimbursement shall be 

submitted to: 

David A. Dolinsky, CPA 

Deputy Director for Administration and Finance Operations 

ASPR/Office of Financial Planning and Analysis 

U.S. Department of Health and Human Services 

200 Independence Avenue, SW, Room 638G 

Washington, DC 20201 

202-205-0499 (Office) 

david.dolinsky@hhs.gov 

Attachment C-4: Stafford Act Mission 

July 2019 App C-4-1 Sub-Tasking Based on MA Form Sample 
 

 

 

 

 

 

 

Accounting Information: (continued) 

Reimbursement and billing will be accomplished through the IPAC System. 

Program Support Center (PSC), Division of Financial Operations (DFO) 

Room 16-30 

Parklawn Building 

5600 Fishers Lane 

Rockville, MD 20857 

IPAC will make disbursements/payments. 

Document number, ALC, accounting codes, and dollar amounts must be referenced. 

Authorizing Officials 

For FDA: 

Signed: Date: 

Name/Title 

For HHS/ASPR: 

Signed: Date: 

David A. Dolinsky 

Deputy Director for Administration and Finance 

Operations/A+F Section Chief 

Funds Certification (ASPR): 

Signed: Date: 

Name/Title 

FDA Emergency Operations Plan 

Attachment C-4: Stafford Act Mission 

July 2019 App C-4-2 Sub-Tasking Based on MA Form Sample 
 

 

 

 

 

 

 

-

I I I I I I 

FDA Emergency Operations Plan 

Appendix D: 

Characteristics of Potential Foodborne Agents51 

Agent Incubation Period52,53 Availability Minimum Infectious Dose, 

Secondary Transmission Clinical Syndrome Case Fatality 

Other Characteristics 

of Microbe or Illness 

Botulinum toxin Generally between 

12 to 72 hours 

Dependent on the toxin 

dose, the incubation period 

varies from 2 hours to 

10 days 

Organism ubiquitous in 

environment; cultures need 

anaerobic conditions 

LD50 = 0.001 μg/kg 

The best estimate of median 

oral lethal dose for people is 

0.2 to 2.0 micrograms 

Descending 

paralysis, respiratory 

compromise 

5% 

(treated) 

95% of patients need 

hospitalization; 60% of 

patients need intubation 

Salmonella Can be as short as 6 hours, Clinical and research labora- 103 organisms; limited secondary Acute diarrheal >1% Organism hardy; 

serotypes but is generally 12 to tories, culture collections, transmission illness, 1 to 3% lengthened survival in 

(excluding 36 hours poultry, environmental chronic sequelae the environment 

Salmonella typhi) sources 

Salmonella typhi 24 to 72 hours Clinical and research 

laboratories 

105 organisms; secondary 

transmission possible 

Reports exist of illness 

associated with ingested doses 

in the range of 100s to 100,000 

for S. typhi 

Acute febrile illness, 

protracted recovery, 

10% relapse, 

1% intestinal rupture 

10% 

untreated, 

1% treated 

Clinical syndrome 

unfamiliar in the United 

States; long incubation 

period (1 to 3 weeks); 

produces asymptomatic 

carrier rate in 3% of 

cases 

Shigella spp. 24 to 48 hours Clinical and research 

laboratories 

102 organisms; secondary 

transmission possible 

Acute diarrhea, 

often bloody 

For most 

common 

species in 

the United 

States, <1% 

51 Sobel, J., A.S. Khan, and D.L. Swerdlow. “Threat of a Biological Terrorist Attack on the U.S. Food Supply: The CDC Perspective.” The Lancet, Vol. 359(9309), 874–880, 

March 9, 2002. 

52 “Diagnosis and Management of Foodborne Illnesses: A Primer for Physcians and Other Health Care Professionals.” CDC Morbidity and Mortality Weekly Report (MMWR), 

Vol. 53, No. RR-4, April 16, 2004. 

53 Bad Bug Book – Foodborne Pathogenic Microorganisms and Natural Toxins Handbook (Second Edition), FDA Center for Food Safety and Applied Nutrition (CFSAN), 2012. 

Appendix D: 

July 2019 App D-1 Characteristics of Potential Foodborne Agents 
 

 

 

-

I I I I I I 

FDA Emergency Operations Plan 

Agent Incubation Period52,53 Availability Minimum Infectious Dose, 

Secondary Transmission Clinical Syndrome Case Fatality 

Other Characteristics 

of Microbe or Illness 

Shigella dysenteriae 12 to 50 hours Clinical and research 10 to 100 organisms; Dysentery, seizures Up to 20% Causes dysentery, toxic 

type 1 laboratories secondary transmission possible (treated) megacolon, hemolytic 

uremic syndrome (HUS), 

convulsions in children 

Escherichia coli 

O157:H7 

24 to 72 hours, but may be 

as long as 10 days 

Clinical and research 

laboratories, bovine 

sources, farms 

>50 organisms; secondary 

transmission possible 

The infectious dose ranges 

between 1 and 100 cells 

Acute bloody 

diarrhea, 5% HUS, 

longer term 

complications 

1% Long-term sequelae: 

hypertension, stroke, 

renal insufficiency/ 

failure neurological 

complications 

Vibrio cholerae 24 to 72 hours Clinical and research 

laboratories 

106 organisms; secondary 

transmission possible 

Feeding studies using healthy 

humans indicated that 1x106 

Acute lifethreatening 

dehydrating diarrhea 

Up to 50% 

untreated; 

1% treated 

Historically, causes 

massive waterborne 

epidemics in areas with 

poor sanitation 

organisms must be ingested to 

cause illness. Outbreak investigations of natural cholera suggest 

that, if ingested with water, the 

infectious dose is 103 to 106 

organisms; if ingested with food, 

the infectious dose is 102 to 104 

organisms. 

Appendix D: 

July 2019 App D-2 Characteristics of Potential Foodborne Agents 
 

 

 

Warfare Agents 

Lethal 

Industrial Chemicals 

FDA Emergency Operations Plan 

Appendix E: 

Chemical Agents – Background Information54 

Items in this section are as follows: 

• General Information 

• Classes of Chemical Warfare Agents 

• Nerve Agent Exposure Versus Nerve Agent Intoxication 

• Chemical Agent Characteristics 

• List of Additional Chemical Agents 

Additional information on chemical agents may be found at http://emergency.cdc.gov/chemical/. 

E.1 GENERAL INFORMATION 

Chemical agents are: 

• Generally liquid (when containerized). 

• Normally disseminated as aerosol or gas. 

• Present a respiratory, dermal, ocular, and mucus membrane hazard. 

• May be detectable by smell or other senses, but not consistent for all agents. 

• Dispersal or lack thereof by weather conditions impacts hazard of agent. 

E.2 CLASSES OF CHEMICAL WARFARE AGENTS 

Lethal 

• Industrical Chemicals 

− Choking Agents (Pulmonary Agents). Choking agents primarily attack lung tissue, causing 

pulmonary edema. However, there may also be mild irritation of the eyes and upper 

respiratory tract. 

− Blood Agents (Cyanides). Blood agents enter the body following ingestion, skin contact, or 

inhalation. Once in the body, blood agents inactivate a critical enzyme (cytochrome oxidase); 

this prevents the cell from using oxygen. Symptoms of blood agent poisoning include 

respiratory changes, convulsions, and death. 

54 Access additional training in this area via the online courses offered by ORA University at 

http://intranet.ora.fda.gov/dhrd/default.htm. 

Appendix E: Chemical Agents – 

July 2019 App E-1 Background Information 
 

 

 

 

Exposure Liquid Exposure 

p Pinpointing pupils X 

s Salivation X 

Mild l Lacrimation (tearing) X 

Severe llJ Urination X X 

D Defecation X X 

~ Gastrointestinal; pain and gas X X 

Iii Emesis (vomiting) X X 

MJ Muscle twitching X X 

C Convulsions, coma X X i 

FDA Emergency Operations Plan 

• Warfare Agents 

− Blister Agents (Vesicants). Blister agents include the mustards, arsenicals (primarily 

Lewisite), and phosgene oxime. They cause pain and tissue damage. Mustards can have 

delayed effects (hours), but Lewisite and phosgene oxime cause immediate effects. Vesicants 

cause either fluid-filled blisters or red, elevated skin lesions (phosgene oxime). 

− Nerve Agents. Nerve agents cause the greatest concern because of their toxicity, rate of 

action, and ability to enter the body by multiple routes of entry. Nerve agents are extremely 

fast acting and classically categorized as colorless and odorless. The symptoms of nerve 

agents include dimness of vision, runny nose, drooling, difficulty breathing/tightness of chest, 

nausea, vomiting and diarrhea, muscle jerking or twitching, involuntary urination, defecation, 

coma, and death. 

Incapacitating and Riot Control 

Incapacitating and riot control agents are not primary terrorist threats due to their relatively short duration 

of effects and minimal toxicity. 

E.3 NERVE AGENT EXPOSURE VERSUS NERVE AGENT INTOXICATION 

“SLUDGE,” bracketed in the box below, is an acronym often used by medical personnel for identifying 

the symptoms of organophosphate poisoning. 

Appendix E: Chemical Agents – 

July 2019 App E-2 Background Information 
 

 

 

 

 

 

 

 

 

 

I I I I I 

FDA Emergency Operations Plan 

E.4 CHEMICAL AGENT CHARACTERISTICS 

Type of Agent Effects Onset First Aid Skin 

Decontamination Detection 

Pulmonary TIC: 

CG (PFIB, HC) Dyspnea, coughing Hours None None usually 

needed None 

Cyanide: 

AC, CK 

Loss of consciousness, 

convulsions, apnea Seconds None (nitrite and thiosulfate) 

None usually 

needed M256A1 

Vesicants: 

H, HD, L 

Erythema, blisters; 

irritation of eyes; cough; 

dyspnea 

Vapor: miosis, rhinorrhea, 

dyspnea 

Hours (immediate 

pain after L) 

Vapor: seconds 

None 

M291, M258A1, 

soap and water, 

0.5% bleach 

M256A1, M8 

and M9 

papers, 

CAM, 

ACADA, 

FOX, M90 

Nerve: 

GA, GB, GD, 

GF, VX 

Vapor: miosis, rhinorrhea, 

dyspnea 

Liquid: sweating, vomiting 

Both: convulsions, apnea 

Vapor: seconds 

Liquid: minutes 

to hours 

MARK I (1 to 3), 

Diazepam 

Antidote 

Treatment: 

Nerve Agent 

Autoinjector 

M291, M258A1, 

soap and water, 

0.5% bleach 

M8A1 alarm, 

M256A1, M8 

and M9 

papers, 

CAM, M22 

ACADA 

Incapacitating: 

BZ, Agent 15 

Mydriasis, increased body 

temperature; dry mouth 

and skin; confusion, visual 

hallucinations 

Minutes to hours 

Remove from 

harming 

themselves or 

others 

Remove outer 

clothing; water, or 

soap and water 

None 

Riot Control: 

CS, CN 

Burning, stinging of eyes, 

nose, airways, skin Seconds None Water None 

Adapted from the U.S. Army Medical Research Institute of Chemical Defense’s (USAMRICD) Medical Management of Chemical 

Casualties Handbook, Fourth Edition, Appendix F, February 2007. 

The Medical Management of Chemical Casualties Handbook states, “The [above] table is intended to 

serve as a reminder of the agents, their effects, first-aid measures, detection, and skin decontamination. It 

is in no way complete, nor is it intended to be complete.” Consult the appropriate Center SMEs for more 

detailed information. 

Appendix E: Chemical Agents – 

July 2019 App E-3 Background Information 
 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

E.5 LIST OF ADDITIONAL CHEMICAL AGENTS 

Available at https://emergency.cdc.gov/chemical/factsheets.asp with links for agent description. 

Chemical Agents 

Abrin Methyl Isocyanate 

Adamsite (Diphenylaminechloroarsine or DM) Mustard Gas (H) (Sulfur Mustard) 

Ammonia Mustard/Lewisite (HL) 

Arsenic Mustard/T 

Arsine (SA) Nicotine 

Barium Nitrogen Mustard (HN-1, HN-2, HN-3) 

Benzene Opioids 

Brevetoxin Osmium Tetroxide 

Bromine (CA) Paraquat 

Bromobenzylcyanide (CA) Phosgene (CG) 

BZ (3-Quinuclidinyl Benzilate) Phosgene Oxime (CX) 

Carbon Monoxide Phosphine 

Chlorine (CL) Phosphorus, elemental, white or yellow 

Chloroacetophenone (CN) Potassium Cyanide (KCN) 

Chlorobenzylidenemalononitrile (CS) Ricin* 

Chloropicrin (PS) Sarin (GB) 

Chromium Saxitoxin 

Colchicine Selenium 

Cyanide Sesqui Mustard 

Cyanogen Chloride (CK) Sodium Azide 

Dibenzoxazepine (CR) Sodium Cyanide (NaCN) 

Diphosgene (DP) Sodium Monofluoroacetate (compound 1080) 

Distilled Mustard (HD) Soman (GD) 

Ethylene glycol Stibine 

Fentanyls and Other Opioids Strychnine 

Hydrazine Sulfur Mustard (H) (Mustard Gas) 

Hydrofluoric Acid (Hydrogen Fluoride) Sulfur Fluoride 

Hydrogen Chloride Super Warfarin (Long-Acting Anticoagulant) 

Hydrogen Cyanide (AC) Tabun (GA) 

Hydrogen Fluoride (Hydrofluoric Acid) Tetrodotoxin 

Lewisite (L, L-1, L-2, L-3) Thallium 

LSD (Lysergic Acid Diethylamide) Trichothecene 

Mercury VX 

Methyl Bromide White Phosphorus 

*May also be considered a biological agent. 

For more information on chemical emergencies, including specific chemical agents, information for the 

public, and information for first responders, refer to CDC’s Emergency Preparedness and Response 

website at https://emergency.cdc.gov/chemical/index.asp 

Appendix E: Chemical Agents – 

July 2019 App E-4 Background Information 
FDA Emergency Operations Plan 

For response information for thousands of hazardous materials, including fire and explosion hazards, 

health hazards, firefighting techniques, cleanup procedures, protective clothing, and chemical properties, 

refer to www.cameochemicals.noaa.gov/search/simple. 

Appendix E: Chemical Agents – 

July 2019 App E-5 Background Information 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix E: Chemical Agents – 

July 2019 App E-6 Background Information 
 

 

 

 

Warfare Agents 

... Bacteria Viruses Toxins ;, 

-===== 

FDA Emergency Operations Plan 

Appendix F: 

Biological Agents – Background Information55 

Items in this section are as follows: 

• General Information 

• Classes of Biological Warfare Agents 

• Epidemiologic Clues That May Signal a Covert Bioterrorism Attack 

• Bioterrorism Agents/Diseases by Category 

Additional information on bioterrorism may be found at https://emergency.cdc.gov/bioterrorism/ 

F.1 GENERAL INFORMATION 

Biological agents: 

• Produce delayed effects. 

• Do not penetrate unbroken skin. 

• Do not evaporate. 

• Undetectable by senses. 

• Difficult to detect in the field. 

• Have a range of effects. 

• Usually obtained from nature. 

• Can now be produced synthetically starting with coding sequence. 

• May be engineered for increased virulence. 

• Have multiple routes of entry. 

• Potentially destroyed by environment. 

• Some are contagious. 

• Virtually impossible to limit spread or deliberate delivery. 

• Environmental detection systems (e.g., BioWatch) for some are now operational. 

• Countermeasures are available for some agents. 

• Quarantine strategies may be implemented in an effort to control a biological contagion. 

F.2 CLASSES OF BIOLOGICAL WARFARE AGENTS 

Bacteria. Bacteria are living unicellular organisms and are predominantly self-sufficient (with the 

exception of several intracellular species that require a host cell to survive). Bacteria require varying 

conditions of light, moisture, pH, and temperature to survive. Bacteria cause disease in humans by 

55 Access additional training in this area via the online courses offered by ORA University at 

http://intranet.ora.fda.gov/dhrd/default.htm. 

Appendix F: Biological Agents – 

July 2019 App F-1 Background Information 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

invading host tissues, by producing toxins, or both. The diseases they produce often respond to specific 

antibiotic therapies. 

Viruses. Viruses need a “host” cell to live and multiply. However, viruses are technically considered 

living organisms because they contain genetic material. Although environmental detection units utilizing 

Polymerase Chain Reaction (PCR) technology can detect viruses, they generally would not be able to 

assess whether or not the virus is viable. 

Toxins. Toxins are harmful substances produced by bacteria, plants, and animals. These range from 

animal venoms (e.g., snake or spider bite), to plant toxins (e.g., ricin), to bacteria toxins (e.g., botulinum 

toxin). Since they are biochemical moieties (e.g., proteins), they do not replicate and (unlike chemical 

agents) are nonvolatile and unlikely to cause secondary exposures. 

F.3 EPIDEMIOLOGIC CLUES THAT MAY SIGNAL A COVERT BIOTERRORISM 

ATTACK 

Adapted below is a CDC list of epidemiologic clues that may signal a biological incident. In addition, 

FDA may receive information through its adverse event reporting systems, which indicate a possible 

biological agent contamination. This list provides the opportunity to recognize and respond to early clues 

that would be important for minimizing the harmful impacts of a biological incident. 

Epidemiologic clues are as follows: 

• A preliminary positive signal from BioWatch systems. 

• A signal from the BioSense system. 

• Intelligence. 

• Containers of powders or liquids that are in inappropriate places. 

• Large numbers of ill persons with similar disease or syndrome. 

• Large numbers of unexplained disease, syndrome, or deaths. 

• Unusual illness in a population. 

• Higher morbidity and mortality than expected with a common disease or syndrome. 

• Failure of a common disease to respond to usual therapy. 

• Single case of disease caused by an uncommon agent. 

• Multiple unusual or unexplained disease entities coexisting in the same patient without other 

explanation. 

• Disease with an unusual geographic or seasonal distribution. 

• Multiple atypical presentations of disease agents. 

• Similar genetic type among agents isolated from temporally or spatially distinct sources. 

• Unusual, atypical, genetically engineered, or antiquated strain of agent. 

• Endemic disease with unexplained increase in incidence. 

• Simultaneous clusters of similar illness in noncontiguous areas, domestic or foreign. 

• Atypical aerosol, food, or water transmission. 

• Ill people presenting near the same time. 

• Deaths or illness among animals that precedes or accompanies illness or death in humans. 

• No illness in people not exposed to common ventilation systems, but illness among those people 

in proximity to the systems. 

Appendix F: Biological Agents – 

July 2019 App F-2 Background Information 
 

 

 

FDA Emergency Operations Plan 

F.4 BIOTERRORISM AGENTS/DISEASES BY CATEGORY 

This table was created from information from the CDC Bioterrorism Agents/Diseases by category list 

(available at https://emergency.cdc.gov/agent/agentlist.asp). 

Biological Diseases/Agents 

Category A 

Definition: The U.S. public health system and primary healthcare providers must be prepared to address various 

biological agents, including pathogens that are rarely seen in the United States. High-priority agents include 

organisms that pose a risk to national security because they: 

 Can be easily disseminated or transmitted from person to person; 

 Result in high mortality rates and have the potential for major public health impact; 

 Might cause public panic and social disruption; and 

 Require special action for public health preparedness. 

Category A Agents/Diseases 

Anthrax (Bacillus anthracis) 

Botulism (Clostridium botulinum toxin) 

Plague (Yersinia pestis) 

Smallpox (variola major) 

Tularemia (Francisella tularensis) 

Viral hemorrhagic fevers (filoviruses [e.g., Ebola, Marburg] and arenaviruses [e.g., Lassa, Machupo]) 

Category B 

Definition: Second highest priority agents include those that: 

 Are moderately easy to disseminate; 

 Result in moderate morbidity rates and low mortality rates; and 

 Require specific enhancements of CDC’s diagnostic capacity and enhanced disease surveillance. 

Category B Agents/Diseases 

Brucellosis (Brucella species) 

Epsilon toxin of Clostridium perfringens 

Food safety threats (e.g., Salmonella species, Escherichia coli O157:H7, Shigella) 

Glanders (Burkholderia mallei) 

Melioidosis (Burkholderia pseudomallei) 

Psittacosis (Chlamydia psittaci) 

Q fever (Coxiella burnetii) 

Ricin toxin from Ricinus communis (castor beans) 

Staphylococcal enterotoxin B 

Typhus fever (Rickettsia prowazekii) 

Viral encephalitis (alphaviruses [e.g., Venezuelan equine encephalitis, eastern equine encephalitis, western 

equine encephalitis]) 

Water safety threats (e.g., Vibrio cholerae, Cryptosporidium parvum) 

Category C 

Definition: Third highest priority agents include emerging pathogens that could be engineered for mass 

dissemination in the future because of: 

 Availability; 

 Ease of production and dissemination; and 

 Potential for high morbidity and mortality rates and major health impact. 

Category C Agents 

 Emerging infectious disease threats such as Nipah virus and hantavirus 

For more information on specific biological agents/diseases, including agent lists, factsheets, questions 

and answers, references, treatment, laboratory information, and more, refer to the CDC’s Emergency 

Preparedness and Response website at https://emergency.cdc.gov/agent/agentlist.asp. 

Appendix F: Biological Agents – 

July 2019 App F-3 Background Information 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix F: Biological Agents – 

July 2019 App F-4 Background Information 
 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Appendix G: 

Oversight of Select Agents and Toxins by HHS/CDC and 

USDA/Animal and Plant Health Inspection Service 

(7 CFR Part 331, 9 CFR Part 121, and 42 CFR Part 73) 

G.1 HHS SELECT AGENTS AND TOXINS 

• Abrin 

• Bacillus cereus Biovar anthracis* 

• Botulinum neurotoxins* 

• Botulinum neurotoxin producing species 

of Clostridium* 

• Conotoxins (Short, paralytic alpha 

conotoxins containing the following 

amino acid sequence 

X1CCX2PACGX3X4X5X6CX7)56 

• Coxiella burnetii 

• Crimean-Congo haemorrhagic fever 

virus 

• Diacetoxyscirpenol 

• Eastern Equine Encephalitis virus57 

• Ebola virus* 

• Francisella tularensis* 

• Lassa fever virus 

• Lujo virus 

• Marburg virus* 

• Monkeypox virus2 

• Reconstructed replication competent 

forms of the 1918 pandemic influenza 

virus containing any portion of the 

coding regions of all eight gene 

segments (Reconstructed 1918 Influenza 

virus) 

56 C = Cysteine residues are all present as disulfides, with 

the 1st and 3rd Cysteine, and the 2nd and 4th Cysteine 

forming specific disulfide bridges; The consensus sequence 

includes known toxins α-MI and α-GI (shown above) as 

well as α-GIA, Ac1.1a, α-CnIA, α-CnIB; X1 = any amino 

acid(s) or Des-X; X2 = Asparagine or Histidine; P = 

Proline; A = Alanine; G = Glycine; X3 = Arginine or 

Lysine; X4 = Asparagine, Histidine, Lysine, Arginine, 

Tyrosine, Phenylalanine or Tryptophan; X5 = Tyrosine, 

Phenylalanine, or Tryptophan; X6 = Serine, Threonine, 

Glutamate, Aspartate, Glutamine, or Asparagine; X7 = Any 

amino acid(s) or Des X and; “Des X” = “an amino acid 

does not have to be present at this position.” For example, 

if a peptide sequence were XCCHPA then the related 

peptide CCHPA would be designated as Des-X. 

• Ricin 

• Rickettsia prowazekii 

• SARS-associated coronavirus (SARSCoV) 

• Saxitoxin 

• South American Haemorrhagic Fever 

viruses: 

− Chapare 

− Guanarito 

− Junin 

− Machupo 

− Sabia 

• Staphylococcal enterotoxins A,B,C,D,E 

subtypes 

• T-2 toxin 

• Tetrodotoxin 

• Tick-borne encephalitis complex (flavi) 

viruses: 

− Far Eastern subtype 

− Siberian subtype 

− Kyasanur Forest disease virus 

− Omsk hemorrhagic fever virus 

• Variola major virus (smallpox virus)* 

• Variola minor virus (Alastrim)* 

• Yersinia pestis* 

57 Select agents that meet any of the following criteria are 

excluded from the requirements of this part: Any low 

pathogenic strains of avian influenza virus, South American 

genotype of eastern equine encephalitis virus , west African 

clade of Monkeypox viruses, any strain of Newcastle 

disease virus which does not meet the criteria for virulent 

Newcastle disease virus, all subspecies Mycoplasma 

capricolum except subspecies capripneumoniae (contagious 

caprine pleuropneumonia), all subspecies Mycoplasma 

mycoides except subspecies mycoides small colony (Mmm 

SC) (contagious bovine pleuropneumonia), and any 

subtypes of Venezuelan equine encephalitis virus except 

for Subtypes IAB or IC, provided that the individual or 

entity can verify that the agent is within the exclusion 

category. 

Appendix G: Oversight of Select Agents 

July 2019 App G-1 and Toxins by HHS/CDC and USDA/APHIS 
 

 

 

 

FDA Emergency Operations Plan 

G.2 OVERLAP SELECT AGENTS AND TOXINS 

• Bacillus anthracis* 

• Bacillus anthracis Pasteur strain 

• Brucella abortus 

• Brucella melitensis 

• Brucella suis 

• Burkholderia mallei* 

• Burkholderia pseudomallei* 

• Hendra virus 

• Nipah virus 

• Rift Valley fever virus 

• Venezuelan Equine Encephalitis virus2 

G.3 USDA SELECT AGENTS AND TOXINS 

• African horse sickness virus 

• African swine fever virus 

• Avian influenza virus2 

• Classical swine fever virus 

• Foot-and-mouth disease virus* 

• Goat pox virus 

• Lumpy skin disease virus 

• Mycoplasma capricolum2 

• Mycoplasma mycoides2 

• Newcastle disease virus58 

• Peste des petits ruminants virus 

• Rinderpest virus* 

• Sheep pox virus 

• Swine vesicular disease virus 

G.4 USDA PLANT PROTECTION AND QUARANTINE SELECT AGENTS AND TOXINS 

• Peronosclerospora philippinensis (Peronosclerospora sacchari) 

• Phoma glycinicola (formerly Pyrenochaeta glycines) 

• Ralstonia solanacearum 

• Rathayibacter toxicus 

• Sclerophthora rayssiae 

• Synchytrium endobioticum 

• Xanthomonas oryzae 

05/16/2018 

*Denotes Tier 1 Agent 

58 A virulent Newcastle disease virus (avian paramyxovirus serotype 1) has an intracerebral pathogenicity index in day-old 

chicks (Gallus gallus) of 0.7 or greater or has an amino acid sequence at the fusion (F) protein cleavage site that is consistent with 

virulent strains of Newcastle disease virus. A failure to detect a cleavage site that is consistent with virulent strains does not 

confirm the absence of a virulent virus. 

Appendix G: Oversight of Select Agents 

July 2019 App G-2 and Toxins by HHS/CDC and USDA/APHIS 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Appendix H: 

Domestic and International Traceback/Traceforward 

H.1 DOMESTIC 

When there is an FDA-regulated product potentially affected by an emergency, it is necessary to 

determine all distribution of the affected product. After appropriate consultation with others (State and 

local officials, Centers, and CDC), OEM/OEO, in coordination with the Office of Regional Operations 

(ORO), initiates a traceback/traceforward investigation.59 The FDA EOC coordinates the tracing (forward 

and backward) of the distribution of any potentially contaminated FDA-regulated products and initiates 

seizures or recalls as appropriate. CDC and local or State agencies may provide assistance on the 

traceback/traceforward. 

H.2 INTERNATIONAL 

If FDA determines international distribution of the product occurred, the Office of International Programs 

(OIP) notifies foreign governments of the situation as appropriate. OIP is also FDA’s lead office for 

communicating with various international stakeholders, including the U.S. Department of State (DOS), 

foreign and U.S. embassies, foreign governments (including counterpart foreign agencies), and 

international organizations. When FDA learns of suspect or actual incidents involving FDA-regulated 

products received from or sent to foreign countries, the FDA EOC promptly notifies the Deputy 

Commissioner for International Programs and the Assistant Director for Communications in OIP, who 

then coordinate with recall personnel and/or other appropriate staff for the notification and exchange of 

information with the affected countries. 

In addition, OIP coordinates with the FDA EOC to provide timely notification with the appropriate 

degree of urgency to the following offices as necessary and appropriate: 

• FDA Center international offices or liaisons 

• Embassies of the country or countries involved 

• HHS Office of Global Health Affairs 

• Desk officers at DOS 

• Other relevant U.S. agency international components 

• Appropriate international organizations 

Epidemiological traceback data provides the basis for enforcement strategies. At the border, this includes 

procedures to facilitate movement of similar products that are in compliance with the Federal Food, Drug, 

and Cosmetic Act of 1938 (FD&C Act) (as mandated in Section 302 of the Public Health Security and 

Bioterrorism Preparedness and Response Act of 2002 [Bioterrorism Act]) or otherwise not considered a 

serious threat to public health and safety. Epidemiological traceback data provides intelligence that allows 

FDA to identify historical shipments through the same or similar streams of commerce of implicated 

products for appropriate follow-up. Follow-up activities include visiting importers and consignees of 

previous shipments to identify disposition of imported goods and identifying individuals and firms 

responsible for the sale, purchase, and receipt of implicated products. 

The agency will use the Operational and Administrative System for Input Support or the Mission Activity 

Reporting and Compliance System and may work with the U.S. Customs and Border Protection (CBP), 

59 For more information on how FDA conducts traceback investigations, refer to 

www.fda.gov/ICECI/Inspections/InspectionGuides/ucm075005.htm and FDA’s “Guide to Traceback of Fresh Fruits and 

Vegetables Implicated in Epidemiological Investigations” (June 2006). 

Appendix H: Domestic and 

July 2019 App H-1 International Traceback/Traceforward 
 

 

FDA Emergency Operations Plan 

located at the Commercial Trade Analytical Center, to analyze entry data in order to support decisions for 

dispatching human resources through assignments or other methods established for rapid response to 

support operations. The Director of the Division of Import Operations and Policy (DIOP) will advise CBP 

of the situation and the information needed to use CBP’s Automated Targeting System (ATS) to detect 

and detain future shipments of potentially tainted products before their introduction into U.S. commerce. 

Appendix H: Domestic and 

July 2019 App H-2 International Traceback/Traceforward 
 

 

 

 

 

 

 

I I I I 

FDA Emergency Operations Plan 

Appendix I: 

Memorandum of Understanding 

A memorandum of understanding (MOU) is a critical component of any formal arrangement of 

cooperation between two or more entities. An MOU usually describes, in broad general terms, an area of 

mutual interest or concern that two or more agencies or organizations may cooperatively address. MOUs 

generally do not include specific information regarding detailed scope of work or exchange of funds or 

human resources. Below is a table of the current, finalized MOU that FDA has with other organizations. 

A complete listing of MOUs or other written cooperative arrangements with States, other Federal 

agencies and foreign government counterparts, and the World Health Organization (WHO) can be found 

at www.fda.gov/AboutFDA/PartnershipsCollaborations/MemorandaofUnderstandingMOUs/default.htm. 

Understanding 

or Agreement Purpose Parties and/orParticipants Link 

Notes/Dates

(Effective/

Expiration) 

225-14-0017 

Establishes a 

framework for 

information sharing 

FDA and CDC 

https://www.fda.gov/AboutFDA/Partn 

ershipsCollaborations/Memorandaof 

UnderstandingMOUs/DomesticMOUs 

/ucm402130.htm 

06/19/2014 

06/18/2019 

225-12-0007 Exchange of 

information 

FDA and 

USDA FFAS/ 

FNCS/FS/MRP/ 

REE* 

www.fda.gov/AboutFDA/Partnerships 

Collaborations/MemorandaofUnderst 

andingMOUs/DomesticMOUs/ucm29 

4512.htm 

01/19/2012 

Indefinite 

225-72-2009 Cooperation and 

information sharing 

FDA and 

USDA Agricultural 

Marketing Service (AMS) 

www.fda.gov/AboutFDA/Partnerships 

Collaborations/MemorandaofUnderst 

andingMOUs/DomesticMOUs/ucm11 

5864.htm 

03/04/2011 

Indefinite 

225-12-007 

Establishing terms of 

collaboration in 

areas of common 

interest and shared 

responsibility 

FDA and 

USDA 

https://www.fda.gov/AboutFDA/Partn 

ershipsCollaborations/Memorandaof 

UnderstandingMOUs/DomesticMOUs 

/ucm294512.htm 

01/19/2012 

Indefinate 

225-12-007 

Exchange of 

information 

FDA and USDA 

AMS/Food Service 

Agency (FSA)/ 

Food and Nutrition 

Service (FNS) 

https://www.fda.gov/AboutFDA/Partn 

ershipsCollaborations/Memorandaof 

UnderstandingMOUs/DomesticMOUs 

/ucm294512.htm 

01/19/2012 

Indefinate 

N/A 

Sharing and 

exchange of 

Information 

FDA and Health Products 

and Food Branch (HPFB), 

Health Canada of Canada 

www.fda.gov/InternationalPrograms/ 

Agreements/MemorandaofUnderstan 

ding/ucm197838.htm 

04/16/2008 

11/18/2013 

225-96-4001 

Trilateral: 

cooperation in 

scientific and 

regulatory fields of 

health 

FDA; Health Protection 

Branch (HPB), Health 

Canada of Canada; and 

Subsecretaría de 

Regulación y Fomento 

Sanitario of the 

Secretaría de Salud 

(SSA) of the United 

Mexican States 

www.fda.gov/InternationalPrograms/ 

Agreements/MemorandaofUnderstan 

ding/ucm107612.htm 

10/30/1995 

Indefinite 

*USDA Farm and Foreign Agricultural Services (FFAS)/Food, Nutrition, and Consumer Services (FNCS)/Food Safety (FS)/Marketing and Regulatory 

Programs (MRP)/Research, Education, and Economics (REE) 

Appendix I: 

July 2019 App I-1 Memorandum of Understanding 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix I: 

July 2019 App I-2 Memorandum of Understanding 
 

FDA Emergency Operations Plan 

Appendix J: 

Forms and Templates 

Listed below are some common forms and templates to be used by FDA personnel during the course of an 

incident. Hyperlinks attached to each title link directly to the appropriate form/template included within 

this appendix. Electronic copies can be found on the EON-IMS. 

Title Page # 

Incident Briefing (ICS 201), Adapated for FDA App J-3 

Incident Objectives (ICS 202), Adapated for FDA App J-7 

Organization Assignment List (ICS 203), Adapted for FDA App J-9 

Assignment List (ICS 204), Adapated for FDA App J-11 

Incident Communications Plan (ICS 205), Adapated for FDA App J-13 

Medical Plan (ICS 206), Adapted for FDA App J-15 

Safety Message/Plan (ICS 208) App J-17 

Incident Check-In List (ICS 211), Adapted for FDA App J-19 

Resource Request (ICS 213 RR), Adapted for FDA App J-21 

Activity Log (ICS 214) App J-23 

Operational Planning Worksheet (ICS 215) App J-25 

Incident Action Plan Safety Analysis (ICS 215A) App J-27 

Demobilization Check-Out (ICS 221), Adapted for FDA App J-29 

Situation Report App J-31 

Appendix J: 

July 2019 App J-1 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-2 Forms and Templates 
 

 

 

 

 

I I 

I 

FDA Emergency Operations Plan 

Incident Briefing (ICS 201), Adapated for FDA 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 

4. Map/Sketch (include sketch, showing the total area of operations, the incident site/area, impacted and 

threatened areas, overflight results, trajectories, impacted shorelines, or other graphics depicting situational status 

and resource assignment): 

5. Situation Summary and Health and Safety Briefing (for briefings or transfer of command): Recognize 

potential incident Health and Safety Hazards and develop necessary measures (remove hazard, provide 

personal protective equipment, warn people of the hazard) to protect responders from those hazards. 

6. Prepared by: Name: Position/Title: Signature: 

ICS 201, Page 1 Date/Time: 

Updated by FDA 2/2011 

Appendix J: 

July 2019 App J-3 Forms and Templates 
 

 

 

 

 

FDA Emergency Operations Plan 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 

7. Current and Planned Objectives: 

8. Current and Planned Actions, Strategies, and Tactics: 

Time: Actions: 

6. Prepared by: Name: Position/Title: Signature: 

Appendix J: 

July 2019 App J-4 Forms and Templates 
 

 

 I I 

FDA Emergency Operations Plan 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 

ICS 201, Page 2 Date/Time: 

Updated by FDA 2/2011 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 

9. Current Organization (fill in additional organization as appropriate): 

Appendix J: 

July 2019 App J-5 Forms and Templates 
 

 

 

 

 

I I 

I 

I 

FDA Emergency Operations Plan 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 

6. Prepared by: Name: Position/Title: Signature: 

ICS 201, Page 3 Date/Time: 

Updated by FDA 2/2011 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 

10. Resource Summary: 

Resource 

Resource 

Identifier 

Date/Time 

Ordered ETA 

Arrived

Notes (location/assignment/status) 

































Appendix J: 

July 2019 App J-6 Forms and Templates 
 

 

 

I I 

I 

FDA Emergency Operations Plan 

1. Incident Name: 2. Incident Number: 

(EON num. if applicable) 

3. Date/Time Initiated:

Date: Time: 



6. Prepared by: Name: Position/Title: Signature: 

ICS 201, Page 4 Date/Time: 

Updated by FDA 2/2011 

Appendix J: 

July 2019 App J-7 Forms and Templates 
 

 

 

 

 

 

 

 

 

 

 I I 

FDA Emergency Operations Plan 

Incident Objectives (ICS 202), Adapated for FDA 

1. Incident Name: 2. Operational Period: Date From: Date To: 

Time From: Time To: 

3. Objective(s): 

4. Operational Period Command Emphasis: 

General Situational Awareness: 

5. Site Safety Plan Required? Yes  No 

Approved Site Safety Plan(s) Located at: 

6. Incident Action Plan (the items checked below are included in this Incident Action Plan): 

 ICS 203  Map/Chart Other Attachments: 

 ICS 204  Weather Forecast/Tides/Currents 

 ICS 205 

 ICS 206 

 ICS 208 

7. Prepared by: Name: Position/Title: Signature: 

8. Approved by Incident Commander: Name: Signature: 

ICS 202 IAP Page _____ Date/Time: 

Updated by FDA 2/2011 

Appendix J: 

July 2019 App J-8 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-9 Forms and Templates 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

I 

I 

FDA Emergency Operations Plan 

Organization Assignment List (ICS 203), Adapted for FDA 

1. Incident Name: 2. Operational Period: Date From: Date To: 

Time From: Time To: 

3. Incident Commander(s)/Agency Incident 

Coordinator and Command Staff: (include location) 7. Operations Section: 

 IMT IC/UCs Chief 

 IMG AIC Deputy 

Deputy Staging Area 

Safety Officer Branch 

Public Info. Officer Branch Director 

Liaison Officer Deputy 

4. Agency/Organization Representatives: Division/Group 

Agency/Organization Name Division/Group 

Division/Group 

Division/Group 

Division/Group 

Branch 

Branch Director 

Deputy 

5. Planning Section: Division/Group 

Chief Division/Group 

Deputy Division/Group 

Resource Unit Division/Group 

Situation Unit Division/Group 

Documentation Unit Branch 

Demobilization Unit Branch Director 

Technical Specialists Deputy 

Division/Group 

Division/Group 

Division/Group 

6. Logistics Section: Division/Group 

Chief Division/Group 

Deputy 

Support Branch 

Director 

Supply Unit 

Facilities Unit 8. Finance/Administration Section: 

Ground Support Unit Chief 

Service Branch Deputy 

Director Time Unit 

Communications Unit Procurement Unit 

Medical Unit Comp/Claims Unit 

Food Unit Cost Unit 

9. Prepared by: Name: Position/Title: Signature: 

ICS 203 IAP Page _____ Date/Time: 

Updated by FDA 2/2011 

Appendix J: 

July 2019 App J-10 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-11 Forms and Templates 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

1

1

11 -

I I 

FDA Emergency Operations Plan 

Assignment List (ICS 204), Adapated for FDA 

1. Incident Name: 2. Operational Period: 

Date From: Date To: 

Time From: Time To: 

3. 

Branch: 

Division: 

Group: 4. Operations Personnel: Name Contact Number(s) 

Operations Section Chief: 

Branch Director: 

Division/Group Supervisor: 

5. Resources Assigned: 

# ofPersons

Contact (e.g., phone, pager, radio 

frequency, etc.) 

Reporting Location, Special 

Equipment and Supplies, 

Resource Identifier Leader Remarks, Notes, Information 

6. Work Assignments: 

7. Special Instructions: 

8. Communications (radio and/or phone contact numbers needed for this assignment): 

Name/Function Primary Contact: indicate cell, pager, or radio (frequency/system/channel) 

/ 

/ 

/ 

/ 

9. Prepared by: Name: Position/Title: Signature: 

ICS 204 IAP Page _____ Date/Time: 

Updated by FDA 2/2011 

Appendix J: 

July 2019 App J-12 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-13 Forms and Templates 
 

 

 

 

 

 

 

 

I I 

FDA Emergency Operations Plan 

Incident Communications Plan (ICS 205), Adapated for FDA 

1. Incident Name: 2. Date/Time Prepared:

Date: 

Time: 

3. Operational Period:

Date From: Date To: 

Time From: Time To: 

4. Incident communication information: 

Incident Assigned Position Name (Last, First) 

Primary 

Number 

Secondary 

Number 

Other Method (s) of Contact 

(pager, email, radio, etc.) 

Remarks 

5. Special Instructions: 

6. Prepared by (Communications Unit Leader): Name: Signature: 

ICS 205 IAP Page _____ Date/Time: 

Updated by FDA 2/2011 

Appendix J: 

July 2019 App J-14 Forms and Templates 
 

FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-15 Forms and Templates 
Incident Name: , 2. Operational Period: Date From: Date To: 

Time From: Time To 

3. Medical Aid Stations: 

Name Location 

Contact Paramedics 

Number(s)/Frequency on Site? 

 Yes  No 

 Yes  No 

 Yes  No 

 Yes  No 

 Yes  No 

 Yes  No 

4. Transportation: 

Ambulance Service Location Contact Level of Service Number(s)/Frequency 

 ALS  BLS 

 ALS  BLS 

 ALS  BLS 

 ALS  BLS 

5. Hospitals: 

Hospital Name Address Contact Distance 

Trauma Burn Helipad Number(s) Center Center 

 Yes  Yes  Yes 

Level: 

-- No  No 

 Yes  Yes  Yes 

Level· 

--  No  No 

 Yes  Yes  Yes 

Level: 

--  No  No 

 Yes  Yes  Yes 

Level: 

--  No  No 

 Yes  Yes  Yes 

Level: --  No  No 

6. Special Medical Emergency Procedures: 

7. Prepared by (Medical Unit Leader): Name: Signature: 

8. Approved by (Safety Officer): Name: Signature: 

ICS 206 I IAP Page I Date/Time: 

Updated by FDA 212011 

FDA Emergency Operations Plan 

Medical Plan (ICS 206), Adapted for FDA 

Appendix J: 

July 2019 App J-16 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-17 Forms and Templates 
Incident Name: 12. Operational Period: Date From: 

Time From: 

3. Safety Message/Expanded Safety Message, Safety Plan, Site Safety Plan: 

4. Site Safety Plan Required? Yes D No D 

Approved Site Safety Plan(s) Located At: 

Date To: 

Time To: 

5. Prepared by: Name: Position/Title: ________ Signature ________ _ 

~.:...:.:.::.:::.:..:::.:..:::.::.:....:..::..:.:.~========= 

ICS208 I IAP Page I Date/Time: 

FDA Emergency Operations Plan 

Safety Message/Plan (ICS 208) 

Appendix J: 

July 2019 App J-18 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-19 Forms and Templates 
Organization Type Check one: 2. Incident Name 3. Check-In Location 4. Date/Time 

 IMT  IMG  Base  District  EOC  

 

Check-In Information 

5. 6. 7. 8. 9. 10. 11. 12. 13. 14. 

Agency Resource Name Date & Military Time Mobile Phone# Desk Phone# Incident Home Method of Facility/IT Needs (parking, Other 

If Personnel (Last, First) of Check-In Assignment Center/Office Travel badge swipe access, 

Blackberry etc. 

15. Prepared by (Name and Position) Use back for additional remarks or comments 

Page __ of __ 

Updated by FDA 2/2011 

FDA Emergency Operations Plan 

Incident Check-In List (ICS 211), Adapted for FDA 

Appendix J: 

July 2019 App J-20 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-21 Forms and Templates 
Incident Name: 12. DatefTime 13. Resource Request Number: 

4. Order (Use additional forms when requesting different resource sources of supply.): 

Detailed Item Description: (Vital characteristics, 5. Resource Status 

Qty. Kind Type Cost brand, specs, experience, size, etc.) Received by Date/Time Assigned to Released to Date/Time 

... 

0 

-Ill 

QI 

:I 

er 

QI 

0:: 

6. Requested Delivery/Reporting Location: 

7. Suitable Substitutes and/or Suggested Sources: 

8. Requested by Name/Position: 19. Priority: D Urgent 10. Section Chief Approval: 

0 Routine O Low 

11. Logistics Order Number: 12. Supplier Phone/Fax/Email: 

Ill 13. Name of Supplier/POC: I,) 

~ 14. Notes: 

Cl 

0 

.J 

15. Approval Signature of Auth Logistics Rep: 16. Date/Time: 

17. Order placed by: 

QI 18. Reply/Comments from Finance: 

I,) 

C 

IQ 

C 

U::: 

19. Finance Section Signature: 20. Date/Time: 

ICS 213 RR, Page 1 

Updated by FDA 2/2011 

FDA Emergency Operations Plan 

Resource Request (ICS 213 RR), Adapted for FDA 

Appendix J: 

July 2019 App J-22 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-23 Forms and Templates 
Incident Name: 12. Operational Period: Date From: Date To : 

Time From: Time To: 

3. Name: 4. ICS Position: 5. Home Agency (and Unit): 

6. Resources Assigned: 

Name ICS Position Home Agency (and Unit) 

7. Activity Log: 

Date/Time Notable Activities 

8. Prepared by: Name: Position/Title Signature: 

ICS 214, Page 1 I Date/Time 

FDA Emergency Operations Plan 

Activity Log (ICS 214) 

Appendix J: 

July 2019 App J-24 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-25 Forms and Templates 
 

 

 

 

 

 

 

/ / / / / / / / / / / / 

/ / / / / / / / / / / / 

/ / / / / / / / / / / / 

FDA Emergency Operations Plan 

Operational Planning Worksheet (ICS 215) 

1. Incident Name: 2. Operational Period: Date From: 

Time From: 

Date To: 

Time To: 

3. Branch4. Division, Group,or Other5. WorkAssignment &Special Instructions6. Resources7. OverheadPosition(s)8. SpecialEquipment &Supplies9. ReportingLocation10. RequestedArrival Time 

Req. 

Have 

Need 

Req. 

Have 

Need 

Req. 

Have 

Need 

Req. 

Have 

Need 

Req. 

Have 

Need 

Req. 

Have 

Need 

ICS 215 

11. Total Resources 

Required 14. Prepared by: 

Name: 

Position/Title: 

Signature: 

Date/Time: 

12. Total Resources 

Have on Hand 

13. Total Resources 

Need To Order 

Appendix J: 

July 2019 App J-26 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-27 Forms and Templates 
. Incident Name: 12. Incident Number: 

3. Date/Time Prepared: 

Date: Time: 

1

4. Operational Period: Date From: 

Time From: 

Date To: 

Time To: 

5. Incident Area 6. Hazards/Risks 7. Mitigations 

8. Prepared by (Safety Officer): Name ___________ Signature: __________ _ 

Prepared by (Operations Section Chief): Name: Signature: ________ _ 

ICS 21 SA I Date/Time 

1 

FDA Emergency Operations Plan 

Incident Action Plan Safety Analysis (ICS 215A) 

Appendix J: 

July 2019 App J-28 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-29 Forms and Templates 
Incident Name: I 2. Incident (EON) Number: 

3. Planned Release Date!Time: 14. Resource or Personnel Released: 15. Order Request Number: 

Date: Time: 

6. Resource or Personnel: D IMT OIMG 

You and your resources are in the process of being released. Resources are not released until the checked boxes 

below have been signed off by the appropriate overhead and the Demobilization Unit Leader (or Planning Section 

representative). 

OPERATIONS SECTION 

Division/Group 

Supervisor Remarks Name Siqnature 

 

 

 

PLANNING SECTION 

Unit!Leader Remarks Name Signature 

 Situation Leader 

 Documentation Leader 

 Demobilization Leader 

 

LOGISTICS SECTION g I UnlULeade, I Rema,ks I··- Signature 

FINANCEIADMINISTRATION SECTION 

~ I un;ULeade, I Rema,ks 1••= Signature 

OTHER SECTIONISTAFF 

~ I un;uothe, I Rema,ks 1••= Signature 

7. Remarks: 

8. Travel Information: Room Overnight:  Yes  No 

Estimated Time of Departure: Actual Release Date/Time: 

Destination: Estimated Time of Arrival : 

Travel Method: Contact Information While Traveling: 

Departure Location: Office/Center/Region/District Notified: 

Reservation, Fl ight, or Train Number: 

9. Reassignment Information:  Yes  No 

Incident Name: Incident Number: 

Location: Order Request Number: 

10. Prepared by: Name: Position/Title: Signature: 

ICS 221 I Date/Time: 

Updated by FDA 912013 

FDA Emergency Operations Plan 

Demobilization Check-Out (ICS 221), Adapted for FDA 

Appendix J: 

July 2019 App J-30 Forms and Templates 
FDA Emergency Operations Plan 

This Page Is Intentionally Left Blank. 

Appendix J: 

July 2019 App J-31 Forms and Templates 
 

 

 

 

 

 

FDA Emergency Operations Plan 

Situation Report 

Template for creation of Situation Reports by FDA Incident Management Groups 

FDA Situation Report 

Page Header 

Distributing Office (EOC) 

Title of Incident FDA Situation Report Number 

Date (DD/MM/YYYY) Timeframe Report Covers (military time MM/DD/YYYY to MM/DD/YYYY) 

to 

A. Executive Summary: 

♦ A brief description of the incident 

♦ Initial and long-term response operations 

♦ The resources that were deployed, including whether specific resources were requested through 

the SOC, FEMA, mutual aid, or another mechanism 

♦ A description of key events and the timeframes of occurrence 

♦ Decisions that were made in response to events and the results 

♦ Issues that arose during the course of operations. Include those between or among MAC System 

entities, between the Incident Command and the EOC, and within the EOC. 

B. New Information: 

C. Investigations-Related Information and Other Data: 

Data sources may include local, State, and other Federal Departments/Agencies. The 

following are examples of what data to report in this section. 

♦ Outbreak Data 

♦ Epidemiological Data 

♦ Lab Testing Data 

♦ Analytical Data 

 Traceback Data 

 Traceforward Data 

 Assignments 

♦ Sampling Data 

D. Documentation Unit: 

Appendix J: 

July 2019 App J-32 Forms and Templates 
 

FDA Emergency Operations Plan 

FDA Situation Report (page 2) 

E. Communications: 

♦ Internal (within FDA) 

♦ External (with other agencies, including HHS and CDC) 

♦ Public Information (issuance of press releases; Consumer Health Information posted to FDA 

website; Call Center; outreach to patient, health professional and industry groups) 

F. Strategic Objectives: 

G. Additional Incident Response Information: 

H. Prepared by: 

I. Reviewed/Approved by: 

Appendix J: 

July 2019 App J-33 Forms and Templates 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Appendix K: 

Glossary of Terms 

This appendix contains definitions of key terms as they are applied within the FDA EOP. All supporting 

agency emergency plans and procedural documentation shall be compliant with the terminology 

contained herein. 

Term Definition 

Abbreviated New Drug An ANDA contains data that, when submitted to FDA’s Center for Drug Evaluation and Research, 

Application (ANDA) Office of Generic Drugs, provide for the review and ultimate approval of a generic drug product. 

Once approved, an applicant may manufacture and market the generic drug product to provide a 

safe, effective, low-cost alternative to the American public. 

A generic drug product is one that is comparable to an innovator drug product in dosage form, 

strength, route of administration, quality, performance characteristics, and intended use. 

Generic drug applications are termed “abbreviated” because they are generally not required to 

include preclinical (animal) and clinical (human) data to establish safety and effectiveness. Instead, 

generic applicants must scientifically demonstrate that their product is bioequivalent (i.e., performs 

in the same manner as the innovator drug). One way scientists demonstrate bioequivalence is to 

measure the time it takes the generic drug to reach the bloodstream in 24 to 36 healthy volunteers. 

This gives them the rate of absorption, or bioavailability, of the generic drug, which they can then 

compare to that of the innovator drug. The generic version must deliver the same amount of active 

ingredients into a patient’s bloodstream in the same amount of time as the innovator drug. 

The ANDA regulations can be found in Title 21 of the CFR Part 314, Subpart C. 

Activation Implementation of an emergency plan, in whole or in part, in response to a confirmed report of an 

incident. 

Agency Emergency Employees who serve as FDA’s central emergency coordination point with FDA field offices, 

Coordinator headquarters, and Centers and Federal, State, and local entities, including the CDC. They provide 

interagency coordination and response during adverse events, foodborne illnesses, injuries, product 

tampering, and manmade and natural disasters. In addition, they provide essential support and lead 

the agency proportional response to bioterrorism, shortage, and recall emergencies. They serve as 

a SME in the Incident Command System (ICS) and the National Incident Management System 

(NIMS). 

Agency Executive The AEG is established when an emergency calls for the involvement of senior FDA officials with 

Group (AEG) the knowledge and authority to address a wide range of issues that may arise. The AEG, whether 

convened as a collective unit or acting as individual members, serves primarily to provide strategic 

policy direction and guidance for major agency emergency response activities and to approve 

important policy decisions in consultation with the Commissioner and AIC when necessary. 

Agency Incident The individual responsible for the overall coordination of agency emergency management teams 

Coordinator (AIC) assigned. The AIC ensures that conflicts are resolved, incident objectives are established, and 

strategies are selected for the use of critical agency resources. He/she is also responsible for 

communicating with FDA headquarters and field organizational components and external Federal 

agencies. The AIC reports directly to the AEG. Until an AIC is appointed by the Commissioner, 

Deputy Commissioner, or other designated senior agency official, the Director, OEO, within OEM, 

may serve as the AIC. 

Alert Incident information without support. An alert is issued to agency emergency personnel when the 

following is received: 

 An unconfirmed report of a product-related illness/injury or unanticipated adverse reaction. 

 An unconfirmed report of the presence of a toxic (i.e., chemical, biological, radiological, or nuclear 

[CBRN]) substance. 

 A report of a natural (e.g., hurricane, flood, tornado) or manmade (e.g., oil spill, radiological 

accident) disaster. 

All-Hazards Describing an incident, natural or manmade, that warrants action to protect life, property, environment, and public health or safety and to minimize disruptions of government, social, or economic 

activities. 

Antiviral Drug that is used to prevent or cure a disease caused by a virus by interfering with the ability of the 

virus to multiply in number or spread from cell to cell. 

Appendix K: 

July 2019 App K-1 Glossary of Terms 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Avian Influenza An infection caused by type A influenza viruses. These viruses occur naturally among birds 

worldwide, particularly waterfowl and shore birds. Wild birds are the natural reservoir of avian 

influenza viruses and carry the viruses in their intestines; they usually do not become ill from them. 

Infected birds shed influenza virus in their saliva, nasal secretions, and feces. Susceptible birds 

become infected when they have contact with contaminated excretions or with surfaces that are 

contaminated with excretions or secretions. Domesticated poultry may become infected with avian 

influenza virus through direct contact with infected waterfowl or other infected poultry or through 

contact with surfaces (such as dirt or cages) or materials (such as water or feed) that have been 

contaminated with the virus. 

Becquerel (Bq) A unit of radioactivity equivalent to one decay (disintegration) per second. 

Catastrophic Incident Any natural or manmade incident, including terrorism, that results in extraordinary levels of mass 

casualties, damage, or disruption severely affecting the population, infrastructure, environment, 

economy, national morale, and/or government functions. 

Center/Office 

Emergency Coordinator 

The staff member who has responsibility for Center/Office emergency management programs and 

activities. The role is one of coordinating all aspects of the Center’s mitigation, preparedness, 

response, and recovery capabilities and serving in a liaison capacity between the Center/Office 

emergency management team and the Operations Section Chief. The Center Emergency 

Coordinator may serve as the AIC for all emergencies and disasters involving or affecting his/her 

product Center, unless otherwise directed. 

Centers FDA Product Centers: 

 Center for Biologics Evaluation and Research (CBER) 

 Center for Drug Evaluation and Research (CDER) 

 Center for Devices and Radiological Health (CDRH) 

 Center for Food Safety and Applied Nutrition (CFSAN) 

 Center for Veterinary Medicine (CVM) 

 Center for Tobacco Products (CTP) 

FDA Research Center: 

 National Center for Toxicological Research (NCTR) 

Centers for Disease 

Control and Prevention 

(CDC) 

The U.S. government agency at the forefront of public health efforts to prevent and control 

infectious and chronic diseases, injuries, workplace hazards, disabilities, and environmental health 

threats. CDC is one of 13 major operating components of HHS. 

Chief The ICS title for individuals responsible for management of functional Sections: Operations, 

Planning, Logistics, and Finance/Administration. 

Command Staff The staff who report directly to the IC/AIC, including the Public Information Officer (PIO), Safety 

Officer, Liaison Officer (LNO), and other positions as required. They may have an assistant or 

assistants as needed. 

Commissioner The Commissioner of Food and Drugs. 

Committed Dose The cumulative dose to an individual’s whole body or a specific organ resulting from continuous 

exposure to radioactive materials deposited inside the body, projected to either 50 or 70 years for 

an occupational worker or member of the general public, respectively. 

Common Operating 

Picture 

A continuously updated overview of an incident compiled throughout an incident’s lifecycle from 

data shared between integrated systems for communication, information management, and 

intelligence and information sharing. The common operating picture allows agency headquarters 

and field personnel to make effective, consistent, and timely decisions. 

Confirmed Report Report that a problem has been confirmed through laboratory analyses, field investigations, 

analysis of epidemiological data, or a combination of these. Information received from another 

governmental agency or other source known to be reliable may be accepted for confirmation 

purposes. 

Contamination 

(Radioactive) 

The unexpected or undesired presence of radioactive material in or on the surfaces of structures, 

areas, objects, or people. 

Cooperating Agency Cooperating agencies include Federal agencies that provide additional technical and resource 

support specific to nuclear/radiological incidents to DHS and the coordinating agencies. 

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FDA Emergency Operations Plan 

Coordinating Agency Coordinating agencies provide the leadership, expertise, and authorities to implement critical and 

specific nuclear/radiological aspects of the response, and facilitate nuclear/radiological aspects of 

the response in accordance with those authorities and capabilities. The coordinating agencies are 

those Federal agencies that own, have custody of, authorize, regulate, or are otherwise assigned 

responsibility for the nuclear/radioactive material, facility, or activity involved in the incident. These 

Federal agencies have nuclear/radiological authorities, technical expertise, and/or assets for 

responding to the unique characteristics of nuclear/radiological incidents that are not otherwise 

described in the NRF. 

Corrective Action Implementing procedures that are based on lessons learned from actual incidents or from training 

and exercises. 

Decay (Radioactive) Disintegration of the nucleus of an unstable atom by the release of radiation. 

Demobilization The orderly, safe, and efficient return of agency resources to their original location and operating 

status. Demobilization signals the transition from the response phase of operations to recovery. 

Deployment The relocation of agency resources to desired operational areas. Deployment encompasses all 

activities from departing normal locations through arrival at destinations. 

Division The organizational level having responsibility for operations within a defined geographic area. 

Divisions are established within the Operations Section, at the headquarters level, to coordinate and 

monitor the operations of responding FDA Program and/or Districts within a particular location 

and/or when a foreign country is involved. 

Dose Coefficient A factor used to convert radionuclide intake or content to radiation dose. One usually expresses it 

as dose per unit intake (e.g., sieverts [Svs] per becquerel). 

Dose Equivalent A quantity used in radiation protection to place all radiation on a common scale for calculating tissue 

damage. Dose equivalent is the absorbed dose in grays times a quality factor. The quality factor 

accounts for differences in radiation effects caused by different types of ionizing radiation. Some 

radiation, including alpha particles, causes a greater amount of damage per unit of absorbed dose 

than other radiation. The Sv is the unit that measures dose equivalent. 

Dosimeter A small portable instrument (e.g., a film badge, thermoluminescent dosimeter [TLD], or pocket 

dosimeter) for measuring and recording the total accumulated dose of ionizing radiation a person 

receives. 

Effective Dose A dosimetric quantity useful for comparing the overall health effects of irradiation of the whole body. 

It takes into account the absorbed doses received by various organs and tissues and weighs them 

according to present knowledge of the sensitivity of each organ to radiation. It also accounts for the 

type of radiation and the potential for each type to inflict biologic damage. Use the effective dose, 

for example, to compare the overall health detriments of different radionuclides in a given mix. The 

unit of effective dose is the Sv; 1 Sv = 1 joule per kilogram (J/kg). 

Emergency Any incident, whether natural or manmade, that requires responsive action to protect life or 

property. Under the Stafford Act, an emergency means any occasion or instance for which, in the 

determination of the President, Federal assistance is needed to supplement State and local efforts 

and capabilities to save lives and to protect property and public health and safety, or to lessen or 

avert the threat of a catastrophe in any part of the United States. 

Emergency

Management 

The coordination and integration of all activities necessary to build, sustain, and improve the 

capability to prepare for, protect against, respond to, recover from, or mitigate against threatened or 

actual natural disasters, acts of terrorism, or other manmade emergencies. 

Emergency Operations

Plan (EOP) An ongoing plan for responding to a wide variety of potential hazards. 

Emergency Support

Function (ESF) 

Used by the Federal government and many State governments as the primary mechanism at the 

operational level to organize and provide assistance. ESFs align categories of resources and 

provide strategic objectives for their use. ESFs utilize standardized resource management concepts 

such as typing, inventorying, and tracking to facilitate the dispatch, deployment, and recovery of 

resources before, during, and after an incident. 

Emergency Support

Function (ESF) Annexes 

Annexes to the FDA EOP that present the missions, policies, structures, and responsibilities of FDA 

organizational components for coordinating resource and programmatic support to other Federal 

agencies, States, territories, tribes, and local jurisdictions when NRF ESFs are activated during an 

incident. 

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FDA Emergency Operations Plan 

Emergency Use 

Authorization (EUA) 

Section 564 of the FD&C Act (21 U.S.C. 360bbb-3) permits the Commissioner of Food and Drugs to 

authorize the use of an unapproved medical product or an unapproved use of an approved medical 

product during a declared emergency involving a heightened risk of attack on the public or U.S. 

military forces. The EUA authority allows FDA to strengthen the public health protections against 

CBRN agents that may be used to attack the American people or U.S. Armed Forces. Under 

Section 564 of the FD&C Act, the FDA Commissioner may allow medical countermeasures to be 

used in an emergency to diagnose, treat, or prevent serious or life-threatening diseases or conditions caused by such agents when there are no adequate, approved, and available alternatives. 

Before FDA can issue an EUA, the HHS Secretary must declare an emergency justifying the 

authorization to use the product, based on one of three determinations: (1) a determination by the 

Secretary of Homeland Security of a domestic emergency, or the significant potential for a domestic 

emergency; (2) a determination by the Secretary of Defense of a military emergency, or the 

significant potential for a military emergency; or (3) a determination by the HHS Secretary of a 

public health emergency under the Public Health Service Act (PHSA). 

Epidemic A disease occurring suddenly in humans in a community, region, or country in numbers clearly in 

excess of normal. (See Pandemic.) 

Exposure (Radiation) A measure of ionization in air caused by x-rays or gamma rays only. The unit of exposure most 

often used is the roentgen (R). 

Exposure Pathway A route by which a radionuclide or other toxic material can enter the body. The main exposure 

routes are inhalation, ingestion, absorption through the skin, and entry through a cut or wound in the 

skin. 

Finance/Administration

Section 

The ICS Section responsible for developing cost analyses and ensuring the IAP is within financial 

limits established by the Incident Commander. This Section also develops contracts and pays for 

resources. 

Good Manufacturing

Practice (GMP) 

Manufacturers establish and follow quality systems to help ensure their products consistently meet 

applicable requirements and specifications. The quality systems for FDA-regulated products (food, 

drugs, biological products, and devices) are known as current GMPs, also seen as cGMP or CGMP. 

The GMP regulations for food are at 21 CFR Part 110. For human drugs and most biological 

products, the CGMP regulations are at 21 CFR Parts 210 and 211. For devices, the CGMP 

regulations are at 21 CFR Part 820 (quality system regulation). 

Group An organizational subdivision established to divide the incident management structure into 

functional areas of operation. Groups within the Operations Section, composed of headquarters 

personnel, are created to address similar emergency response activities. 

Hazard Something that is potentially dangerous or harmful, often the root cause of an unwanted outcome. 

Headquarters Includes all Offices within the OC, ORA, product Centers, and any divisions or branches therein. 

Improvised Nuclear

Device (IND) 

An IND is an illicit nuclear weapon bought, stolen, or otherwise originating from a nuclear state, or a 

weapon fabricated by a terrorist group from illegally obtained fissile nuclear weapons material that 

produces a nuclear explosion. The nuclear yield achieved by an IND produces extreme heat, 

powerful shockwaves, and prompt radiation that would be acutely lethal for a significant distance. It 

also produces radioactive fallout, which may spread and deposit over very large areas. If a nuclear 

yield is not achieved, the result would likely resemble an RDD in which fissile weapons material was 

utilized. 

Incident An occurrence, natural or manmade, that requires a response to protect life or property. Incidents 

can, for example, include major disasters, emergencies, terrorist attacks, terrorist threats, civil 

unrest, wildland and urban fires, floods, HazMat spills, nuclear accidents, aircraft accidents, 

earthquakes, hurricanes, tornadoes, tropical storms, tsunamis, war-related disasters, public health 

and medical emergencies, and other occurrences requiring an emergency response. 

Incident Action Plan 

(IAP) 

An oral or written plan containing general objectives reflecting the overall agency strategy for 

managing an incident. It may include the identification of operational resources and assignments 

and/or attachments that provide direction and important information for management of the incident 

throughout its lifecycle. The Planning Section Chief, in coordination with other Incident Command 

and General Staff members, is responsible for developing the IAP. 

Incident Annexes Describe the concepts of operations to address specific hazards requiring specialized application of 

the FDA EOP. 

Incident Command Post 

(ICP) 

The field location where the primary functions are performed. The ICP may be collocated with the 

Incident Base or other incident facilities. 

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FDA Emergency Operations Plan 

Incident Command A standardized on-scene emergency management construct designed to provide for the adoption of 

System (ICS) an integrated organizational structure that reflects the complexity and demands of single or multiple 

incidents, without being hindered by jurisdictional boundaries. ICS is designed to enable effective 

incident management by integrating a combination of facilities, equipment, personnel, procedures, 

and communications operating within a common organizational structure. It is used for all kinds of 

emergencies and is applicable to small as well as large and complex incidents. ICS is used by 

various jurisdictions and functional agencies, both public and private, to organize incident 

management operations. 

Incident Commander The individual responsible for all incident activities at the field level, including the development of 

(IC) strategies and tactics and the ordering and release of resources. The IC has overall authority and 

responsibility for conducting incident operations and is responsible for the management of all 

incident operations. 

Influenza A serious disease caused by viruses that infect the respiratory tract. 

Investigational New The IND regulations are at 21 CFR Part 312. Current Federal law requires that a new drug be the 

Drug (IND) Application subject of an approved marketing application before it is transported or distributed across State 

lines unless the drug is shipped for investigational uses under an IND application. During a new 

drug’s early preclinical development, the sponsor’s primary goal is to determine if the product is 

reasonably safe for initial use in humans and if the compound exhibits pharmacological activity that 

justifies commercial development. When a product is identified as a viable candidate for further 

development, the sponsor then focuses on collecting the data and information necessary to 

establish that the product will not expose humans to unreasonable risks when used in limited earlystage clinical studies. 

FDA’s role in the development of a new drug begins when the drug’s sponsor (usually the manufacturer or potential marketer), having screened the new molecule for pharmacological activity and 

acute toxicity potential in animals, wants to test its diagnostic or therapeutic potential in humans. At 

that point, the molecule changes in legal status under the FD&C Act and becomes a new drug 

subject to specific requirements of the drug regulatory system. 

The IND application must contain information in three broad areas: 

 Animal Pharmacology and Toxicology Studies. Preclinical data to permit an assessment as to 

whether the product is reasonably safe for initial testing in humans. Also included is any previous 

experience with the drug in humans (often foreign use). 

 Manufacturing Information. Information pertaining to the composition, manufacture, stability, 

and controls used for manufacturing the drug substance and the drug product. This information is 

assessed to ensure that the company can adequately produce and supply consistent batches of 

the drug. 

 Clinical Protocols and Investigator Information. Detailed protocols for proposed clinical 

studies to assess whether the initial-phase trials will expose subjects to unnecessary risks and 

whether later stage trials are designed in a way to provide reliable evidence concerning effectiveness. Also, information on the qualifications of clinical investigators—professionals (generally 

physicians) who oversee the administration of the experimental compound—to assess whether 

they are qualified to fulfill their clinical trial duties. Finally, commitments to obtain informed 

consent from the research subjects, to obtain review of the study by an Institutional Review Board 

(IRB), and to adhere to the IND regulations. 

Once the IND is submitted, the sponsor must wait 30 calendar days before initiating any clinical 

trials unless FDA grants a waiver. During this time, FDA has an opportunity to review the IND for 

safety to ensure that research subjects will not be subjected to unreasonable risk. 

There are two general categories of INDs: 

 Commercial. An IND for which the sponsor intends for the product to be commercialized at some 

point. The sponsor for a commercial IND is generally a corporate entity or, in some cases, the 

National Institutes of Health (NIH) or an academic institution. 

 Research (Noncommercial). An IND for which a study is being conducted for research purposes 

rather than commercial development. These INDs are generally sponsored by an individual 

investigator or an academic institution. 

Within the two IND categories, there are several IND types. 

 Standard IND, while not a regulatory term, refers to an IND submitted as described under 

21 CFR 312.23. Such an IND may be either a commercial or research IND. 

 Emergency IND refers to when emergency use of an investigational drug is permitted by FDA 

based on telephone or other rapid communication request in some circumstances in which there 

is not time for submission of an IND application under the regulations. See 21 CFR 312.36. The 

term emergency IND is also, however, sometimes used to describe an IND that is specific to a 

particular patient and as to which use of the investigational drug is justified because alternative 

treatments are not available. 

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FDA Emergency Operations Plan 

 Treatment INDs, described under 21 CFR 312.34, are used to make promising new drugs available to desperately ill patients as early in the drug development process as possible. FDA will 

permit an investigational drug to be used under a treatment IND if there is preliminary evidence of 

drug efficacy and the drug is intended to treat a serious or life-threatening disease, or if there is 

no comparable alternative drug or therapy available to treat that stage of the disease in the 

intended patient population. In addition, these patients are not eligible to be in the definitive 

clinical trials, which must be well underway, if not almost finished. 

Isolation A state of separation between persons or groups to prevent the spread of disease. The first 

published recommendations for isolation precautions in U.S. hospitals appeared as early as 1877, 

when a handbook recommended placing patients with infectious diseases in separate facilities. 

Isolation measures can be undertaken in hospitals or homes, as well as in alternative facilities. 

Joint Field Office (JFO) The primary Federal incident management field structure. The JFO is a temporary Federal facility 

that provides a central location for the coordination of Federal and SLTT governments and private 

sector and nongovernmental organizations (NGOs) with primary responsibility for response and 

recovery. The JFO structure is organized, staffed, and managed in a manner consistent with NIMS 

principles and is led by a Unified Coordination Group. Although the JFO uses an ICS structure, the 

JFO does not manage on-scene operations. Instead, the JFO focuses on providing support to onscene efforts and conducting broader support operations that may extend beyond the incident site. 

Joint Information 

Center (JIC) 

An interagency entity established to coordinate and disseminate information for the public and 

media concerning an incident. JICs may be established locally, regionally, or nationally depending 

on the size and magnitude of the incident. 

Lead District The FDA District Office with primary responsibility for addressing an incident. For the majority of 

incidents involving FDA-regulated products, the District in which the event is occurring (e.g., the 

physical location where people have been affected) will generally assume the lead District role. 

Liaison Officer (LNO) A member of the Command Staff responsible for coordinating with external Federal agencies (i.e., 

HHS, CDC, USDA, DHS, FBI, or DOS). LNOs serve as direct links between the AIC and their 

assigned agencies, and work as members of the external agencies’ EOCs, providing input on FDA 

policies, activities, concerns, resource availability, and other incident-related matters. 

Logistics Section Section responsible for providing facilities, services, and material support for the incident. 

Major Disaster Under the Stafford Act, any natural catastrophe (including any hurricane, tornado, storm, high 

water, wind-driven water, tidal wave, tsunami, earthquake, volcanic eruption, landslide, mudslide, 

snowstorm, or drought) or, regardless of cause, any fire, flood, or explosion in any part of the United 

States that, in the determination of the President, causes damage of sufficient severity and 

magnitude to warrant major disaster assistance under the Stafford Act to supplement the efforts and 

available resources of States, local governments, and disaster relief organizations in alleviating the 

damage, loss, hardship, or suffering caused thereby. 

Memorandum of 

Understanding (MOU) 

A formal agreement between FDA and another government agency (Federal, State, or local) or 

private institution, or an informal agreement with foreign governments or other foreign institutions. 

Mission Assignment

(MA) 

A task given to an agency component to perform within a given operational period that is based on 

operational objectives defined in the IAP. 

National Disaster A federally coordinated system that augments the Nation’s medical response capability. The overall 

Medical System (NDMS) purpose of the NDMS is to supplement an integrated national medical response capability for 

assisting State and local authorities in dealing with the medical impacts of major peacetime 

disasters and to provide support to the military and the U.S. Department of Veterans Affairs (VA) 

medical systems in caring for casualties evacuated back to the United States from overseas armed 

conventional conflicts. 

The NRF uses the NDMS, as part of HHS/ASPR, under ESF #8 – Public Health and Medical 

Services, to support Federal agencies in the management and coordination of the Federal medical 

response to major emergencies and federally declared disaster, including: 

 Natural Disasters 

 Major Transportation Accidents 

 Technological Disasters 

 Acts of Terrorism, including WMD events 

National Disaster Serves as guide to enable effective recovery support to disaster-impacted SLTT jurisdictions. It 

Recovery Framework provides a flexible structure that enables disaster recovery managers to operate in a unified and 

(NDRF) collaborative manner. It also focuses on how best to restore, redevelop, and revitalize the health, 

social, economic, natural, and environmental fabric of the community and build a more resilient 

Nation. 

Appendix K: 

July 2019 App K-6 Glossary of Terms 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

National Incident 

Management System

(NIMS) 

Provides a systematic, proactive approach to guide departments and agencies at all levels of 

government, NGOs, and the private sector to work seamlessly to prevent, protect against, respond 

to, recover from, and mitigate the effects of incidents, regardless of cause, size, location, or 

complexity, to reduce the loss of life and property and harm to the environment. NIMS works handin-hand with the NRF. It provides the template for the management of incidents, while the NRF 

provides the structure and mechanisms for national-level policy for incident management. 

National Infrastructure Plan that provides a coordinated approach to critical infrastructure and key resources (CIKR) 

Protection Plan (NIPP) protection for Federal, State, tribal, local, and private sector security partners. It sets national 

priorities, goals, and requirements for effective distribution of funding and resources that will help 

ensure that our government, economy, and public services continue in the event of a terrorist attack 

or other disaster. 

National Operations Serves as the primary national hub for situational awareness and operations coordination across 

Center (NOC) the Federal government for incident management. The NOC provides the Secretary of Homeland 

Security and other principals with information necessary to make critical national-level incident 

management decisions. 

National Preparedness 

Guidelines 

Guidance that establishes a vision for national preparedness and provides a systematic approach 

for prioritizing preparedness efforts across the Nation. These guidelines focus policy, planning, and 

investments at all levels of government and the private sector. 

National Response Guides how the Nation conducts all-hazards response. The NRF documents the key response 

Framework (NRF) principles, roles, and structures that organize national response. It describes how communities, 

States, the Federal government, and private sector and nongovernmental partners apply these 

principles for a coordinated, effective national response. Also, it details special circumstances 

where the Federal government exercises a larger role, including incidents where Federal interests 

are involved and catastrophic incidents where a State would require significant support. The NRF 

allows first responders, decision makers, and supporting entities to provide a unified national 

response. 

National Terrorism 

Advisory System

(NTAS) 

The NTAS communicates information about terrorist threats by providing timely, detailed 

information to the public, government agencies, first responders, airports and other transportation 

hubs, and the private sector. 

 An Elevated Threat Alert warns of credible nonspecific terrorist threat against the United States. 

 An Imminent Threat Alert warns of credible, specific, and impending terrorist threat against the 

United States. 

New Drug Application

(NDA) 

The NDA is the vehicle through which drug sponsors formally propose that FDA approve a new 

pharmaceutical for sale and marketing in the United States. The data gathered during the animal 

studies and human clinical trials of an IND become part of the NDA. 

The goals of the NDA are to provide enough information to permit the FDA reviewer to reach the 

following key decisions: 

 Whether the drug is safe and effective in its proposed use(s), and whether the benefits of the 

drug outweigh the risks. 

 Whether the drug’s proposed labeling (package insert) is appropriate and what it should contain. 

 Whether the methods used in manufacturing the drug and the controls used to maintain the 

drug’s quality are adequate to preserve the drug’s identity, strength, quality, and purity. 

The documentation required in an NDA is supposed to tell the drug’s whole story, including what 

happened during the clinical trials, the ingredients of the drug, the results of the animal studies, how 

the drug behaves in the body, and how it is manufactured, processed, and packaged. 

The NDA regulations are at 21 CFR Part 314. 

Nuclide A general term applicable to all atomic forms of an element. The number of protons and neutrons in 

the nucleus and the amount of energy contained within the atom characterize nuclides. 

Offices Refers to the collective FDA headquarters and field offices, including those of the OC and ORA. 

Appendix K: 

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FDA Emergency Operations Plan 

Operating Division Agencies within HHS. HHS OPDIVs include FDA and the following: 

(OPDIV)  Administration for Children and Families (ACF) 

 Administration on Aging (AoA) 

 Agency for Healthcare Research and Quality (AHRQ) 

 Agency for Toxic Substances and Disease Registry (ATSDR) 

 Centers for Disease Control and Prevention (CDC) 

 Centers for Medicare & Medicaid Services (CMS) 

 Health Resources and Services Administration (HRSA) 

 Indian Health Service (IHS) 

 National Institutes of Health (NIH) 

 Substance Abuse and Mental Health Services Administration (SAMHSA) 

Operations Section The ICS Section responsible for all tactical incident operations and implementation of the IAP. In 

ICS, the Operations Section normally includes subordinate branches, divisions, and/or groups. 

Organizational As defined by FDA Staff Manual Guide (SMG) 1005.1, “FDA Organizational Changes – Policy, 

Component Policy Regarding Organizational Changes,” any part of the FDA organization that is separately 

established as an organizational entity by law, regulation, the Secretary, or an official who has been 

delegated authority and that has formally assigned functions and an approved Standard 

Administrative Code and title. FDA organizational components include all Centers, Offices, 

divisions, branches, and resident posts at the headquarters and field levels. 

Pandemic The worldwide outbreak of a disease in humans in numbers clearly in excess of normal. 

(See Epidemic.) 

Planning Section The ICS Section responsible for the collection, evaluation, and dissemination of operational 

information related to the incident and for the preparation and documentation of the IAP. This 

Section also maintains information on the current and forecasted situation and on the status of 

resources assigned to the incident. 

Plume The material spreading from a particular source and traveling through environmental media such as 

air or ground water. For example, a plume could describe the dispersal of particles, gases, vapors, 

and aerosols in the atmosphere or the movement of contamination through an aquifer (e.g., dilution, 

mixing, or adsorption onto soil). 

Preparedness Actions that involve a combination of planning, resources, training, exercising, and organizing to 

build, sustain, and improve operational capabilities. Preparedness is the process of identifying the 

personnel, training, and equipment needed for a wide range of potential incidents and developing 

specific plans for the delivery of agency capabilities. While not part of the phases of FDA 

emergency operations, preparedness ensures that agency resources are available and effectively 

implemented when needed. 

Presidential Policy

Directive 8 (PPD-8): 

National Preparedness 

Directive for the development of a national preparedness goal and national preparedness system. 

PPD-8 is designed to facilitate an integrated all-of-Nation/whole community capabilities-based 

approach to preparedness. 

Presumptive Used to describe information that strongly suggests a problem exists. Presumptive information 

consists of: 

 Epidemiological data that provides a significant association between an illness, injury, or 

unanticipated adverse reaction and a product. 

 An original analysis by a reliable laboratory revealing a significant level of a toxic substance in a 

regulated product, but confirmation is not complete. 

 Natural or manmade incident reporting the extent of which is unknown at the present time. 

Prevention Actions to avoid an incident or to intervene to stop an incident from occurring. It involves applying 

intelligence and other information to a range of activities that may include such countermeasures as 

deterrence operations, heightened inspections, investigations to determine the full nature and 

source of the threat, public health and agricultural surveillance and testing processes, and, as 

appropriate, specific law enforcement operations aimed at deterring, preempting, interdicting, or 

disrupting illegal activity and apprehending potential perpetrators and bringing them to justice. 

Program Executive 

Group 

When there is an IMT, the PEG is established to provide program specific overarching strategy and 

policy guidance at the district/geographic level. 

Protection Actions to mitigate the overall risk to FDA-regulated products resulting from accidental or intentional 

contamination/adulteration. Protection includes actions to deter the threat, mitigate vulnerabilities, or 

minimize consequences associated with a terrorist attack or other potential incident. 

Appendix K: 

July 2019 App K-8 Glossary of Terms 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Public Health The science and practice of protecting and improving the overall health of the community through 

disease prevention and early diagnosis, control of communicable diseases, health education, injury 

prevention, sanitation, and protection from environmental hazards. 

Public Health 

Emergency 

Pursuant to Section 319 of the PHSA, a determination by the HHS Secretary that a disease or 

disorder presents a public health risk, including significant outbreaks of infectious diseases or 

bioterrorist attacks. Existence of a public health emergency authorizes the Secretary to take certain 

actions appropriate to respond to the incident or potential incident, including making grants, 

providing awards for expenses, and entering into contracts and conducting and supporting 

investigations into the cause, treatment, or prevention of a disease or disorder. 

Public Information 

Officer (PIO) 

A member of the Command Staff responsible for managing incident-related information requirements. The PIO coordinates development and release of agency public health and consumer 

protection messages for use with the public, media, and/or other agencies with approval from FDA 

headquarters and HHS. 

Quarantine The period of isolation decreed to control the spread of disease. Before the era of antibiotics, 

quarantine was one of the few available means of halting the spread of infectious disease. It is still 

employed today as needed. The list of quarantinable diseases in the United States is established by 

Executive Order of the President, on recommendation of the HHS Secretary, and includes cholera, 

diphtheria, infectious tuberculosis, plague, smallpox, yellow fever, and viral hemorrhagic fevers 

(such as Marburg, Ebola, and Congo-Crimean disease). 

In 2003, severe acute respiratory syndrome (SARS) was added as a quarantinable disease. In 

2005, another disease was added to the list, influenza caused by novel or reemergent influenza 

viruses that are causing, or have the potential to cause, a pandemic. 

Radiation Energy moving in the form of particles or waves. Familiar radiations are heat, light, radio waves, 

and microwaves. Ionizing radiation is a very high-energy form of electromagnetic radiation. 

Radioactive 

Contamination 

The deposition of unwanted radioactive material on the surfaces of structures, areas, objects, or 

people. It can be airborne, external, or internal. 

Radioisotope

(Radioactive Isotope) 

Isotopes of an element that have an unstable nucleus. Science, industry, and medicine commonly 

use radioactive isotopes. The nucleus eventually reaches a stable number of protons and neutrons 

through one or more radioactive decays. Roughly 3,700 natural and artificial radioisotopes have 

been identified. 

Radiological Dispersal

Device (RDD) 

A device that disperses radioactive material by conventional explosive or other mechanical means, 

such as a spray. 

Radionuclide An unstable and therefore radioactive form of a nuclide. 

Recovery (Short Term) The transition from emergency response back to normal operations. During the short-term recovery 

phase, FDA analyzes the cause of the incident to minimize the chance of the incident, emergency, 

or crisis reoccurring and repairs any strained relationships with stakeholders. The agency also 

assesses the actions taken to resolve the incident and addresses any short- or long-term effects. As 

a result, agency policies, plans, and procedures are updated, incorporating lessons learned from 

the event. 

Resources Personnel and major items of agency equipment, supplies, and facilities available or potentially 

available for assignment to incident operations and for which status is maintained. 

Response Immediate actions to protect consumers and ensure the safety of FDA-regulated products. 

Response also includes the execution of agency emergency plans and procedures and actions to 

support and mitigation of short-term recovery. 

Response activities may include applying intelligence and other information to lessen the effects or 

consequences of an incident; investigations into nature and source of the threat; ongoing public 

health and product surveillance and testing processes; and law enforcement operations aimed at 

preempting, interdicting, or disrupting illegal activity; and apprehending actual perpetrators and 

bringing them to justice. 

Secretary Secretary of the U.S. Department of Health and Human Services (HHS). 

Shelf Life Extension 

Program (SLEP) 

DoD, the CDC, and VA maintain significant reserves of critical medical supplies. CDC maintains its 

reserves in the SNS. These supplies include drug products that have expiration dates. Constantly 

replacing drug products as they reach their expiration dates can be quite costly. To reduce overall 

costs to the Federal government and to the taxpayer, DoD, CDC, and VA work with FDA to 

determine whether a drug product’s useful life can be extended beyond the expiration date. FDA 

tests samples of specified lots of stored drug products submitted by participating Federal entities 

and analyzes the data to determine whether the data are adequate to allow for the use of product 

beyond the expiration date on the product labeling. The stored drug products are to be maintained 

under each product’s labeled storage conditions. 

Appendix K: 

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FDA Emergency Operations Plan 

Shielding The use of material placed between a radiation source and an individual to reduce exposure. 

Sievert (Sv) A unit of dose equivalent. This relates the absorbed dose in human tissue to the effective biological 

damage of the radiation. Not all radiation has the same biological effect, even for the same amount 

of absorbed dose. Dose equivalent is often expressed as millionths of a Sv, or microsievert (μSv). 

One Sv is equivalent to 100 roentgen equivalent man (rem). 

Situation Report

(SitRep) 

A situation report or SitRep is a document that contains confirmed or verified information regarding 

the specific details relating to an incident. It provides explicit details (who, what, when, where, and 

how) of an incident. 

Situational Awareness The ability to identify, process, and comprehend the critical elements of information about an 

incident. 

Stakeholder Any person or entity involved in or affected by an FDA course of action. Stakeholders include 

consumers, FDA employees, vendors, and external government agencies. 

Standard Operating

Procedure (SOP) 

A complete reference document or an operations manual that provides the purpose, authorities, 

duration, and details for the preferred method of performing a single function or a number of 

interrelated functions in a uniform manner. 

Status Report Information specifically related to the availability or assignment of agency resources. Status reports 

are used by Center, ORA Senior Emergency Response Coordinator, and/or District emergency 

coordinators to provide FDA senior officials with real-time information on the status of agency 

resources (i.e., personnel, facilities, equipment, and other materials) impacted by an incident and/or 

those deployed in support of emergency response operations. FDA status reports generally come in 

the form of daily teleconferences, or more frequently depending on situation requirements, 

sponsored by the Planning Section Chief. 

Strategic National

Stockpile (SNS) 

The SNS is a national repository of vaccines, antivirals, antibiotics, chemical antidotes, antitoxins, 

life-support medications, intravenous administration, airway maintenance supplies, and medical/ 

surgical items. The SNS is designed to supplement and resupply State and local public health 

agencies in the event of a national emergency anywhere and at anytime within the United States or 

its territories. 

Surveillance and 

Detection 

The ongoing, systematic collection, analysis, and interpretation of public health data essential to the 

planning, execution, and evaluation of FDA emergency operations closely integrated with the timely 

dissemination of these data to those responsible for prevention and control. 

Technical Specialists Person with special skills that can be used anywhere within the ICS organization. No minimum 

qualifications are prescribed, as Technical Specialists normally perform the same duties during an 

incident that they perform in their everyday jobs. 

Terrorism As defined under the Homeland Security Act of 2002, any activity that involves an act dangerous to 

human life or potentially destructive of CIKR; is a violation of the criminal laws of the United States 

or of any State or other subdivision of the United States in which it occurs; and is intended to 

intimidate or coerce the civilian population or influence or affect the conduct of a government by 

mass destruction, assassination, or kidnapping. 

Threat An indication of possible violence, harm, or danger. 

Unified Command (UC) An ICS application used when more than one agency has incident jurisdiction or when incidents 

cross political jurisdictions. Agencies work together through the designated members of the UC, 

often the senior persons from agencies and/or disciplines participating in the UC, to establish a 

common set of objectives and strategies and a single IAP. 

Vaccine A preparation consisting of antigens of a disease-causing organism that, when introduced into the 

body, stimulates the production of specific antibodies or altered cells. This produces immunity to the 

disease-causing organism. The antigen in the preparation can be whole disease-causing organisms 

(killed or weakened) or parts of these organisms. 

Virus Any of various simple submicroscopic parasites of plants, animals, and bacteria that often cause 

disease and that consist essentially of a core of ribonucleic acid (RNA) or deoxyribonucleic acid 

(DNA) surrounded by a protein coat. Unable to replicate without a host cell, viruses are typically not 

considered living organisms. 

Warning Letter A Warning Letter is a written communication from FDA notifying an individual or firm that the agency 

considers one or more products, practices, processes, or other activities to be in violation of the 

FD&C Act or other relevant statutes, and that failure of the responsible party to take appropriate and 

prompt action to correct and prevent any future repeat of the violation may result in administrative 

and/or regulatory enforcement action without further notice. 

World Health 

Organization (WHO) 

An agency of the United Nations established in 1948 to further international cooperation in 

improving health conditions. 

Appendix K: 

July 2019 App K-10 Glossary of Terms 
FDA Emergency Operations Plan 

Appendix L: 

List of Acronyms and Abbreviations 

This appendix provides the meaning of acronyms and abbreviations used in the FDA EOP. 

Acronym/ Definition 

Abbreviation 

μg/kg Microgram Per Kilogram 

μSv Microsievert 

24/7 24 Hours a Day, 7 Days a Week 

A&F Administration and Finance [HHS\ASPR] 

AABB American Association of Blood Banks 

AAR After Action Report 

ACCP Assistant Commissioner for Compliance Policy 

ACF Administration for Children and Families [HHS] 

ACO Assistant Commissioner for Operations 

ACOMS Advisory Committee Oversight and Management Staff 

ACRA [Office of the] Associate Commissioner for Regulatory Affairs [ORA] 

ADE Adverse Drug Experience 

Advisory Team Advisory Team for Environment, Food, and Health 

AEG Agency Executive Group 

AERS Adverse Event Reporting System 

AHRQ Agency for Healthcare Research and Quality [HHS] 

AIC Agency Incident Coordinator 

ALC Agency Location Code 

Am Americium 

AMS Agricultural Marketing Service [USDA] 

ANDA Abbreviated New Drug Application 

AoA Administration on Aging [HHS] 

ASL [Office of the] Assistant Secretary for Legislation [HHS] 

ASPA [Office of the] Assistant Secretary for Public Affairs [HHS] 

ASPR [Office of the] Assistant Secretary for Preparedness and Response [HHS] 

ATCC American Type Culture Collection 

ATS Automated Targeting System [DHS/CBP] 

ATSDR Agency for Toxic Substances and Disease Registry [HHS] 

BARDA Biomedical Advanced Research and Development Authority 

BASIS Blood Availability and Safety Information System 

BDPR Biological Product Deviation Reporting 

Bioterrorism Act Public Health Security and Bioterrorism Preparedness and Response Act of 2002 

BPDR Biological Product Deviation Reporting 

Bq Becquerel 

Bq/kg Becquerel Per Kilogram 

CAERS CFSAN [Center for Food Safety and Applied Nutrition] Adverse Event Reporting System 

CAN Counterfeit Alert Network 

CBER Center for Biologics Evaluation and Research 

CBP U.S. Customs and Border Protection [DHS] 

CBRN Chemical, Biological, Radiological, and Nuclear 

CBRNE Chemical, Biological, Radiological, Nuclear, and High-Yield Explosive(s) 

CC Collaborating Centre [WHO] 

Appendix L: 

July 2019 App L-1 List of Acronyms and Abbreviations 
FDA Emergency Operations Plan 

CDC Centers for Disease Control and Prevention 

CDER Center for Drug Evaluation and Research 

CDRH Center for Devices and Radiological Health 

CEC Center Emergency Coordinator 

CFR Code of Federal Regulations 

CFSAN Center for Food Safety and Applied Nutrition 

cGMP or CGMP Current Good Manufacturing Practice 

CIKR Critical Infrastructure and Key Resources 

CMO Chief Medical Officer 

CMS Centers for Medicare & Medicaid Services [HHS] 

COBOP Continuity of Business Operations Plan 

CONOPS Concept of Operations 

COOP Continuity of Operations 

CORE Coordinated Outbreak Response and Evaluation 

CPG Comprehensive Preparedness Guide 

CPGM Compliance Program Guidance Manual 

Cs Cesium 

CSR CDER [Center for Drug Evaluation and Research] Situation Room 

CTP Center for Tobacco Products 

CVM Center for Veterinary Medicine 

DACRA Deputy Associate Commissioner for Regulatory Affairs 

DD District Director 

DEOC Director’s Emergency Operations Center 

DERC District Emergency Response Coordinator 

DFAS Defense Financial Accounting Center 

DFDT Division of Food Defense Targeting 

DFI Division of Field Investigations [ORA] 

DFO Division of Financial Operations [HHS/PSC] 

DHS U.S. Department of Homeland Security 

DIB Director, Investigations Branch 

DIL Derived Intervention Level 

DIOP Division of Import Operations and Policy 

DMPTI Division of Medical Products and Tobacco Inspections 

DMPTPO Division of Medical Products and Tobacco Program Operations 

DNA Deoxyribonucleic Acid 

DoD U.S. Department of Defense 

DOE U.S. Department of Energy 

DOI U.S. Department of the Interior 

DOJ U.S. Department of Justice 

DOL U.S. Department of Labor 

DOS U.S. Department of State 

DUNS Data Universal Numbering System 

EIN Employer Identification Number 

eLEXNET Electronic Laboratory Exchange Network 

EMEA European Medicines Agency 

EMG Emergency Management Group 

EOC Emergency Operations Center 

EON-IMS Emergency Operations Network – Incident Management System 

EOP Emergency Operations Plan 

EPA U.S. Environmental Protection Agency 

Appendix L: 

July 2019 App L-2 List of Acronyms and Abbreviations 
FDA Emergency Operations Plan 

EPEES Emergency Planning, Exercises, and Evaluation Staff 

Epi-X Epidemic Information Exchange 

ERCG Emergency Response Coordination Group 

ERIC Employee Resource and Information Center 

ERL Essential Regulatory Laboratory [WHO] 

ERP Emergency Response Plan 

ESEMS Employee Safety and Environmental Management Staff [OO] 

ESF Emergency Support Function 

EUA Emergency Use Authorization 

FACTS Field Accomplishments and Compliance Tracking System 

FATA Federal Anti-Tampering Act 

FBI Federal Bureau of Investigation 

FCC Forensic Chemistry Center 

FD&C Act Federal Food, Drug, and Cosmetic Act [of 1938] 

FDA U.S. Food and Drug Administration 

FDRC Federal Disaster Recovery Coordinator 

FEMA Federal Emergency Management Agency 

FERN Food Emergency Response Network 

FOH Federal Occupational Health 

FOIA Freedom of Information Act 

FoodNet Foodborne Diseases Active Surveillance Network 

FRMAC Federal Radiological Monitoring and Assessment Center 

FRPCC Federal Radiological Preparedness Coordinating Committee 

FSIS Food Safety and Inspection Service [USDA] 

FSMA Food Safety Modernization Act [of 2011] [FDA] 

FTC Federal Trade Commission 

FVM Foods and Veterinary Medicine 

GCC Government Coordination Council 

GCP Good Clinical Practice 

GETS Government Emergency Telecommunications Service 

GIS Geographic Information System 

GISN Global Influenza Surveillance Network [WHO] 

GISRS Global Influenza Surveillance and Response System [WHO] 

GMP Good Manufacturing Practice 

GSA U.S. General Services Administration 

HAN Health Alert Network 

HazMat Hazardous Material(s) 

HHS U.S. Department of Health and Human Services 

HR Human Resources 

HRSA Health Resources and Services Administration [HHS] 

HSC Homeland Security Council 

HSIN Homeland Security Information Network 

HSP Human Subject Protection 

HSPD Homeland Security Presidential Directive 

HUS Hemolytic Uremic Syndrome 

I Iodine 

IAG Interagency Agreement 

IAP Incident Action Plan 

IC Incident Commander 

ICLN Integrated Consortium of Laboratory Networks 

Appendix L: 

July 2019 App L-3 List of Acronyms and Abbreviations 
FDA Emergency Operations Plan 

ICP Incident Coordination Plan 

Incident Command Post 

ICS Incident Command System 

IDE Investigational Device Exemption 

IFMIS Integrated Financial Management Information System 

IHR International Health Regulations [WHO] 

IHS Indian Health Service [HHS] 

IMAAC Interagency Modeling and Atmospheric Center 

IMG Incident Management Group 

IMPAC International Merchant Purchase Authorization Card 

IMS Incident Management System 

IMT Incident Management Team 

IND Improvised Nuclear Device 

Investigational New Drug 

IPAC Intra-Governmental Payment and Collection 

IRB Institutional Review Board 

IRCT Incident Response Coordination Team 

ISDN Integrated System Digital Network 

ISP Internet Service Provider 

IT Information Technology 

IVD In-Vitro Diagnostics 

J/kg Joule Per Kilogram 

JFO Joint Field Office 

JIC Joint Information Center 

JIS Joint Information System 

JOC Joint Operations Center 

LAN Local Area Network 

LDO Late Duty Officer 

LDRM Local Disaster Recovery Manager 

LNO Liaison Officer 

LRN Laboratory Response Network 

MA Mission Assignment 

MAC Multiagency Coordination 

MAC-FIO Multiagency Coordination Group for Foodborne Illness Outbreaks 

MAUDE Manufacturer and User Facility Device Experience [System] 

MCMi Medical Countermeasures Initiative 

MedSun Medical Product Surveillance Network 

MFRPS Manufactured Food Regulatory Program Standards 

MOU Memorandum of Understanding 

mSv Millisievert 

NARAC National Atmospheric Release Advisory Center 

NASA National Aeronautics and Space Administration 

NBIC National Biosurveillance Integration Center [DHS] 

NBIS National Biosurveillance Integration System 

NCP National Oil and Hazardous Substances Pollution Contingency Plan 

NCS National Communications System 

NCTC National Counterterrorism Center 

NCTR National Center for Toxicological Research 

NDA New Drug Application 

NDMS National Disaster Medical System 

Appendix L: 

July 2019 App L-4 List of Acronyms and Abbreviations 
FDA Emergency Operations Plan 

NDRF National Disaster Recovery Framework 

NGO Nongovernmental Organization 

NICCL National Incident Communications Conference Line 

NIH National Institutes of Health [HHS] 

NIMS National Incident Management System 

NIPP National Infrastructure Protection Plan 

NJTTF National Joint Terrorism Task Force [FBI] 

NNSA National Nuclear Security Agency [DOE] 

NOAA National Oceanic and Atmospheric Administration 

NOC National Operations Center [DHS] 

NPG National Preparedness Goal 

NRC U.S. Nuclear Regulatory Commission 

NRCC National Response Coordination Center 

NRF National Response Framework 

NRF-CIA National Response Framework Catastrophic Incident Annex 

NRF-CIS National Response Framework Catastrophic Incident Supplement 

NRIA Nuclear/Radiological Incident Annex [NRF] 

NRP National Response Plan 

NSIS National Strategy for Information Sharing 

NSPD National Security Presidential Directive 

NSSE National Special Security Event 

NTAS National Terrorism Advisory System 

NVPO National Vaccine Program Office 

OAGS Office of Acquisitions and Grants Services 

OB Office of Budget 

OBS Office of Business Services 

OC Office of the Commissioner 

OCC Office of the Chief Counsel 

OCET Office of Counterterrorism and Emerging Threats 

OCHA Office of Health and Constituent Affairs [OEA] 

OCI Office of Criminal Investigations 

OEM Office of Emergency Management (FDA) 

OCoS Office of the Chief of Staff 

OCP Office of Combination Products 

OCPM Office of Communication and Project Management 

OCS Office of the Chief Scientist 

OEA Office of External Affairs 

OEO Office of Emergency Operations 

OES Office of the Executive Secretariat 

OFBA Office of Finance, Budget, and Acquisition 

OFEMS Office of Facilities Engineering and Mission Support Services 

OHAFO Office of Human and Animal Foods Operations 

OFM Office of Financial Management 

OFO Office of Financial Operations 

OFVM Office of Foods and Veterinary Medicine 

OGC Office of the General Counsel [HHS] 

OGCP Office of Good Clinical Practice 

OGROP Office of Global Regulatory Operations and Policy 

OHR Office of Human Resources 

OIEO Office of Enforcement and Import Operations 

Appendix L: 

July 2019 App L-5 List of Acronyms and Abbreviations 
FDA Emergency Operations Plan 

OIMT Office of Information Management and Technology 

OIP Office of International Programs 

OL Office of Legislation 

OM Office of Management 

OMA Office of Media Affairs 

OMB Office of Management and Budget 

OMPT Office of Medical Products and Tobacco 

OMPTO Office of Medical Products and Tobacco Operations 

OO Office of Operations 

OPOP Office of Partnerships and Operational Policy 

OPDIV Operating Division 

OPM Office of Personnel Management 

OPP Office of Policy and Planning 

OSPOP Office of Strategic Planning and Operational Policy 

OPT Office of Pediatric Therapeutics 

ORA Office of Regulatory Affairs 

OM Office of Management 

ORS Office of Regulatory Science 

OSHA Occupational Safety and Health Administration 

OSMP Office of Special Medical Programs 

OSO Office of Security Operations 

OSS Office of Shared Services 

OWA Outlook Web Access 

PAC Program Account Code 

PAG Protective Action Guide 

PAR Protective Action Recommendation 

PC Personal Computer 

P-card Purchase Card 

pCi Picocuries 

pCi/kg Picocuries Per Kilogram 

PCR Polymerase Chain Reaction 

PETNet Pet Event Tracking Network 

PHEMCE Public Health Emergency Medical Countermeasures Enterprise 

PHSA Public Health Service Act 

PICCL Private Sector Incident Communications Conference Line 

PIN Personal Identification Number 

PIO Public Information Officer 

POC Point of Contact 

POCS Program Operations and Coordination Staff 

PPD Presidential Policy Directive 

PPE Personal Protective Equipment 

PREP Act Public Readiness and Emergency Preparedness Act [of 2005] 

PSC Program Support Center [HHS] 

PSMA Pre-Scripted Mission Assignment 

Pu Plutonium 

Q&A Question and Answer 

R Roentgen 

RDD Radiological Dispersal Device 

REC Regional Emergency Coordinator [HHS] 

REE Research, Education, and Economics [USDA] 

Appendix L: 

July 2019 App L-6 List of Acronyms and Abbreviations 
FDA Emergency Operations Plan 

rem Roentgen Equivalent Man 

RRF Resource Request Form 

RSO Radiation Safety Officer 

SERC Senior Emergency Response Coordinator 

RES Recall Enterprise System 

RFI Request for Information 

RFR Reportable Food Registry 

RHRC Rockville Human Resources Center [HHS] 

RNA Ribonucleic Acid 

RRCC Regional Response Coordination Center [DHS/FEMA] 

RHR Radiological Health Representative 

RRT Rapid Response Team 

RSA Remote Secure Access 

RSF Recovery Support Function 

RSS Really Simple Syndication 

Ru Ruthenium 

SAIC Special Agent in Charge 

SAMHSA Substance Abuse and Mental Health Services Administration [HHS] 

SARS Severe Acute Respiratory Syndrome 

SDRC State Disaster Recovery Coordinator 

SICCL State Incident Communications Conference Line 

SitRep Situation Report 

SLEP Shelf Life Extension Program 

SLG State and Local Guide 

SLTT State, Local, Tribal, and Territorial 

SME Subject Matter Expert 

SMG Staff Manual Guide [FDA] 

SNS Strategic National Stockpile 

SOC Secretary’s Operations Center [HHS] 

SOP Standard Operating Procedure 

Sr Strontium 

SRAS Secure Remote Access System 

SSP Sector-Specific Plan 

Stafford Act Robert T. Stafford Disaster Relief and Emergency Assistance Act 

Sv Sievert 

TCL Target Capabilities List 

TDRC Tribal Disaster Recovery Coordinator 

TLD Thermoluminescent Dosimeter 

U.S.C. United States Code 

UC Unified Command 

UFMS Unified Financial Management System 

USCG U.S. Coast Guard 

USDA U.S. Department of Agriculture 

USG U.S. Government 

USPHS U.S. Public Health Service 

USPS U.S. Postal Service 

UTL Universal Task List 

VA U.S. Department of Veterans Affairs 

VAERS Vaccine Adverse Event Reporting System 

VET-LRN Veterinary Laboratory Response Network 

Appendix L: 

July 2019 App L-7 List of Acronyms and Abbreviations 
FDA Emergency Operations Plan 

VoIP Voice over Internet Protocol 

WAN Wide Area Network 

WEAC Winchester Engineering and Analytical Center 

WHO World Health Organization 

WMD Weapon(s) of Mass Destruction 

WPS Wireless Priority Service 

wt Wild-Type 

Appendix L: 

July 2019 App L-8 List of Acronyms and Abbreviations 
 

FOOD & DRUG 

ADMINISTRATION 

U.S. DEPARTMENT OF HEALTH AND HUMAN SERVICES 

U.S. Food and Drug Administration 

Nuclear/Radiological Annex to the 

FDA Emergency Operations Plan 

Version 3.0 

July 2019 

OFFICE OF EMERGENCY MANAGEMENT 
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RECORD OF CHANGES 

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# Section Change Description Change Made By Date 

NOTE: See individual annexes for additional record of changes. 

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FDA Emergency Operations Plan 

NUCLEAR/RADIOLOGICAL ANNEX 

TABLE OF CONTENTS 

A. Introduction............................................................................................ Nuc/Rad Annex-1 

A.1 Mission ..............................................................................................................Nuc/Rad Annex-1 

A.2 Purpose .............................................................................................................Nuc/Rad Annex-1 

A.3 Scope and Applicability .....................................................................................Nuc/Rad Annex-2 

A.4 Planning Assumptions.......................................................................................Nuc/Rad Annex-2 

A.5 Activation...........................................................................................................Nuc/Rad Annex-2 

A.6 Supersedence ...................................................................................................Nuc/Rad Annex-3 

B. Concept of Operations .......................................................................... Nuc/Rad Annex-5 

B.1 Emergency Authorities ......................................................................................Nuc/Rad Annex-5 

B.2 Emergency Operations Phases ........................................................................Nuc/Rad Annex-5 

B.2.1 Prevention, Protection, and Mitigation .................................................Nuc/Rad Annex-5 

B.2.1.1 Surveillance and Detection ..................................................Nuc/Rad Annex-6 

B.2.1.1.1 Winchester Engineering and Analytical Center .Nuc/Rad Annex-6 

B.2.2 Response .............................................................................................Nuc/Rad Annex-6 

B.2.2.1 Gain and Maintain Situational Awareness ...........................Nuc/Rad Annex-6 

B.2.2.1.1 Alert and Notification..........................................Nuc/Rad Annex-6 

B.2.2.1.2 Assessment and Monitoring...............................Nuc/Rad Annex-6 

B.2.2.2 Medical Countermeasures...................................................Nuc/Rad Annex-6 

B.2.2.3 Activation and Deployment of Resources and Capabilities .Nuc/Rad Annex-7 

B.2.2.4 Coordination of Response Actions ......................................Nuc/Rad Annex-7 

B.2.2.4.1 Exposure Determination Information .................Nuc/Rad Annex-7 

B.2.3 Recovery ..............................................................................................Nuc/Rad Annex-8 

C. Organization and Assignment of Responsibilities.............................. Nuc/Rad Annex-9 

C.1 Office of the Commissioner...............................................................................Nuc/Rad Annex-9 

C.1.1 Office of Operations .............................................................................Nuc/Rad Annex-9 

C.1.1.1 Office of Security and Emergency Management .................Nuc/Rad Annex-9 

C.1.1.1.1 Office of Emergency Management ....................Nuc/Rad Annex-9 

C.1.2 Office of Laboratory Science and Safety ...........................................Nuc/Rad Annex-10 

C.1.2.1 Employee Safety and Environmental Management Staff ..Nuc/Rad Annex-10 

C.1.3 Office of Chief Scientist......................................................................Nuc/Rad Annex-10 

C.1.3.1 Office of Counterterrorism and Emerging Threats.............Nuc/Rad Annex-10 

C.2 Office of Foods and Veterinary Medicine........................................................Nuc/Rad Annex-10 

C.2.1 Center for Food Safety and Applied Nutrition ....................................Nuc/Rad Annex-10 

C.3 Office of Global Regulatory Operations and Policy.........................................Nuc/Rad Annex-11 

C.3.1 Office of Regulatory Affairs ................................................................Nuc/Rad Annex-11 

C.3.1.1 Radiological Health Representatives.................................Nuc/Rad Annex-11 

July 2019 Nuc/Rad Annex–iii Nuclear/Radiological Annex 
 

 

 

 

FDA Emergency Operations Plan 

D. Direction, Control, and Coordination ................................................. Nuc/Rad Annex-13 

D.1 Field Incident Command .................................................................................Nuc/Rad Annex-13 

D.2 Headquarters Incident Coordination ...............................................................Nuc/Rad Annex-13 

D.2.1 Command Staff ..................................................................................Nuc/Rad Annex-14 

D.2.1.1 Radiological-Specific Liaisons ...........................................Nuc/Rad Annex-14 

D.2.2 General Staff ......................................................................................Nuc/Rad Annex-14 

D.2.2.1 Operations Section ............................................................Nuc/Rad Annex-14 

D.2.2.1.1 Drug Group ......................................................Nuc/Rad Annex-14 

D.2.2.1.2 Biologics Group................................................Nuc/Rad Annex-15 

D.2.2.1.3 Medical Device Group......................................Nuc/Rad Annex-15 

D.2.2.1.4 Food/Feed Safety Group .................................Nuc/Rad Annex-16 

D.2.2.2 Planning Section ................................................................Nuc/Rad Annex-17 

D.2.2.2.1 Radiological Emergency Response Unit .........Nuc/Rad Annex-17 

D.2.2.2.2 Technical Specialists .......................................Nuc/Rad Annex-17 

D.2.2.2.3 Employee Health Specialist .............................Nuc/Rad Annex-17 

E. Communications and Information Management................................ Nuc/Rad Annex-19 

E.1 Emergency Alerts............................................................................................Nuc/Rad Annex-19 

E.2 External Information Sharing...........................................................................Nuc/Rad Annex-20 

E.2.1 Information Sharing Process..............................................................Nuc/Rad Annex-20 

F. Authorities and References ................................................................ Nuc/Rad Annex-23 

F.1 Code of Federal Regulations ..........................................................................Nuc/Rad Annex-23 

F.2 Federal Plans and Guidance...........................................................................Nuc/Rad Annex-23 

F.3 FDA Supporting Documentation .....................................................................Nuc/Rad Annex-24 

F.3.1 WEAC Radiation Safety Manual ........................................................Nuc/Rad Annex-24 

F.3.2 CFSAN Radiological Emergency Response Plan .............................Nuc/Rad Annex-24 

F.3.3 FDA Food Protective Guidance .........................................................Nuc/Rad Annex-24 

Appendix A: Winchester Engineering Analytical Center.......................... Nuc/Rad Annex-25 

Appendix B: Activation/Notification of the Advisory Team for

Nuclear/Radiological Emergencies .................................................... Nuc/Rad Annex-27 

Appendix C: Protective Actions................................................................. Nuc/Rad Annex-31 

Appendix D: Memorandum of Understanding .......................................... Nuc/Rad Annex-33 

Appendix E: FDA Responsibilities During Radiological Incidents.......... Nuc/Rad Annex-35 

July 2019 Nuc/Rad Annex–iv Nuclear/Radiological Annex 
 

FDA Emergency Operations Plan 

LIST OF FIGURES 

Figure D-1. Notional FDA IMG for a Nuclear/Radiological Event .....................................Nuc/Rad Annex-13 

Figure D-2. Notional Operations Section Organizational Elements..................................Nuc/Rad Annex-14 

Figure E-1. Emergency Alert Reporting Pathways ...........................................................Nuc/Rad Annex-19 

Figure E-2. Notional FDA Food and Agricultural Nuclear/Radiological Incident 

Communications Links....................................................................................Nuc/Rad Annex-20 

LIST OF TABLES 

Table E-1. FDA Communication Links by IMG Position and Center/Office......................Nuc/Rad Annex-21 

Table C-1. Principal Radionuclides and Corresponding DILs...........................................Nuc/Rad Annex-31 

Table E-1. FDA Responsibilities for Radiological Incidents..............................................Nuc/Rad Annex-35 

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July 2019 Nuc/Rad Annex–vi Nuclear/Radiological Annex 
 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

A. INTRODUCTION 

Nuclear/Radiological emergencies, whether accidental or intentional, have the potential to cause adverse 

health and safety effects for large segments of the human and animal populations. In order to mitigate the 

consequences of such incidents, the U.S. Food and Drug Administration (FDA) must possess the 

resources and capabilities necessary to prevent, prepare for, protect against, and rapidly and effectively 

respond to and recover from radiological incidents. A planned and coordinated approach to emergency 

operations by FDA organizational components in support of Federal, State, local, tribal, and territorial 

(SLTT) governments; international authorities; and responders in the field can save lives and ensure 

critical public health and medical needs are met. 

This Nuclear/Radiological Annex to the FDA Emergency Operations Plan (EOP) establishes a framework 

for FDA’s management of radiological incidents. It provides the measures, operating structures, roles and 

responsibilities, and mechanisms for direction and coordination of FDA resources before, during, and 

after radiological emergencies that pose a risk to human or animal health. This Nuclear/Radiological 

Annex is compatible with the scalable, flexible, and adaptable Federal government emergency 

coordinating structures of the National Response Framework (NRF) and is consistent with the concepts, 

principles, and terminology of the National Incident Management System (NIMS)60 and the FDA EOP.61 

This Nuclear/Radiological Annex is to be used, in conjunction with the FDA EOP, to assist FDA in 

conducting response operations for any radiological emergency. 

A.1 MISSION 

During a nuclear/radiological emergency, FDA must continue to meet its mission. In addition to the 

activities listed in the FDA EOP, FDA activities may expand to include performance of specific, incidentrelated functions such as: 

• Activities conducted under the NRF’s Nuclear/Radiological Incident Annex (NRIA) and Food 

and Agriculture Annex, Emergency Support Functions (ESFs), and the NRF Catastrophic 

Incident Supplement. 

• Assistance and recommendations to coordinating agencies and State, tribal, and local 

governments through the Advisory Team for the Environment, Food, and Health (Advisory 

Team).

62 

A.2 PURPOSE 

This Nuclear/Radiological Annex is intended to be used in conjunction with the FDA EOP and is not 

intended to be a “standalone” plan. The purpose of the Nuclear/Radiological Annex is to detail FDA 

responsibilities and operations specific to a radiological emergency and provide radiological-specific 

reference material to provide a coordinated and consistent agency approach to preparing for, preventing, 

protecting against, responding to, and recovering from radiological incidents involving or impacting 

FDA-regulated products. To accomplish this, the Nuclear/Radiological Annex: 

• Is compatible with and expands on the FDA EOP, the overarching FDA-wide operational plan 

that addresses the full spectrum of natural and technological hazards and terrorist threats and the 

“umbrella plan” under which the Nuclear/Radiological Annex fits. 

60 For more information on the NRF and NIMS, refer to the “Authorities and References” section of this annex and FDA EOP 

Appendix A and Appendix B or visit www.fema.gov/emergency/nrf/. 61 For more information on how FDA responds to emergencies, refer to the FDA EOP. 

62 For more information on the Advisory Team, refer to Appendix B of this Nuclear/Radiological Annex. 

July 2019 Nuc/Rad Annex–1 Nuclear/Radiological Annex 
 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Defines the FDA radiological emergency operations structure and assigns essential tasks to the 

FDA organizational components involved in prevention, protection, response, and recovery 

efforts. 

A.3 SCOPE AND APPLICABILITY 

The Nuclear/Radiological Annex covers the requirements in anticipation of or in response to a radiological or nuclear incident that affects or involves an FDA-regulated product. This annex applies to both 

inadvertent and deliberate nuclear/radiological events. According to the NRIA to the NRF, inadvertent 

releases include: incidents at nuclear facilities (commercial or weapons production facilities), lost 

radioactive material sources, transportation accidents involving nuclear/radioactive material, domestic 

nuclear weapons accidents, and foreign accidents involving nuclear or radioactive material that impact the 

United States or its territories, possessions, or territorial waters, and assistance to other nations and U.S. 

citizens abroad as requested. In addition, this annex includes, but is not limited to, response to the effects 

of deliberate attacks perpetrated with radiological dispersal devices (RDDs), nuclear weapons, or 

improvised nuclear devices (INDs). Refer to FDA EOP Appendix K, “Glossary of Terms” for RDD and 

IND definitions. 

A.4 PLANNING ASSUMPTIONS 

The Nuclear/Radiological Annex is based on the same planning assumptions as referenced in the FDA 

EOP and, in addition: 

• The U.S. Department of Homeland Security (DHS) will review the situation and determine 

whether to assume Federal leadership for the overall response in accordance with the NRF. 

• To ensure the capability to implement the Nuclear/Radiological Annex, each FDA headquarters 

and field organizational component tasked with radiological emergency roles and responsibilities, 

as identified in this Nuclear/Radiological Annex or the FDA EOP, may develop and maintain 

individual emergency plans and procedures that identify the critical and time-sensitive missions, 

functions, assignments, and processes to be performed by their organizational component during 

a radiological incident. These documents shall be consistent with the FDA EOP and this annex 

and available to all Center/Office personnel. 

A.5 ACTIVATION 

The ESF #8 – Public Health and Medical Services response to a radiological event will be directed by 

U.S. Department of Health and Human Services (HHS) Office of the Secretary, in coordination with 

DHS, which is responsible for managing the U.S. government response. FDA is a subordinate Operating 

Division (OPDIV) of HHS and will align its response activities with those of HHS. FDA will use the full 

spectrum of its resources to accomplish assigned roles, responsibilities, functions, goals, and missions. 

This annex will be consulted and implemented together with the FDA EOP when there is a radiological 

incident. Examples of events that could trigger activation of this annex include, but are not limited to, any 

radiological incident, including nuclear power plant accidents, manmade accidents, RDDs, or INDs. Such 

events may impact FDA-regulated products/industries, lead to a response from FDA via the Advisory 

Team, or result in the request for the issuance/use of Emergency Use Authorizations (EUAs) or 

Emergency Investigational New Drug applications (EINDs) for a medical countermeasure. 

District Directors (DDs), Program Directors (PDs) and Center/Office Directors may activate their 

individual organizational component’s EOP without activation of the FDA Nuclear/ Radiological Annex. 

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A.6 SUPERSEDENCE 

This Nuclear/Radiological Annex to the FDA EOP (2018) supersedes the FDA EOP Nuclear/ 

Radiological Annex (2014). 

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B. CONCEPT OF OPERATIONS 

The following concept of operations (CONOPS) describes the principal authorities’ governing agency 

emergency functions and the phases within which FDA conducts radiological incident-related operations. 

B.1 EMERGENCY AUTHORITIES 

FDA’s emergency authorities are prescribed by several statutes and conducted in accordance with 

applicable regulations as described in FDA EOP Section F, “Authorities and References.” These include 

the Pandemic and All-Hazards Preparedness Reauthorization Act (Public Law 113-5) and Title 21, “Food 

and Drugs,” of the Code of Federal Regulations (CFR).63 In addition to the authorities listed in the FDA 

EOP, the emergency authority relevant to a radiological/nuclear incident is: 

• Title 44, “Emergency Management and Assistance,” CFR Part 351 “Radiological Emergency 

Planning and Preparedness,” authorizes FDA to assist State and local government officials in 

preparing for radiological emergencies and in the development of their radiological plans. 

B.2 EMERGENCY OPERATIONS PHASES 

The following phases comprise the entire spectrum of FDA emergency operations: Prevention, 

Protection, Mitigation, Response, and Recovery. During a nuclear/radiological event FDA employees 

are expected to follow the activities described in the FDA EOP, Section B.2, “Emergency Operations 

Phases.” Although emergency operations may involve each of these phases over the course of a 

radiological incident, the nature and severity of an event and the FDA organizational component(s) 

responding will determine the specific order, actions, and responsible parties required for each.64 The 

following sections describe additional resources available during FDA’s emergency operations for 

prevention and protection specific to a radiological or nuclear event. 

B.2.1 Prevention, Protection, and Mitigation 

FDA participates in a number of planning subcommittees under the Federal Radiological Preparedness 

Coordinating Committee (FRPCC), which coordinates all Federal responsibilities for assisting State and 

local governments in their emergency planning and preparedness for peacetime radiological emergencies, 

developing protective action recommendations (PARs) for human and animal feed, providing guidance on 

radioprotective substances and prophylactic drugs to reduce radiation dose, and providing medical and 

mental health support through ESF #8. The Federal Emergency Management Agency (FEMA) is the chair 

of the FRPCC, and FDA serves as the chair of the FRPCC Subcommittee on Food, Health, and 

Environment. 

The FRPCC performs the following functions: 

• Assisting the FEMA Director in providing policy direction with respect to Federal assistance to 

State and local governments in their radiological emergency planning and preparedness activities. 

• Establishing subcommittees to aid in carrying out its functions; current subcommittees include 

Training, Offsite Instrumentation, Transportation, and Federal Response. 

• Assisting FEMA in resolving issues relating to granting final approval (under 44 CFR Part 350) 

of a State radiological emergency preparedness plan. 

63 A more detailed summary of the laws, regulations, directives, and policy guiding FDA emergency operations is provided in 

Section F, “Authorities and References,” of this annex and the FDA EOP. 

64 Refer to Section C, “Organization and Assignment of Responsibilities,” of this annex for an overview of FDA organizational 

component roles and responsibilities during a radiological incident. 

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• Coordinating research and study efforts of its member agencies relative to State and local government radiological emergency preparedness to ensure minimum duplication and maximum 

benefits to State and local governments. 

The FRPCC works directly with HHS, the Centers for Disease Control and Prevention (CDC), and FDA 

seeking guidance for State and local governments on the use of radioprotective substances and 

prophylactic use of drugs (e.g., potassium iodide, Radiogardase®) to reduce the radiation dose to specific 

organs, including dosage and projected radiation exposures. 

B.2.1.1 Surveillance and Detection 

B.2.1.1.1 Winchester Engineering and Analytical Center 

Winchester Engineering and Analytical Center (WEAC) is an FDA/Office of Regulatory Affairs (ORA) 

laboratory that is equipped and staffed to handle the analysis of radioactive materials. It is the Federal 

laboratory having the greatest capability in the United States to analyze food samples for radioactive 

contamination. As such, WEAC serves as the lead for the radiological component of the Food Emergency 

Response Network (FERN).65 The FDA FERN program is administered by the ORA Division of 

Regulatory Science. FDA conducts import and domestic food surveillance programs for radioactive 

contamination (e.g., import samples, onsite authorities or SLTT investigator-provided samples, market 

basket survey samples). 

B.2.2 Response 

B.2.2.1 Gain and Maintain Situational Awareness 

B.2.2.1.1 Alert and Notification 

FDA may be alerted to a threat, hazard, or other significant event through a variety of means, including 

the surveillance systems discussed in the FDA EOP Table B-1 (Surveillance and Detection Systems 

Utilized by FDA) and/or directly from external Federal agencies (e.g., the HHS Secretary’s Operations 

Center [SOC], U.S. Environmental Protection Agency [EPA], DHS, U.S. Department of Energy [DOE], 

U.S. Nuclear Regulatory Commission [NRC], and/or the Federal Bureau of Investigation [FBI]); SLTT 

and international public health agencies; industry; consumers; news media; and internal FDA 

organizational components. 

If FDA becomes aware of a radiological incident from a non-DHS agency, it should notify the coordinating agency and the DHS National Operations Center (NOC) at 202-282-8101 and comply with other 

appropriate statutory requirements for notification. If FDA becomes aware of an overt threat or act 

involving nuclear/radiological material/device or indications the event is not inadvertent or otherwise 

accidental, the U.S. Department of Justice (DOJ) should be notified through the FBI. 

B.2.2.1.2 Assessment and Monitoring 

During a radiological response, WEAC is the lead FDA laboratory for the analysis of radionuclides in 

foods, drugs, and medical devices for radiological emergency consequence management. 

B.2.2.2 Medical Countermeasures 

Information on available medical countermeasures and evaluation of EUA requests can be provided by 

the Office of Counterterrorism and Emerging Threats (OCET) or Center emergency coordinators, as 

needed, through their contact and work with Center subject matter experts (SMEs). 

65 For more information on the radiological FERN and WEAC, refer to Appendix A of this Nuclear/Radiological Annex. 

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FDA Emergency Operations Plan 

B.2.2.3 Activation and Deployment of Resources and Capabilities 

FDA is a member and currently the chair of the Advisory Team, a Federal interagency group of radiation 

SMEs who provide coordinated, science-based advice and recommendations to the coordinating agency66 

and/or the State, tribal, and local government on protective measures that may be taken following a 

radiological incident. The Advisory Team comprises representatives from the EPA, U.S. Department of 

Agriculture (USDA), and HHS, including the CDC and FDA. Other departments or agencies may be 

asked to participate as needed. The Advisory Team works closely with the Federal Radiological 

Monitoring and Assessment Center (FRMAC), an interagency group led by the DOE National Nuclear 

Security Agency (NNSA).67 

If Federal assistance is requested for a radiological/nuclear incident and Advisory Team participation is 

needed, FDA will send an ORA Radiological Health Representative(s) (RHR) to the Unified Command 

(UC) as part of the onsite Advisory Team. (See Appendix B for activation/notification procedures of the 

Advisory Team.) Other Advisory Team members will be available at headquarters or in other locations to 

provide reachback and coverage when the remote Advisory Team member(s) is in transit or otherwise 

unavailable. 

B.2.2.4 Coordination of Response Actions 

During the response phase, FDA’s role is to provide information about countermeasures and facilitate 

their availability as stated in the FDA EOP, Section B.2.2.3.5, “Medical Countermeasures: EUA and 

Expanded Access.” Through the Advisory Team, FDA provides guidance to State and local agencies on 

interdicting suspected food from the food supply, as well as support for making protective action 

decisions. 

To assist FDA’s Emergency Operations Center (EOC) in responding to a radiological emergency, staff 

personnel in the medical product Center maintain the status of medical countermeasure product availability and relevant manufacturing information. Each Center has detailed policies and procedures in place 

to make critical medical countermeasures available, and the FDA EOC coordinates the sharing of this 

information during an emergency. 

B.2.2.4.1 Exposure Determination Information 

Based on data provided by FRMAC and other field organizations, the coordinating agency will provide 

the following information, which may be helpful in guiding decisions about medical countermeasures or 

other protective actions: 

• Identity of the radioisotopes. 

• Quality of radiation (alpha, beta, gamma, and neutrons). 

• Nature of the incident (e.g., nuclear power plant release, IND or RDD). 

• Casualty information, including estimates of combined radiation and non-radiation injuries, such 

as blast and burn. 

66 Coordinating agencies are those Federal agencies that own, have custody of, authorize, regulate, or are otherwise assigned 

responsibilities for the nuclear/radioactive material, facility, or activity involved in the incident. A listing of coordinating 

agencies can be found in Table 1 of the NRF NRIA. 

www.fema.gov/pdf/emergency/nrf/nrf_nuclearradiologicalincidentannex.pdf 

67 For additional information, see the NRF NIRA. 

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• Plume direction and characteristics (estimated population exposure), including Shape files, which 

can be used to generate geographic information system (GIS) maps for situational awareness and 

planning. 

• Amount of external radiation exposure. 

This information may assist coordinating agencies in predicting which people exposed to radiation may 

develop: 

• Hematopoietic syndrome (projected needs for cytokines and antimicrobials). 

• Gastrointestinal syndrome (possible use of investigational cytokines). 

• Cardiac/central nervous system syndrome (following extremely high doses, with death likely). 

B.2.3 Recovery 

During the recovery phase, some FDA objectives that would support Federal or SLTT agencies are: 

• To manage a potentially large number of samples of FDA-regulated products associated with 

nuclear/radiological releases, including long-term (months to years) sampling, product 

destructions, and product reconditioning, as applicable. 

• To provide technical support to the Advisory Team in establishing “clean-up” levels in following 

a radiological incident. 

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FDA Emergency Operations Plan 

C. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES 

This section identifies the roles and responsibilities specific to a radiological incident of FDA headquarters and field organizational components in preventing and protecting against, responding to, and 

recovering from a radiological incident. FDA staffs work closely with one another and with governmental 

and industry partners to ensure the safety, efficacy, and security of FDA-regulated products that mitigate 

the public health effects of an emergency or disaster in the United States or worldwide. This is done by 

using novel and expeditious approaches to product regulation in order to optimize the availability and use 

of FDA-regulated products in all populations. 

The following is a brief description of the radiological emergency functions performed by responsible 

organizational components.68 Refer to individual Center/Office emergency plans and procedural 

documentation, as applicable, for more detailed information on radiological emergency activities. For 

additional information on general FDA Center/Office emergency roles and responsibilities, refer to the 

FDA EOP, Section C, “Organization and Assignment of Responsibilities.” 

FDA product Centers are responsible for the regulation of a defined set of products. Their professional 

staff includes both clinical and scientific experts. This expertise (e.g., analytical, laboratory, sampling 

procedures, subject matter expertise, and industry knowledge) is available for critical consultation in the 

event of a nuclear/radiological incident. In addition, the Center for Food Safety and Applied Nutrition 

(CFSAN) has responsibilities that are specific to a radiological incident.69 

C.1 OFFICE OF THE COMMISSIONER 

C.1.1 Office of Operations 

C.1.1.1 Office of Security and Emergency Management 

C.1.1.1.1. Office of Emergency Management 

In addition to the activities specified in the FDA EOP, the Office of Emergency Management (OEM) and 

Office of Emergency Operations (OEO) will communicate with external coordinating agencies and share 

information with internal FDA entities for nuclear/radiological incidents affecting FDA-regulated 

products. Dependent on the type of incident, some of the agencies with which FDA would communicate 

are: the U.S. Department of Defense (DoD), DOE, National Aeronautics and Space Administration 

(NASA), DHS, EPA, and the NRC. For a detailed description of what the NRF provides about the 

response and coordinating responsibilities, see the NRF NRIA at 

www.fema.gov/pdf/emergency/nrf/nrf_nuclearradiologicalincidentannex.pdf. 

68 Those FDA organizational components without defined radiological emergency roles or responsibilities are not described 

within this annex. 

69 Responsibilities of CFSAN are described in Appendix W, “CFSAN Radiological Emergency Response Plan,” of the CFSAN 

Emergency Response Plan, March 2011. 

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FDA Emergency Operations Plan 

The external coordinating agencies will share with OEM/OEO information about response activities of 

interest to FDA. The information to be shared with FDA includes but is not limited to: 

Response Activities Information Responsible Federal Agency 

Laboratory Analysis CDC, EPA, and/or DOE 

Atmospheric Plume Modeling Data Interagency Modeling and Atmospheric Center (IMAAC)/National Atmospheric Release 

Advisory Center (NARAC), DHS, and/or DOE/Lawrence Livermore National Laboratory 

Population Modeling Data HHS (ESF #8) or DHS 

PARs Advisory Team 

Contaminated Animal Management USDA (ESF #3 and ESF #10) 

Source: NRF NRIA Table 4, “Nuclear/Radiological Incident Response Activities.” For a description of the responsible Federal agencies, see 

www.fema.gov/pdf/emergency/nrf/nrf_nuclearradiologicalincidentannex.pdf. 

OEM/OEO will also be responsible for alert and notification of the Advisory Team in response to 

activation or consultation requests from Federal agencies and/or SLTTs. OEM/OEO will support 

Advisory Team operations by providing conference call support and interface with the FDA Incident 

Management Group (IMG), when activated. 

C.1.2 Office of Laboratory Science and Safety 

C.1.2.1. Employee Safety and Environmental Management Staff 

The Employee Safety and Environmental Management (ESEM) Staff serves as the “corporate” ESH 

office for the Office of the Commissioner (OC), while each Center/Office is responsible for implementing 

operational ESH programs and does so with Center/Office ESH Managers. The ESEM Staff perform the 

enterprise functions of serving as principal advisors to FDA in all matters pertaining to safety and 

occupational health management, and is responsible for agency-wide safety policy development and 

overall program management, including recommendations on funding and training programs. The office 

also provides technical assistance to the Centers and field activities and is responsible for evaluating the 

safety and health programs throughout the agency through review and inspection. The ESEM staff 

provides official FDA safety representation to other safety, health and environmental-related regulatory 

agencies as well as Health and Human Services (HHS) and the General Services Administration (GSA). 

Further, ESEM staff provide the operational enterprise functions of occupational medical oversight of the 

agency’s program; coordinating the agency’s Occupant Emergency preparedness, response and fire 

safety, establishing and administering a headquarters-wide Institutional Biosafety Committee (IBC); 

managing a comprehensive radiation safety program for the White Oak Campus including the 

administration of a single broad scope Nuclear Regulatory Commission (NRC) License; coordinating the 

hazardous waste disposal contract for the HQ area Centers; and project management, including risk 

management, to minimize agency liabilities when decommissioning laboratory space. Oversight and 

management of Campus waste water permit, hazardous waste permits and Emergency Planning and 

Community Right to Know Act (EPCRA) reporting. 

C.1.3 Office of Chief Scientist 

C.1.3.1 Office of Counterterrorism and Emerging Threats 

OCET works with FDA’s medical product Centers to ensure the availability of medical countermeasures 

that can improve survival and mitigate and treat injuries from radiological/nuclear events and their 

delayed effects including acute radiation syndrome. These include decorporation or blocking agents to 

reduce internal contamination from exposure to radionuclides and biodosimetry devices that can be used 

in a radiological/nuclear event to assess exposure to radiation and facilitate response activities. 

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C.2. OFFICE OF FOODS AND VETERINARY MEDICINE 

C.2.1 Center for Food Safety and Applied Nutrition 

CFSAN, in conjunction with the agency’s field staff, is responsible for promoting and protecting the 

public’s health by ensuring that the Nation’s food supply is safe, sanitary, wholesome, and honestly 

labeled and that cosmetic products are safe and labeled properly. In addition to the activities described in 

the FDA EOP, CFSAN is responsible for, but not limited to, the following activities during radiological 

emergency: 

• Overseeing the safety of the U.S. food supply following radiological emergencies through its 

Compliance Program and its participation with the Advisory Team, using the FDA food 

protective action guidance as the principal source of doctrine. 

• Through its involvement with FRMAC, participates in the development of assessment methods 

and guidance for food protective measures. 

• Providing scientific, technical, and policy expertise, guidance, and support within FDA and to 

other Federal and State agency components, regulated industry, and the public. 

• Issueing recommendations and guidelines on acceptable levels of radioactive contamination of 

foods, dietary supplements, and cosmetics. 

• Providing advice regarding health risks from radioactive contamination of food, dietary 

supplements, and cosmetics; this includes advice on actions that can be taken by FDA, State and 

local authorities, industry, or consumers to reduce public exposure to contaminated food, dietary 

supplements, and cosmetics. 

• Overseeing the overall response to verify that the necessary food- and cosmetic-related actions 

are taken. 

• Providing advice regarding sampling procedures and testing methodology (screening and 

confirmatory). 

• Providing advice regarding product traceback and traceforward investigations. 

• Developing field programs to meet intermediate to long-range consequence management needs. 

C.3 OFFICE OF GLOBAL REGULATORY OPERATIONS AND POLICY 

C.3.1 Office of Regulatory Affairs 

ORA, led by the Associate Commissioner for Regulatory Affairs (ACRA), protects consumers and 

enhances public health by maximizing compliance of FDA-regulated products and minimizing risk 

associated with those products. ORA is the lead office for all agency field activities. In addition to the 

activities described in FDA EOP, ORA is responsible for providing RHRs and other qualified ORA staff, 

as needed, to be FDA representatives to the field component of the Advisory Team. 

C.3.1.1 Radiological Health Representatives70 

The RHRs represent the agency on committees chaired by FEMA that include representatives from the 

U.S. Public Health Service (USPHS), EPA, USDA, NRC, U.S. Coast Guard (USCG), and others. These 

70 The duties and responsibilities of the RRHRs are defined in Compliance Program Guidance Manual (CPGM) Program 

No. 7386.009, “Emergency Planning and Response Activities.” 

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committees are responsible for evaluating State and local emergency plans for nuclear power plants and 

radiological emergencies. 

In addition to serving as representatives on these committees, the RHRs represent FDA on the onsite 

Advisory Team (Section B.2.2.3) during a radiological incident. Other FDA SMEs may also represent 

FDA on the Advisory Team through deployment or via telephone/email in a reachback status. FDA staff 

is activated for the Advisory Team as per the Advisory Team Activation Standard Operating Procedure 

(SOP) (see Appendix B). When an incident has occurred, RHRs are the agency’s onsite representatives to 

the Advisory Team. If there is a request for PARs for FDA-regulated products, RHRs help develop the 

recommendations, in consultation with other FDA scientific and policy experts. For additional 

information on PARs and Protective Action Guides (PAGs), refer to Appendix C, “Protective Actions.” 

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Management 

Team(s) 

Commissioner 

(or delegated authority) 

Agency Executive 

Group 

- - - - - Agency Incident Coordinator 

Liaison 

Officer 

--

Public Information 

Officer/Joint 

Information Center 

Logistics 

Section 

Employee 

Health 

Advisor 

FDA Emergency Operations Plan 

D. DIRECTION, CONTROL, AND COORDINATION 

This section provides a description of radiological-specific positions and teams and describes their 

primary roles and responsibilities. These individuals are expected to have read and be familiar with the 

NRF NRIA (see www.fema.gov/pdf/emergency/nrf/nrf_nuclearradiologicalincidentannex.pdf). 

FDA organizes emergency response operations in accordance with the concepts, principles, and 

terminology of the Incident Command System (ICS), as defined within NIMS.71 Incident Command and 

subordinate Planning, Operations, Logistics, and Finance/Administration functions lay the foundation for 

the agency’s implementation of ICS during all hazards, at headquarters and field levels, and across 

geographic divides. The inherent design of this system enables rapid, scalable, and flexible agency-wide 

emergency management activities. 

D.1 FIELD INCIDENT COMMAND 

FDA field response will be established as described in FDA EOP, Section B.2.2.3.2, “FDA Field 

Response” and Section D.1, “Field Incident Command.” Depending on the location of the incident and 

extent of potential contamination, an Incident Management Team (IMT) may be established. The IMT 

will coordinate with IMG, Advisory Team, and SLTT agencies to respond to an incident. FDA does not 

have a role in collecting data in restricted areas with high levels of radiological contamination. 

D.2 HEADQUARTERS INCIDENT COORDINATION 

As FDA’s coordination point for emergencies, due to the severity or potential consequences of a nuclear/ 

radiological incident, an IMG will be established to address the public health impact. Figure D-1 depicts 

a notional IMG emergency response coordinating structure for a radiological incident. 

Figure D-1. Notional FDA IMG for a Nuclear/Radiological Event 

71 For more information on the ICS, refer to www.training.fema.gov/EMIWeb/IS/ICSResource/index.htm. 

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Safety Group 

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------

FDA Emergency Operations Plan 

D.2.1 Command Staff 

The FDA Command Staff includes a Public Information Officer (PIO), Liaison Officers (LNOs), and a 

Safety Officer. 

D.2.1.1 Radiological-Specific Liaisons 

When activated, the FDA EOC serves as the agency-wide focal point for radiological emergency 

operations, coordination, and communications for incidents involving regulated products. External 

liaisons from the USDA, NRC, or other agencies may be present at the FDA EOC. FDA may also send 

liaisons to the coordinating agency for the incident, or participate in the response coordination, if an 

Incident Command or UC is established. 

D.2.2 General Staff 

The General Staff is responsible for the functional aspects of the FDA ICS. The General Staff consists of 

Operations, Planning, Logistics, and Finance/Administration Sections composed of designated FDA 

headquarters and field emergency staff. Individual position assignments within these Sections are outlined 

in the FDA EOP. 

D.2.2.1 Operations Section 

The Operations Section is responsible for coordinating all agency field activities in response to a 

radiological/nuclear event involving a regulated product. Figure D-2 depicts FDA’s Operations Section 

during the event. The groups included in the chart below could possibly be established when the number 

of resources exceeds the manageable span of control of the IMG and Operations Section Chief. Groups 

are established to divide the incident into functional areas of operation. Additional levels of supervision 

may also exist below the group level. 

Figure D-2. Notional Operations Section Organizational Elements 

Expansion or contraction of the Operations Section may vary according to numerous considerations and 

operational factors associated with an incident. In some cases, a functional approach may be used. In 

other cases, the organizational structure will be determined by geographical or Center/Office 

jurisdictional boundaries. In still others, a mix of functional and geographical considerations may be 

appropriate. The Agency Incident Coordinator (AIC) will determine the appropriate structural approach 

based on the specific circumstances of the incident at-hand. 

D.2.2.1.1 Drug Group 

The Drug Group addresses drug issues such as adverse event reporting, labeling changes, whether EUAs 

for drugs are appropriate, and what restrictions should be placed on uses authorized under EUAs related 

to a radiological operational response. Some potential teams, led by the Center for Drug Evaluation and 

Research (CDER) staff, that may be needed to manage mitigation and recovery issues include: 

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FDA Emergency Operations Plan 

• Expired Drugs Team 

• Drug Shortage Team 

• Adverse Drug Events Team 

Expired Drugs Team 

The Expired Drugs Team deals with such issues as use of expired drugs and drugs out of specification, 

including those in the Strategic National Stockpile (SNS). This team would have input in discussing 

whether an EUA should/can include private sector stockpiles (e.g., hospital associations, large employers) 

or whether a separate authorization is needed. The Expired Drugs Team would also monitor labeling and 

Shelf Life Extension Program (SLEP) issues related to the event. 

Drug Shortage Team 

The Drug Shortage Team is responsible for reporting on the availability and surge capacity for drugs, 

monitoring commercial inventory, and working with manufacturers of drug products to prepare for 

possible increases in demand. The team would contact intravenous fluid manufacturers and other critical 

care drug manufacturers to prepare for possible increased needs. 

Adverse Drug Events Team 

The Adverse Drug Events Team assists with the monitoring of adverse drug events to identify undesired 

side effects and unexpected adverse effects from a drug product used for treatment. 

D.2.2.1.2 Biologics Group 

The Biologics Group addresses blood and other biologics issues as part of a radiological/nuclear 

operational response. 

D.2.2.1.3 Medical Device Group 

The Medical Device Group would manage issues related to a radiological/nuclear operational response. 

Potential teams, with leaders from Center for Devices and Radiological Health (CDRH) staff members, 

who may be needed to manage mitigation and recovery issues, are: 

• In-Vitro Diagnostics (IVD) Team 

• Personal Protective Equipment (PPE) and Other Devices Team 

• Shortage Team 

In-Vitro Diagnostics Team 

The IVD Team addresses issues related to the following: 

• Triage of EUA requests. 

• Response to inquiries regarding EUA requests from other Federal agencies, and domestic and 

international commercial sources for IVDs claiming to assess radiation exposure. 

• Contact with manufacturers regarding assays and instruments to be used in development of IVDs. 

• Clear or approve tests and instruments that detect and measure in situ radioisotope contamination 

and absorbed radiation dose in exposed individuals. 

• Monitor reagent and system shortages on a short-term basis (daily or weekly) as well as a longterm basis (monthly). 

• Monitor radiation biodosimetry and in situ radioactivity contamination detection device 

functional claims. 

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• Review data and labeling of cleared or approved devices for which a company is proposing new 

claims and changes. 

• Address fraudulent claims by monitoring websites and complaints regarding product claims and 

issue warning letters as appropriate. 

Personal Protective Equipment and Other Devices Team 

The PPE and Other Devices Team oversee or manage the following: 

• Exchange of information with the CDC/SNS, States, and manufacturing sector and real-time 

monitoring of consumption/utilization rates of PPE during emergencies. 

• Respond to State and private sector inquiries about perceived shortages during public health 

emergencies. 

• Anticipate and plan for future surges in demand for devices. 

• Track/trace status of devices released from SNS. 

• Meet with manufacturers about the development of new PPE. 

• Address PPE shortages by working with industry to update current manufacturing capabilities and 

assist with long-term planning by the manufacturing sector to meet demands for potential surges. 

Shortage Team 

The Shortage Team would be created if shortages of IVD, PPE, and other devices are too extensive to be 

managed by the above teams alone. 

D.2.2.1.4 Food/Feed Safety Group 

The Food/Feed Safety Group addresses issues related to the following: 

• Providing scientific, technical, and policy expertise, guidance, and support within FDA and to 

other Federal and State agency components, regulated industry, and the public. 

• Providing advice regarding health risks from radioactive contamination of food and cosmetics 

and advice on actions that can be taken by FDA, State and local authorities, industry, or 

consumers to reduce public exposure to radiation. 

• Evaluating and providing guidance for food- and cosmetic-related response actions. 

• Advice regarding sampling plans and procedures and testing methods (screening and 

confirmatory). 

• Advice regarding product traceback and traceforward investigations. 

• Developing field programs to meet intermediate to long-range consequence management needs. 

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FDA Emergency Operations Plan 

D.2.2.2 Planning Section 

The Planning Section is responsible for collecting, evaluating, and disseminating operational information 

pertaining to the incident. This Section maintains information and intelligence on the current and 

forecasted situation, as well as the status of FDA resources assigned to the incident. Technical Specialists 

may be assigned to the Planning Section or to other IMG Sections as determined by the AIC. 

D.2.2.2.1 Radiological Emergency Response Unit 

The Radiological Emergency Response Unit consists of a cadre of radiological health experts from 

relevant Centers/Offices with a variety of backgrounds, including health physics, medical physics, 

radiology, nuclear medicine, and radiation oncology. The unit provides technical advice to FDA senior 

management and liaisons to external agencies. The Unit Leader is identified by OEM in coordination with 

the FDA representative on the Advisory Team. 

D.2.2.2.2 Technical Specialists 

Technical Specialists such as Science/Medical Specialists and EUA/Product Interface Specialists are 

normally assigned to the Planning Section, but may support any ICS function including the Command 

Staff at the discretion of the AIC.72 

D.2.2.2.3 Employee Health Specialist 

The Employee Health Specialist is a staff member of OCET or the Office of Operations (OO)/ESEMS 

who addresses the need for appropriate health protection for high-risk FDA employees. The Employee 

Health Specialist works with HHS and the USPHS Federal Occupational Health (FOH) Services to ensure 

adequate medical countermeasures are made available to protect FDA responders. The Employee Health 

Specialist is assigned to the Planning Section or can be called to serve in the Logistics Section. 

72 See FDA EOP, Section D, “Direction, Control, and Coordination,” for a description of the Technical Specialist positions. 

July 2019 Nuc/Rad Annex–18 Nuclear/Radiological Annex 
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July 2019 Nuc/Rad Annex–19 Nuclear/Radiological Annex 
 

 

 

 

 

 

 

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FDA Emergency Operations Plan 

E. COMMUNICATIONS AND INFORMATION MANAGEMENT 

Effective emergency management and incident response activities rely upon flexible communications and 

information systems that provide for a “common operating picture” across all agency components and 

staffs. Radiological/nuclear incident responders are expected to follow the FDA EOP, Section E, 

“Communications and Information Management.” 

E.1 EMERGENCY ALERTS 

FDA may receive alert and notification of a domestic nuclear/radiological incident from multiple external 

agencies. These notifications in the process may occur simultaneously following detection of an incident 

(see Figure E-1). Possible reporting pathways include alerts from: 

A. FRMAC to the Advisory Team through the FDA EOC (see Appendix B). Because of existing 

protocols outlined in the NRIA-NRF, the FRMAC may initially contact the CDC Director’s 

Emergency Operations Center (DEOC), who will contact the FDA EOC for notification of the 

Advisory Team. 

B. State or local government representative(s) to the Advisory Team through the FDA EOC. 

Because of existing protocols outlined in the NRIA-NRF, State and local government officials 

may initially contact the CDC DEOC, who will contact the FDA EOC for notification of the 

Advisory Team. 

C. NRC to the Advisory Team through the FDA EOC. 

D. NRC to FEMA to the HHS SOC to the FDA EOC. 

Figure E-1. Emergency Alert Reporting Pathways 

Any FDA element alerted to an incident should promptly report the information to the FDA EOC. 

Upon receipt, OEM/OEO emergency coordinators or Late Duty Officer (LDO) will use contact 

information contained in the “Advisory Team” tab of the OEM/OEO Redbook to make the appropriate 

notifications. 

July 2019 Nuc/Rad Annex–20 Nuclear/Radiological Annex 
 

 

 

 

 

 

· · • 

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__ 

•@!•t+W , .. 1 ... ••.,, 

---

-

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Liaison 

Consumers 

FDAIMG 

(scales up to event) 

Planning 

.... • • • 

• • • 

H•MiM 

.... 

t 

State Unified 

Command 

Health Professionals 

 External Stakeholders  FDA IMG Operations Section •-• FDA Internal Communications 

 Field Incident Management FDA IMG Planning Section  • • • External Communications 

FDA Emergency Operations Plan 

E.2 EXTERNAL INFORMATION SHARING 

Pre-identified communication pathways and information sharing methods must be established among 

agencies and organizations responsible for responding to a radiological incident. Effective and systematic 

information sharing will enhance response coordination and public messaging. FDA Centers/Offices are 

responsible for obtaining and updating their respective external agencies’ contact information. 

E.2.1 Information Sharing Process 

This section identifies specific external agencies that FDA links to for information exchange and 

dissemination. Not all Centers/Offices will or should be communicating with partner or external agencies. 

This annex specifically defines the primary FDA point of contact (POC) for each external agency or 

industry partner. The primary links when an IMG is activated are summarized in Figure E-2 and 

Table E-1. 

Figure E-2 shows the primary communications links established by the IMG and its Radiological 

Emergency Response Unit with external agencies during a response. (An example of a full nationalized 

IMG organization is shown in Figure D-1.) The Radiological Emergency Response Unit consists of 

radiological experts who provide technical advice and serve as representatives to external agencies. 

Agencies external to FDA are shown in orange. 

Figure E-2. Notional FDA Food and Agricultural Nuclear/Radiological

Incident Communications Links 

Table E-1 expands upon the communication links shown in Figure E-2 for a food and agricultural 

nuclear incident response and provides a summary of responsibilities for external communications. FDA 

roles are listed by IMG position and the supporting Center/Office. For each position, the chart lists the 

primary external POCs. Communication modes can include telephone, email, situation reports, interagency teleconferences, and 50-State teleconferences. 

July 2019 Nuc/Rad Annex–21 Nuclear/Radiological Annex 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Table E-1. FDA Communication Links by IMG Position and Center/Office 

IMG Position Center/Office External POCs Notes 

Command Staff 

AIC OEM HHS SOC/ESF #8 

IMG PIO/FDA 

Joint Information 

Center (JIC) 

 Office of External 

Affairs (OEA) 

 CFSAN 

HHS Assistant Secretary for 

Preparedness and Response (ASPR) and 

Assistant Secretary for Public Affairs 

(ASPA) 

Media 

 Consumers 

 Industry 

 Health Professionals 

 National Incident Communications 

Conference Line (NICCL) 

 State Incident Communications 

Conference Line (SICCL) 

 Private Sector Incident Communications 

Conference Line (PICCL) 

Monitor calls 

 USDA (Office of the Secretary 

Communications and others) 

 CDC JIC 

Incoming consumer calls JIC provides information out to 

Centers to respond 

LNO  USDA 

 NRC 

 EPA 

 CDC 

 National Oceanic and Atmospheric 

Administration (NOAA) 

General Staff 

Operations Section 

Food and Feed 

Safety Group 

 CFSAN 

 Center for Veterinary 

Medicine (CVM) 

 ORA Human and 

Animal Foods (HAF) 

 ORA Office of 

Communications and 

Quality Program 

Management 

(OCQPM) 

 State UC 

 FRMAC 

 Advisory Team 

Supports Advisory Team in 

reachback status 

 Consumers 

 Industry 

 Health Professionals 

In coordination with JIC 

Food and Agriculture Cross Sector 

 Sector and consumer calls in 

coordination with the JIC 

 Also participate in Nuclear 

Reactors, Materials and Waste 

Sector call 

States 50-State call in 

coordination with JIC 

Planning Section 

Radiological 

Emergency 

Response Unit 

 OO 

 ORA RHR 

 Multiple Center/Office 

SMEs 

 FERN 

 WEAC 

 State UC 

 FRMAC 

 Advisory Team 

Supports Advisory Team in 

reachback status 

International 

Specialist 

Office of International 

Programs (OIP) HHS Office of Global Affairs Add as needed 

Logistics Section 

Employee 

Health Specialist 

 OO 

 OCET 

 HHS 

 USPHS USPHS FOH Services 

July 2019 Nuc/Rad Annex–22 Nuclear/Radiological Annex 
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July 2019 Nuc/Rad Annex–23 Nuclear/Radiological Annex 
 

 

 

 

 

FDA Emergency Operations Plan 

F. AUTHORITIES AND REFERENCES 

The legal authorities that guide the structure, development, and implementation of this Nuclear/ 

Radiological Annex include statutes and regulations, Presidential directives, national strategies, and 

Federal government plans and guidance. In addition, internal emergency plans and procedures augment 

the Nuclear/Radiological Annex and provide specific guidance to agency personnel during emergencies 

and disasters. In addition to the authorities and references listed in the FDA EOP, Section F, “Authorities 

and References,” the following authorities and references apply.73 

F.1 CODE OF FEDERAL REGULATIONS 

Title 44 CFR Part 351, “Radiological Emergency Planning and Preparedness,” authorizes Federal 

agencies, including HHS, to assist State and local government officials in the development of their 

radiological plans (see https://www.gpo.gov/fdsys/granule/CFR-2011-title44-vol1/CFR-2011-title44-vol1-

part351). 

F.2 FEDERAL PLANS AND GUIDANCE 

The following list of Federal plans and guidance are applicable during a nuclear/radiological event. For a 

more detailed description, please see the following links: 

• ESF #8 – Public Health and Medical Services 

https://www.fema.gov/media-library/assets/documents/25512 

• ESF #10 – Oil and Hazardous Materials Response 

https://www.fema.gov/media-library/assets/documents/25512 

• ESF #11 – Agriculture and Natural Resources 

https://www.fema.gov/media-library/assets/documents/25512 

• Food and Agriculture Incident Annex 

www.fema.gov/media-library/assets/documents/25552?fromSearch=fromsearch&id=5527 

• National Oil and Hazardous Substances Pollution Contingency Plan 

https://www.epa.gov/emergency-response/national-oil-and-hazardous-substances-pollutioncontingency-plan-ncp-overview 

• NRF NRIA 

www.fema.gov/media-library/assets/documents/25554?fromSearch=fromsearch&id=5528 

• Terrorism Incident Law Enforcement and Investigation Annex 

https://www.fema.gov/media-library/assets/documents/25560 

73 This list is not exhaustive, and the associated summaries should not be used as a substitute for the authorities and references 

themselves. 

July 2019 Nuc/Rad Annex–24 Nuclear/Radiological Annex 
 

 

 

 

 

FDA Emergency Operations Plan 

F.3 FDA SUPPORTING DOCUMENTATION 

F.3.1 WEAC Radiation Safety Manual 

WEAC’s Radiation Safety Manual, Winchester Engineering and Analytical Center Policies and 

Procedures for Users of Radioactive Material and Radiation Emitting Devices, is issued by the WEAC 

Radiation Safety Committee. This document establishes procedures for the handling of radioisotopes at 

WEAC and other specified laboratories. 

F.3.2 CFSAN Radiological Emergency Response Plan 

The CFSAN Radiological Emergency Response Plan describes the responsibilities and actions to be taken 

by CFSAN in response to a radiological emergency. The document is Appendix W, “CFSAN 

Radiological Emergency Response Plan” to the CFSAN Emergency Response Plan. 

F.3.3 FDA Food Protective Guidance 

FDA has guidance on acceptable levels of radioactive contamination in food (called Derived Intervention 

Levels [DILs]) entitled, Accidental Radioactive Contamination of Human Food and Animal Feeds: 

Recommendations for State and Local Agencies (CDRH, 1998). This guidance provides a method for 

calculating the DIL for a specific radionuclide based on a limiting radiation dose to an individual 

consuming food contaminated at the level of a DIL for a period of one year. This guidance has been 

adopted by many States for their nuclear power plant safety programs and has been incorporated into 

EPA’s PAG Manual. FDA’s representatives on the Advisory Team, along with CFSAN radiation SMEs, 

assist with the interpretation of the guidance. 

July 2019 Nuc/Rad Annex–25 Nuclear/Radiological Annex 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

APPENDIX A: 

WINCHESTER ENGINEERING ANALYTICAL CENTER 

FERN – Radiological 

FDA’s WEAC radiological laboratory has analytical sample capacity during 24 hours a day, 7 days a 

week (24/7) operation of several hundred gamma-ray analyses per day and tens of beta- or alpha-particle 

analyses per week. The FERN radiological laboratories are activated by the WEAC Center Director and 

the FERN National Program Office when analytical surge capacity is required. 

FERN will integrate the Nation’s food-testing laboratories at the local, State, and Federal levels into a 

network that is able to respond to emergencies involving biological, chemical, or radiological 

contamination of food. FERN, shared between USDA/Food Safety and Inspection Service (FSIS) and 

HHS/FDA, is organized to ensure ongoing Federal and State interagency participation and cooperation in 

the formation, development, and operation of the network (www.fernlab.org). 

FERN plays a number of critical roles related to food security and food defense. These include: 

• Prevention. FERN provides a national surveillance program that will offer early means of 

detecting threat agents in the American food supply. 

• Preparedness. FERN prepares the Nation’s laboratories to be able to respond to food-related 

emergencies. 

• Response. FERN offers significant surge capacity that will strengthen the Nation’s response 

toward widespread complex emergencies and international or inadvertent related agents in foods. 

• Recovery. The FERN network of laboratories will enhance the ability of the country to restore 

confidence in the food supply following a threat or an actual emergency. 

FERN includes over 165 laboratories, including 35 radiological laboratories. ORA/WEAC in Winchester, 

MA, is the lead FDA field laboratory for the analysis of radionuclides in foods, drugs, and medical 

devices. 

FERN radiological laboratory contact information, laboratory capability, and capacity are maintained on 

the FoodSHIELD website (www.foodshield.org). 

Laboratory analyses, capability, and capacity will be dependent upon the type and scope of the emergency 

(i.e., the source of contamination, radionuclides, foods that may be contaminated, and levels of contamination). Sample throughput is variable. For example, at the onset of the emergency, samples may be triaged 

through screening methods, or the use of gamma radioactivity analysis may be extremely rapid at the 

FDA DIL. In comparison, alpha and beta activity measurements in foods may take several days to 

complete. 

Samples may be collected from onsite authorities or FDA, State, or local investigators and shipped to 

WEAC or FERN-activated laboratories. 

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FDA Emergency Operations Plan 

Services Provided to FDA/ORA Personnel 

WEAC is responsible for the health and safety of personnel in the field during a radiological/nuclear 

event. As such they provide the following services: 

• Personal Dosimetry and Monitoring 

− Personal dosimeters are provided to field analysts and import investigators. The FDA/ORA 

TLD personal dosimetry program is managed through the ORA Radiation Safety Officer at 

WEAC. 

− WEAC provides whole-body counting (i.e., the measurement of radioactivity within the 

whole body). This service is offered to FDA personnel who may have ingested or inhaled 

gamma-emitting radioactive material. Contact the FDA/ORA Radiation Safety Officer for 

services. 

• Radiation Detection During Border Exams of Imported Products. FDA/ORA investigators 

performing inspections at ports of entry are equipped with personal radiation detectors. SOPs 

(e.g., Notification and Response Procedures) are provided to the investigators. FDA/ORA/WEAC 

and ORA/Division of Field Investigations (DFI) manage this program. 

WEAC Emergency Preparedness Plan (Extract) 

WEAC promotes laboratory readiness to analyze samples for radioactive contamination and advance 

preparation guides through WEAC SOPs. These SOPs are readily available on the FDA/ORA/WEAC 

intranet website. The SOPs provide the following: 

• WEAC Contact Information 

• Laboratory Capability and Capacity 

• Investigational Guidance 

− Sample Collection Guidance and Instructions 

− Shipping Instructions 

• Radiation Safety Program Information 

− Radiation Safety Information and Guidance 

− Personal Monitoring Information and Guidance 

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FDA Emergency Operations Plan 

APPENDIX B: 

ACTIVATION/NOTIFICATION OF THE ADVISORY TEAM FOR 

NUCLEAR/RADIOLOGICAL EMERGENCIES 

Background 

FDA is a member, and currently the chair, of the Federal Advisory Team—an interagency advisory group 

that can be activated during radiological incidents to assist other Federal, State, tribal, and local organizations by interpreting radiological data and making PARs to protect the public. Alert and notification 

activities for the Advisory Team are the responsibility of the agency chairing the team. According to the 

current NRF NRIA, any external organization can request the assistance of the Advisory Team by 

contacting the CDC EOC. Until such time as the NRIA is revised, calls to the CDC’s EOC will be 

transferred to the FDA EOC, who will conduct further notification of the other member agencies (i.e., 

USDA, EPA, and CDC) that Advisory Team assistance has been requested. Requests may also be made 

directly to the FDA EOC. FRMAC will also request the assistance of the Advisory Team upon its 

activation through the FDA EOC. This document describes the internal notification and activation 

procedures that the FDA EOC will follow after receiving notification from the CDC EOC or directly from 

an outside entity. 

Scope 

This document applies to any radiological incident for which Federal assistance has been requested and 

Advisory Team participation (deployment or consultation) is needed. 

Procedure 

1. As described in the 2008 version of the NRIA, the requesting call may be received by the CDC 

DEOC. If the incoming request is received directly by FDA from a different entity, the process 

begins at Step 3 below. 

2. The CDC DEOC staff records the caller’s basic information (e.g., name, organization, two 

contact numbers, nature of request/notification, deployment logistics [if known]) and either 

transfers the call to the FDA After-Hours Emergency Line (1-866-300-4374 or 301-796-8240) or 

provides the FDA After-Hours Emergency Call Center (Call Center) number to the caller. The 

first method is preferred. 

3. During normal duty hours (8:30 a.m. to 5:00 p.m. Eastern Time, weekdays), the incoming call is 

received by FDA OEO staff and referred to FDA OEM Director or OEO Director for follow-up. 

4. During non-duty hours (5:00 p.m. to 8:30 a.m. Eastern Time, weekdays; 5:00 p.m. Eastern Time 

Friday through 8:30 a.m. Eastern Time Monday; and Federal holidays), the incoming call is 

received by the FDA After-Hours Emergency Call Center staff (contractor). Call Center staff 

record the caller’s basic information (e.g., name, organization, two contact numbers, nature of 

request/notification, deployment logistics [if known]). 

5. The Call Center referes the call to OEO LDO, or Alternate LDO, in accordance with established 

Call Center procedures. 

6. The Call Center sends automated email message to FDA Emergency Operations 

(emergency.operations@fda.hhs.gov) advising all OEO staff of the LDO notification. 

7. The LDO contacts the Advisory Team Chair by telephone. 

8. If the Advisory Team Chair is unavailable, the LDO contacts an alternate FDA Advisory Team 

member, in the order specified in the Advisory Team tab of the OEM/OEO Redbook. 

July 2019 Nuc/Rad Annex–28 Nuclear/Radiological Annex 
 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

9. Upon reaching the Advisory Team Chair or an alternate, the LDO confirms that they would like 

the other Advisory Team agencies notified, and also determines if the Advisory Team would like 

OEO to set up a conference call with the other Advisory Team agencies, along with the desired 

call time, allowing sufficient lead time for required notifications to be made. 

10. The LDO notifies the OEM Director and OEO Director by telephone. 

11. The OEM or OEM/OEO Director will initially make telephone contacts with the following 

individuals in FDA and apprise them of the events and activities as they are known: 

a. CFSAN Emergency Coordinator, with a request that they contact CFSAN’s Radiological 

SMEs. 

b. Emergency Response Coordinator(s), District Directors (DD) or Program Director (PD) 

where the incident occurred. 

12. The CFSAN Emergency Coordinator will notify the EOC whether CFSAN has representation on 

the Advisory Team (in reachback status) and/or identify other SMEs that are available to support 

the Advisory Team. 

13. The District Directors (DD) or Program Director (PD) will be asked to contact the RHR(s) and 

make arrangements for their deployment to the site of the emergency where they will coordinate 

with other onsite Advisory Team members. 

14. The LDO sends a summary email to FDA Emergency Operations 

(emergency.operations@fda.hhs.gov) indicating that the call was received and successfully 

referred to the Advisory Team Chair or alternate member. 

15. The Advisory Team representative confirms that the LDO should notify the other Advisory Team 

member agency EOCs (e.g., CDC, EPA, USDA) to inform them of the request for Advisory 

Team assistance/activation. If requested, the LDO contacts agency EOCs by email and follow-up 

telephone call and provides basic incident information and instructions for a conference call at the 

specified time. EOC telephone numbers and conference call numbers are maintained in the 

Advisory Team tab of the OEM/OEO Redbook. 

16. The LDO notifies HHS SOC of the incoming request via email (hhs.soc@hhs.gov). 

17. OEM/OEO management notifies the FRPCC Chair of the incoming request via email. 

18. The LDO notifies the following individuals by email: 

a. District Directors (DD) or Program Director (PD) for the affected area. 

b. Senior Emergency Response Coordinators (SERC) 

c. All RHRs. 

d. ORA headquarters Emergency Response Coordination Group (ERCG). 

e. District Emergency Response Coordinator (DERC) for the affected District/geographic area. 

f. Director, Investigations Branch (DIB) for the affected District. 

g. CFSAN Emergency Coordinator. 

h. Counselor to the Commissioner. 

i. ORA Weekend Duty Manager (if applicable) via email. 

If requested to do so by Advisory Team Chair or designated representative, the LDO includes 

all remaining FDA Advisory Team members and CFSAN radiological SMEs on this 

notification. 

July 2019 Nuc/Rad Annex–29 Nuclear/Radiological Annex 
 

 

 

FDA Emergency Operations Plan 

19. The LDO sends an information-only email to all Center/Office emergency coordinators, all 

SERCs, all DERCs, all DDs, and all DIBs. 

20. OEM/OEO management reviews the FDA EOP, Appendix C, “FDA Mission Assignment SubTaskings” and initiates appropriate notifications/actions to support any contemplated FEMA/HHS 

mission assignment sub-taskings for Advisory Team deployment. 

21. The LDO and/or OEM/OEO management maintain communications with the Advisory Team 

Chair or designated representative to assist with any follow-up actions required. 

22. FDA EOC operational level may change according to existing procedures (see FDA EOP).74 

23. For events coordinated in the FDA EOC by an IMG, the agency’s Radiological Emergency 

Response Unit leader will identify personnel at FDA headquarters to participate in Advisory 

Team conference calls and meetings to provide situational awareness and to represent the needs 

of the EOC for information (e.g., radiological data, maps, etc.). 

NOTE: After consultation with the OEO or OEM Director, LDO duties outlined above may be distributed 

among other OEM managers or emergency coordinators in the interest of time. 

References 

• NRF 

• NRF NRIA 

• Advisory Team CONOPS 

• FDA EOP 

74 For any radiological incident for which Federal assistance has been requested, including the Advisory Team, it is likely that the 

FDA EOC activation level would be increased and an IMG established. 

July 2019 Nuc/Rad Annex–30 Nuclear/Radiological Annex 
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FDA Emergency Operations Plan 

APPENDIX C: 

PROTECTIVE ACTIONS 

Protective Action Guides 

PAGs are projected (estimated) dose levels to individuals in the general population at which a recommendation for protective action may be warranted. FDA has developed one set of PAGs for the ingestion 

pathway. The current PAGs are 5 millisievert (mSv) for committed effective dose equivalent or 50 mSv 

committed dose equivalent to an individual tissue or organ, whichever is more limiting. The EPA 

maintains PAGs for all exposure pathways, publishing them in their Manual of Protective Action Guides 

and Protective Actions for Nuclear Incidents (publication number 400R92001, available at EPA’s 

website, www.epa.gov/radiation/docs/er/400-r-92-001.pdf). EPA’s PAGs are currently in revision and a 

draft has been released for interim use that incorporates FDA’s current food guidance document, 

Accidental Radioactive Contamination of Human Food and Animal Feeds: Recommendations for State 

and Local Agencies, August 13, 1998 (available at www.fda.gov/downloads/MedicalDevices/ 

DeviceRegulationandGuidance/GuidanceDocuments/UCM094513.pdf). 

Derived Intervention Levels 

The DIL refers to the concentration of radioactive contamination present in food that, if ingested at this 

level over a specified time, may result in the individual receiving a projected dose equal to the PAG. FDA 

uses the internationally accepted units of becquerel per kilogram (Bq/kg) to express DILs, but it is 

common for radioactivity levels to also be expressed in units of picocuries per kilogram (pCi/kg) 

(1 Bq equals 27 pCi). The criteria used to calculate DILs include established dose coefficients for 

different age groups in the population, the fraction of food intake assumed to be contaminated, and the 

quantity of food consumed by that age group in the specified time period. The lowest calculated value 

across all age groups and target organs is designated as the DIL for that radionuclide. The assumptions 

used to calculate the DILs are extremely conservative. Thus, using the DILs to control food intake would 

realistically result in a person receiving only a fraction of the PAG dose. 

FDA has calculated and published DILs for the radionuclides expected to deliver the major portion of 

radiation dose via the ingestion pathway during the first year following an emergency. The types of 

situations for which FDA has calculated DILs are: a release from a nuclear power plant, nuclear fuel 

reprocessing plant, or nuclear waste storage facility; the detonation of a nuclear weapon; transportation 

accidents; and release of material from radioisotope thermoelectric generators or heater units. 

Table C-1 depicts the DILs for the nine principal radionuclides expected to be major contributors from 

these types of emergencies. The DIL for each radionuclide group is applied independently. The DILs 

apply to foods as prepared for consumption. For dried or concentrated products, such as powdered milk or 

concentrated juices, one should adjust by an appropriate reconstitution factor. For spices, consumed in 

very small quantities, a dilution factor of 10 is recommended. DILs for other types of emergencies and the 

other radionuclides such as terrorist activities can be determined using the same methodology. 

Table C-1. Principal Radionuclides and Corresponding DILs 

Radionuclide DIL (Bq/kg) DIL (pCi/kg) 

Sr-90 160 4,300 

I-131 170 4,600 

Cs-134 + Cs-137 1,200 32,000 

Pu-238 + Pu-239 + Am-241 2 54 

Ru-103 + Ru-106 Ru-103 + Ru-106 = 1 

(C3 / 6,800) + (C6 / 450) < 1 

Ru-103 + Ru-106 = 1 

(C3 / 180,000) + (C6 / 12,000) < 1 

Sr = Strontium Cs = Cesium Am = Americium C3 and C6 = the Concentrations 

I = Iodine Pu = Plutonium Ru = Ruthenium 

July 2019 Nuc/Rad Annex–32 Nuclear/Radiological Annex 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

Protective Action Recommendations 

PARs refer to specific actions that public health officials or members of the public can take to limit the 

radiation dose from eating contaminated products. These recommendations focus on steps to avoid or 

reduce radionuclide contamination in or on food and animal feed. 

Public health officials or members of the public can take protective actions before and/or after contamination is confirmed. An example of a protective action taken before confirmation of contamination is a 

temporary, indefinite restriction on the movement of food out of a possibly contaminated region. With 

confirmation of contamination and specific identification of the contaminant, other protective actions may 

become appropriate. Assessing the extent and impact of contamination of food includes measuring 

activity levels in sampled foodstuffs and comparing against the relevant DILs. Depending on the specific 

circumstances, individuals can take a variety of protective actions, including holding of food for a 

specified time period to allow contamination to diminish through normal radioactive decay, removing 

surface contamination by washing and diverting or destroying contaminated food. Federal agencies may 

receive a request to provide PARs to State and local public health authorities. If there is a request for 

PARs for FDA-regulated products, FDA’s RHR, the agency’s onsite liaison to the Advisory Team, works 

with the Advisory Team and in consultation with other FDA scientific and policy experts to develop 

them. PARs are given to State and local authorities via appropriate on-scene NIMS procedures. State and 

local officials determine specific protective actions for implementation. 

July 2019 Nuc/Rad Annex–33 Nuclear/Radiological Annex 
 

 

FDA Emergency Operations Plan 

APPENDIX D: 

MEMORANDUM OF UNDERSTANDING 

A memorandum of understanding (MOU) is a critical component of any formal arrangement for cooperation between two or more entities. An MOU usually describes, in broad general terms, an area of mutual 

interest or concern that two or more agencies or organizations may cooperatively address. MOUs 

generally do not include specific information regarding detailed scope of work or the exchange of funds 

or human resources. 

A complete listing of MOUs or other written cooperative arrangements with States, other Federal 

agencies and foreign government counterparts, and the World Health Organization (WHO) can be found 

at www.fda.gov/AboutFDA/PartnershipsCollaborations/MemorandaofUnderstandingMOUs/default.htm. 

MOU with the Nuclear Regulatory Commission 

On December 12, 2002, an earlier MOU between FDA and the NRC was renewed for an indefinite time. 

It clarifies the respective roles of each agency in regulating the safe use of radiopharmaceuticals and 

sealed sources or devices containing radioactive material. As a result, the NRC and FDA have established 

LNOs and identified key management and technical personnel for coordinating responses to emergencies 

or specific events of mutual interest. They have conducted joint inspections of medical events involving 

device failures and human- or computer-generated errors. Additionally, senior management meetings 

between the two agencies are conducted annually. 

July 2019 Nuc/Rad Annex–34 Nuclear/Radiological Annex 
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July 2019 Nuc/Rad Annex–35 Nuclear/Radiological Annex 
 

 

I I I I I 

FDA Emergency Operations Plan 

APPENDIX E: 

FDA RESPONSIBILITIES DURING RADIOLOGICAL INCIDENTS 

This appendix provides an overview of the FDA components that would respond to a radiological 

emergency and the responsibilities each Office would have during the response and recovery phases 

(see Table E-1). 

Table E-1. FDA Responsibilities for Radiological Incidents 

Office of Foods 

OEM/ and Veterinary OFVM/ OEA ORA OO OEO1 Medicine CVM 

(OFVM)/CFSAN 

 Manage FDA’s Coordinate with Serve as POC for Respond to external Represent FDA Represent FDA 

EOC DHS Critical veterinary inquiries: on the Advisory on the Advisory 

 Monitors emergency situations 

 Coordinates overall 

Infrastructure 

Food and 

Agriculture Sector 

industry  Media 

 Consumer 

 Industry 

Team Team 

agency response 

operations  Health 

Professionals 

Serve as POC for Coordinate and Serve as POC for Coordinate with Provide RHRs 

interagency com- communicate with feed supply HHS ASPA, ASPR, 

munication and the food and incidents and the CDC on 

coordination agriculture 

industry 

public messaging 

Communicate with the Serve as POC for Ensure safety of Represent FDA on Conduct 50-

HHS SOC food and feed for animals NICCL, SICCL, and State calls (OP) 

agriculture (food production) PICCL conference 

industry calls and other 

agency public 

affairs offices as 

needed 

Coordinate ESF/ 

Recovery Support 

Function (RSF) MAs 

Ensure the safety 

of food for 

humans 

Develop agency 

public messaging 

Participate in the 50- Serve as POC for 

State calls interagency 

communication and 

coordination of 

messaging 

Monitor the NICCL, 

SICCL, and PICCL 

conference calls 

Coordinate with White 

House/National 

Security Staff 

Coordinate with 

Advisory Team; 

provides scientific 

advice for a radiological incident 

Communicate and 

coordinate with WEAC 

and FERN 

1 These functions may be performed by an IMG, when activated. 

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FOOD & DRUG 

ADMINISTRATION 

U.S. DEPARTMENT OF HEALTH AND HUMAN SERVICES 

U.S. Food and Drug Administration 

Pandemic Influenza Annex to the 

FDA Emergency Operations Plan 

Version 3.0 

July 2019 

OFFICE OF EMERGENCY MANAGEMENT 
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RECORD OF CHANGES 

Change

# 

Page 

# Section Change Description Change Made By Date 

NOTE: See individual annexes for additional record of changes. 

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PANDEMIC INFLUENZA ANNEX 

TABLE OF CONTENTS 

A. Introduction....................................................................................................... PI Annex-1 

A.1 Mission ........................................................................................................................ PI Annex-1 

A.2 Purpose ....................................................................................................................... PI Annex-1 

A.3 Scope and Applicability ............................................................................................... PI Annex-2 

A.4 Planning Assumptions................................................................................................. PI Annex-3 

A.5 Activation..................................................................................................................... PI Annex-4 

A.6 Supersedence ............................................................................................................. PI Annex-4 

B. Concept of Operations ..................................................................................... PI Annex-5 

B.1 Emergency Authorities ................................................................................................ PI Annex-5 

B.2 Emergency Operations Phases .................................................................................. PI Annex-5 

B.2.1 Prevention and Protection.............................................................................. PI Annex-5 

B.2.1.1 Surveillance and Detection ............................................................ PI Annex-5 

B.2.1.2 Consumer Product Protection........................................................ PI Annex-5 

B.2.1.3 Medical Countermeasures............................................................. PI Annex-6 

B.2.1.4 Increased Surveillance of FDA-Regulated Pandemic Influenza 

Medical Products ........................................................................... PI Annex-6 

B.2.2 Response ....................................................................................................... PI Annex-6 

B.2.2.1 Gain and Maintain Situational Awareness ..................................... PI Annex-6 

B.2.2.1.1 Alert and Notification.................................................... PI Annex-6 

B.2.2.1.2 Administrative Alert and Notification ............................ PI Annex-6 

B.2.2.2 Coordination of Response Actions ................................................ PI Annex-6 

B.2.2.2.1 FDA Headquarters Response...................................... PI Annex-6 

B.2.2.2.2 Medical Countermeasures Expanded Access 

and EUA....................................................................... PI Annex-7 

B.2.2.3 Demobilization ............................................................................... PI Annex-7 

B.2.3 Recovery ........................................................................................................ PI Annex-7 

C. Organization and Assignment of Responsibilities......................................... PI Annex-9 

C.1 Office of the Commissioner......................................................................................... PI Annex-9 

C.1.1 Office of the Chief Counsel .......................................................................... PI Annex-10 

C.1.2 Office of Legislation...................................................................................... PI Annex-11 

C.1.3 Office of Policy and Planning ....................................................................... PI Annex-11 

C.1.4 Office of External Affairs .............................................................................. PI Annex-11 

C.1.4.1 Web and Digital Media Staff ........................................................ PI Annex-11 

C.1.4.2 Office of Communications............................................................ PI Annex-12 

C.1.4.3 Office of Media Affairs/Media Relations....................................... PI Annex-12 

C.1.4.4 Office of Health and Constituent Affairs....................................... PI Annex-13 

C.2 Office of the Chief Scientist....................................................................................... PI Annex-13 

C.2.1 Office of Counterterrorism and Emerging Threats....................................... PI Annex-13 

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C.3 Office of Operations .................................................................................................. PI Annex-14 

C.3.1 Office of Finance, Budget, and Acquisition.................................................. PI Annex-16 

C.3.1.1 Office of Budget ........................................................................... PI Annex-16 

C.3.1.2 Office of Acquisitions and Grants Services.................................. PI Annex-17 

C.3.1.3 Office of Financial Operations ..................................................... PI Annex-18 

C.3.1.3.1 Office of Financial Management ................................ PI Annex-18 

C.3.2 Office of Information Management............................................................... PI Annex-18 

C.3.3 Office of Security and Emergency Management ......................................... PI Annex-21 

C.3.3.1 Office of Emergency Management .............................................. PI Annex-21 

C.4 Office of Foods and Veterinary Medicine.................................................................. PI Annex-23 

C.4.1 Center for Food Safety and Applied Nutrition .............................................. PI Annex-23 

C.4.1.1 Coordinated Outbreak Response and Evaluation ....................... PI Annex-24 

C.4.2 Center for Veterinary Medicine .................................................................... PI Annex-25 

C.5 Office of Medical Products and Tobacco .................................................................. PI Annex-26 

C.5.1 Office of Special Medical Programs............................................................. PI Annex-26 

C.5.1.1 Office of Combination Products ................................................... PI Annex-26 

C.5.2 Center for Drug Evaluation and Research................................................... PI Annex-26 

C.5.3 Center for Biologics Evaluation and Research ............................................ PI Annex-28 

C.5.4 Center for Devices and Radiological Health ................................................ PI Annex-30 

C.6 Office of Global Regulatory Operations and Policy................................................... PI Annex-31 

C.6.1 Office of International Programs .................................................................. PI Annex-31 

C.6.2 Office of Regulatory Affairs .......................................................................... PI Annex-32 

C.6.2.1 Office of Regulatory Affairs Laboratories..................................... PI Annex-34 

D. Direction, Control, and Coordination ............................................................ PI Annex-35 

D.1 Command Staff ......................................................................................................... PI Annex-36 

D.1.1 Pandemic Influenza-Specific Liaisons ......................................................... PI Annex-36 

D.1.2 Legal Advisor ............................................................................................... PI Annex-36 

D.1.2.1 Legal Group ................................................................................. PI Annex-36 

D.2 General Staff ............................................................................................................. PI Annex-36 

D.2.1 Operations Section....................................................................................... PI Annex-36 

D.2.1.1 Drug Group .................................................................................. PI Annex-37 

D.2.1.1.1 Antiviral Team ............................................................ PI Annex-37 

D.2.1.1.2 Expired Drugs Team .................................................. PI Annex-37 

D.2.1.1.3 Drug Shortage Team ................................................. PI Annex-37 

D.2.1.1.4 Adverse Drug Events Team....................................... PI Annex-37 

D.2.1.2 Biologics Group............................................................................ PI Annex-37 

D.2.1.2.1 Vaccine Team ............................................................ PI Annex-37 

D.2.1.2.2 Blood Team................................................................ PI Annex-38 

D.2.1.3 Medical Device Group.................................................................. PI Annex-38 

D.2.1.3.1 In-Vitro Diagnostics Team.......................................... PI Annex-38 

D.2.1.3.2 Personal Protective Equipment and Other 

Devices Team ............................................................ PI Annex-38 

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D.2.1.3.3 Shortage Team .......................................................... PI Annex-39 

D.2.2 Logistics Section .......................................................................................... PI Annex-39 

D.2.2.1 Employee Health Advisor............................................................. PI Annex-39 

E. Communications and Information Management........................................... PI Annex-41 

F. Authorities and References ........................................................................... PI Annex-43 

F.1 National Strategies.................................................................................................... PI Annex-43 

F.2 Federal Plans and Guidance..................................................................................... PI Annex-43 

F.3 FDA Supporting Documentation ............................................................................... PI Annex-44 

Appendix A: Protection of Workers: Guidance on Preparing the 

Workplace and Workers for an Influenza Pandemic .................................... PI Annex-45 

LIST OF FIGURES 

Figure A-1. Continuuum of Pandemic Phases.............................................................................. PI Annex-3 

Figure D-1. Possible Pandemic Influenza IMG Structure ........................................................... PI Annex-35 

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A. INTRODUCTION 

Pandemic influenza has the potential to cause adverse health effects for large segments of the population 

and animals, either directly due to exposure to the virus or indirectly as a result of the social and 

economic disruptions caused by the pandemic. To mitigate the consequences of pandemic influenza, the 

U.S. Food and Drug Administration (FDA) must be prepared to respond, with potentially limited staff, to 

a greater-than-normal demand and a public health need for safe and effective medical products to prevent 

and treat pandemic influenza, as well as other FDA-regulated products. 

The Pandemic Influenza Annex to the FDA Emergency Operations Plan (EOP) establishes a single, comprehensive framework for the agency’s management of pandemic influenza emergencies. It provides the 

measures, operating structures, roles and responsibilities, and mechanisms for direction and coordination 

of FDA resources before, during, and through the recovery phase from an outbreak. The Pandemic 

Influenza Annex is compatible with the scalable, flexible, and adaptable Federal government emergency 

coordinating structures of the National Response Framework (NRF) and is consistent with the concepts, 

principles, and terminology of the National Incident Management System (NIMS)75 and the FDA EOP. 

The Pandemic Influenza Annex is to be used to assist FDA in conducting response operations for any 

pandemic influenza emergency. 

A.1 MISSION 

During an influenza pandemic emergency, FDA’s mission may expand to include performance of specific 

incident-related functions, such as: 

• Facilitating the availability of approved and unapproved medical countermeasures, including 

evaluating and authorizing, as appropriate, emergency use authorizations (EUAs) for vaccines 

and antiviral medical countermeasures, personal protective equipment (PPE), and in-vitro 

diagnostics (IVDs). 

• Working with manufacturers to expedite the development, licensure (if possible), and lot release 

of a vaccine specific to the pandemic strain. 

• Monitoring the availability of critically needed FDA-regulated medical products, such as 

respiratory protection devices. 

A.2 PURPOSE 

The purpose of the Pandemic Influenza Annex is to add more detailed guidance to the FDA EOP to 

provide a coordinated response to the adverse impact an influenza pandemic would have on FDA and the 

industry and products it regulates. To accomplish this, the Pandemic Influenza Annex describes specific 

actions that FDA’s organizational components and personnel will take when responding to a pandemic 

influenza incident and enhances the agency’s emergency preparedness and response capabilities. 

The Pandemic Influenza Annex: 

• Is compatible with and expands on the FDA EOP. 

• Defines the FDA influenza pandemic emergency operating structure and identifies the essential 

tasks of all FDA organizational components involved in prevention, protection, response, and 

recovery efforts. 

• Provides mechanisms for vertical and horizontal command, control, coordination, and 

communication. 

75 For more information on the NRF and NIMS, refer to the “Authorities and References” section of the FDA EOP. 

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• Ensures consistency with nationally recognized incident management policies and guidance. 

A.3 SCOPE AND APPLICABILITY 

This annex applies to any pandemic influenza incident for which FDA provides assistance under 

Emergency Support Function (ESF) #8 of the NRF, the National Strategy for Pandemic Influenza, the 

National Strategy for Pandemic Influenza – Implementation Plan, or under its own authority under the 

Federal Food, Drug, and Cosmetic Act of 1938 (FFDCA), as amended. 

This annex applies to FDA’s response activities that will assist in: 

1. Stopping, slowing, or otherwise limiting the spread of a pandemic to the United States. 

2. Limiting the domestic spread of a pandemic and mitigating disease, suffering, and death. 

3. Sustaining infrastructure and mitigating the impact on the economy and the functioning of 

society. 

For the purpose of this annex, an influenza pandemic incident occurs when a novel strain of influenza 

virus emerges with the ability to infect and efficiently spread among humans. Because humans lack 

immunity to the new virus, a worldwide epidemic or pandemic can occur. 

This Pandemic Influenza Annex guides FDA personnel, explaining FDA’s response activities and 

procedures for a cluster of novel influenza cases in verified human-to-human transmission during the 

World Health Organization (WHO) phases of influenza pandemic, including the alert phase and pandemic 

phase (see Figure A-1 on next page). WHO has developed a risk-based approach to pandemic influenza 

based on a continuum, which shows the phases in the context of preparedness, response, and recovery as 

part of an all-hazards approach to emergency risk management. In the event of an influenza pandemic 

emergency, FDA headquarters and field staffs will follow these response procedures. 

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Definitions of Phases of Pandemic Flu Within the Continuum 

Interpandemic 

Phase This is the period between influenza pandemics. 

Alert Phase 

This is the phase when influenza caused by a new subtype has been identified in humans. Increased 

vigilance and careful risk assessment, at local, national, and global levels, are characteristic of this 

phase. If the risk assessments indicate that the new virus is not developing into a pandemic strain, a 

de-escalation of activities toward those in the interpandemic phase may occur. 

Pandemic Phase 

This is the period of global spread of human influenza caused by a new subtype. Movement between 

the interpandemic, alert, and pandemic phases may occur quickly or gradually as indicated by the 

global risk assessment, principally based on virological, epidemiological, and clinical data. 

Transition Phase 

As the assessed global risk reduces, de escalation of global actions may occur, and reduction in 

response activities or movement toward recovery actions by countries may be appropriate, according to 

their own risk assessments. 

Source: Pandemic Influenza Risk Management: A WHO guide to inform and harmonize national and international pandemic 

preparedness and response. Geneva: World Health Organization; 2017. Licence: CC BY-NC-SA 3.0 IGO. 

(http://www.who.int/influenza/preparedness/pandemic/influenza_risk_management_update2017/en/) 

Figure A-1. Continuuum of Pandemic Phases76 

A.4 PLANNING ASSUMPTIONS 

The Pandemic Influenza Annex is based on the following planning assumptions: 

• During the interpandemic phases, FDA will perform its routine functions. 

• During the alert phase, in addition to routine functions, many FDA Offices and Centers may 

begin performing pandemic influenza response activities described in this annex. 

• During the pandemic phase (i.e., U.S. pandemic period), routine functions may continue based on 

staffing availability; however, pandemic influenza response activities will take priority. 

• Susceptibility to the pandemic influenza virus will be universal. 

• An influenza pandemic will cause simultaneous outbreaks across the United States, limiting the 

ability to transfer assistance from one area to another. 

• Widespread illness in communities may increase the likelihood of significant shortages of 

personnel (in health and non-health sectors) who provide other essential community services. 

76 This continuum is according to a “global average” of cases, over time, based on continued risk assessment and consistent with 

the broader emergency risk management continuum. 

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• A pandemic will pose significant challenges to FDA employees responsible for sustaining FDA’s 

essential functions due to widespread absenteeism. 

• An influenza pandemic may require FDA staff members to sustain some essential functions from 

home. 

• Some information systems supporting FDA operations may not be available. 

• Due to the uniqueness of their positions, not all essential employees will have a backup. 

• The adverse impact of pandemic influenza on the availability of safe and effective FDA-regulated 

products requires an immediate response by FDA. Protection of the affected or potentially 

affected population is the highest priority during response operations. 

• Epidemics would last 6 to 8 weeks in affected communities. Multiple waves of illness (periods 

during which community outbreaks occur across the country) are likely to occur with each wave 

lasting 2 to 3 months. As many as 40 percent of FDA employees and FDA-regulated industry 

employees in a geographic area could be absent from work at any point during a pandemic. This 

could also adversely impact the donor pool necessary for availability of blood and tissue 

products. 

• Greater product demand and increased worker absenteeism in FDA-regulated industry could lead 

to shortages of commercial food products and medical products that are used to prevent and treat 

pandemic influenza. 

• Quarantining of critical FDA-regulated facilities and large geographic areas may result. This may 

affect other countries, requiring extensive coordination with State, local, and foreign governments 

in conjunction with other Federal agencies. 

• FDA U.S. Public Health Service (USPHS) Commissioned Corps personnel may be deployed, as 

necessary, to support U.S. Department of Health and Human Services (HHS) pandemic influenza 

response efforts. 

• Program Directors, District Directors, and Center/Office Directors may activate their individual 

organizational component’s emergency operations or pandemic influenza plan without activation 

of the Pandemic Influenza Annex. 

A.5 ACTIVATION 

The Public Health and Medical Services (ESF #8) response to an outbreak of pandemic influenza will be 

directed by the HHS Office of the Secretary in coordination with the U.S. Department of Homeland 

Security (DHS), which is responsible for managing the U.S. Government (USG) response. FDA is a 

subordinate Operating Division (OPDIV) of HHS, and it will align its response activities with those of 

HHS. FDA will use the full spectrum of its resources to accomplish assigned roles, responsibilities, 

functions, goals, and missions. 

This annex will be consulted and implemented together with the FDA EOP when there is an influenza 

pandemic threat abroad or in North America or a declaration of a pandemic by WHO. 

A.6 SUPERSEDENCE 

This Pandemic Influenza Annex to the FDA EOP (2018) supersedes the FDA EOP Pandemic Influenza 

Annex (2014). 

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B. CONCEPT OF OPERATIONS 

The scope of FDA emergency operations response to an influenza pandemic involves a wide array of 

products regulated simultaneously by the agency. The following concept of operations (CONOPS) section 

of this annex describes the principal authorities governing agency emergency functions that FDA 

conducts to perform its incident-related influenza pandemic operations. 

B.1 EMERGENCY AUTHORITIES 

FDA emergency authorities are listed in the FDA EOP. 

B.2 EMERGENCY OPERATIONS PHASES 

The following phases comprise the entire spectrum of FDA emergency operations: Prevention, 

Protection, Mitigation, Response, and Recovery. When a global pandemic is anticipated or does occur, 

FDA employees are expected to follow the activities described in the FDA EOP, Section B.2, 

“Emergency Operations Phases.” Although emergency operations may involve each of these phases over 

the course of a pandemic influenza incident, the nature and severity of an event and FDA’s organizational 

component(s) responding will determine the specific order, actions, and responsible parties required for 

each.77 The following sections describe additional resources available during FDA’s emergency 

operations for Prevention and Protection specific to a potential pandemic or pandemic event. 

B.2.1 Prevention and Protection 

B.2.1.1 Surveillance and Detection 

During a pandemic influenza event, FDA may use the following surveillance and detection systems: 

• Adverse Event Reporting System (AERS) 

• Biological Product Deviation Reporting (BPDR) System 

• Center for Devices and Radiological Health (CDRH) Product Availability (Shortages) Database 

• Emergency Operations Network – Incident Management System (EON-IMS) 

• Manufacturer and User Facility Device Experience (MAUDE) System 

• MedWatch 

• National Biosurveillance Integration System (NBIS) 

• New Drug Application (NDA) Field Alert Program 

• Veterinary Adverse Drug Experience (ADE) Reporting System 

For a complete listing of surveillance and detection systems, refer to the FDA EOP, Table B-1. 

B.2.1.2 Consumer Product Protection 

In addition to the activities designated to deter intentional and unintentional acts against FDA-regulated 

products and to protect consumers from potential public health hazards, as described in the FDA EOP, 

FDA takes the following actions during an influenza pandemic: 

• Expedited review of applications for vaccines, antivirals, masks, and IVDs. 

• Aggressive surveillance to identify and take action to stop fraudulent promotion of products to 

prevent, diagnose, or treat influenza. 

77 Refer to FDA EOP, Section C, “Organization and Assignment of Responsibilities,” for an overview of FDA organizational 

component roles and responsibilities during an emergency. 

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B.2.1.3 Medical Countermeasures 

FDA Centers and Offices shall perform the general functions related to medical countermeasures 

mentioned in the FDA EOP, Section B.2.1.3, “Medical Countermeasures.” 

B.2.1.4 Increased Surveillance of FDA-Regulated Pandemic Influenza Medical Products 

During an influenza pandemic, FDA may increase its surveillance of FDA-regulated medical products 

used to prevent, diagnose, or mitigate adverse health effects of the pandemic influenza virus. Examples of 

such products include antivirals, vaccines, respiratory protection devices, other types of PPE, and IVD 

kits. Increased surveillance may include, but is not limited to, pharmacovigilance, such as tracking of 

vaccine adverse events or emergence of antiviral resistance; product quality, such as tracking of counterfeit products and fraudulent claims; and product availability, such as shortages of antivirals, masks, and 

essential medical material. The increased surveillance could be a result of conditions, such as the use of a 

product by a larger or different population; the use of products for other than their labeled indication; or 

concerns about the potential development of resistance to a product, such as antivirals or antibiotics. A 

specific concern is resistance developing to any antiviral drug in use for the pandemic influenza strain. 

B.2.2 Response 

B.2.2.1 Gain and Maintain Situational Awareness 

B.2.2.1.1 Alert and Notification 

FDA employees are expected to follow the activities described in the FDA EOP, Section B.2.2.1.1, “Alert 

and Notification.” In addition, FDA’s Office of Operations is to be notified of a pandemic event. 

B.2.2.1.2 Administrative Alert and Notification 

The FDA Office of Management (OM), within the Office of the Commissioner (OC), serves as the 

agency’s focal point for distributing information to agency staff concerning their safety and health to 

maintain staff agency mission support. Examples of such information include: 

• Flexible workplace agreement activities. 

• PPE and other medical countermeasures, such as vaccines and antivirals. 

• Building closures. 

B.2.2.2 Coordination of Response Actions 

FDA response coordination during a pandemic will follow the FDA EOP, which will be augmented by 

the following coordination and response activities. 

B.2.2.2.1 FDA Headquarters Response 

The FDA OC Offices, Centers, and Office of Regulatory Affairs (ORA) will follow the FDA EOP, 

Section B.2.2.3, “Coordination of Response Actions,” which contains contacts for information dissemination, resource coordination, and priority setting. In addition, the following steps will be taken for a 

pandemic: 

• Examine all foreign travel and restrict if necessary. 

• Review plans and update all essential personnel listings. 

• Ensure employees are familiar with emergency procedures. 

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B.2.2.2.2 Medical Countermeasures Expanded Access and EUA 

FDA response regarding medical countermeasures availability and use will follow the FDA EOP, 

Section B.2.2.3.5, “Medical Countermeasures: EUA and Expanded Access,” and will be augmented by 

OC EUA standard operating procedure (SOP). 

B.2.2.3 Demobilization 

The FDA OC Offices, Centers, and ORA will follow the FDA EOP, Section B.2.2.4, “Demobilization,” 

and return to an agency-wide Task Force structure led by the Office of Counterterrorism and Emerging 

Threats (OCET). 

B.2.3 Recovery 

The FDA OC Offices, Centers, and ORA will follow the FDA EOP, Section B.2.3, “Recovery,” and 

return to an agency-wide Task Force structure led by OCET. 

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C. ORGANIZATION AND ASSIGNMENT OF RESPONSIBILITIES 

This section identifies the essential roles and functions of FDA Centers and Offices responding to a 

WHO alert or pandemic phase of an influenza pandemic. An essential employee is one who supports the 

accomplishment of a Center or Office’s pandemic influenza essential functions. Centers and Offices have 

provided descriptions of their pandemic influenza essential functions for inclusion in this Pandemic 

Influenza Annex. For an employee to be considered essential to the accomplishment of pandemic 

influenza essential functions, the employee need not to be assigned work solely related to pandemic 

influenza response. 

FDA Centers and Offices work closely with OC and with industry and government partners to ensure the 

safety and efficacy of products for human use to prevent, diagnose, and treat the public health effects of 

pandemic influenza in the United States or worldwide, using novel and expeditious approaches to product 

regulation for optimized availability and use in all populations. During a pandemic response, issues may 

arise that involve more than one Center or Office. The Centers and Offices listed in this annex have 

additional tasks in supporting command and control operation during a pandemic that were not identified 

in the FDA EOP. 

FDA Product Centers 

FDA product Centers are responsible for the regulation of a defined set of products. Their professional 

staff includes both clinical and scientific experts. This expertise (analytical, laboratory, sampling 

procedures, subject matter expertise, and industry knowledge) is available for critical consultation should 

a pandemic influenza emergency occur. The National Center for Toxicological Research (NCTR) 

primarily conducts regulatory and applied research based on agency needs. 

During an influenza pandemic, Centers are responsible for scientific evaluations and policy decisions (in 

cooperation with the FDA Emergency Operations Center [EOC], OCET, and ORA) in their respective 

program areas. FDA product Centers participate in an emergency response when the response includes, or 

may include, regulatory activities or products under their jurisdiction. 

Common Center Pandemic Influenza Response Activities 

Alert Phase and Pandemic Phase 

• Increase monitoring of the safety and effectiveness of pandemic influenza medical countermeasures. 

• Manage Center responsibilities. 

• Provide administrative support services (e.g., information technology [IT]/Internet/local area 

network [LAN]/database, telephones, safety/security, budget execution, personnel, procurement, 

payroll, facility management, mail). 

• Post and maintain critical information on Center home page. 

• Examine all domestic/foreign travel and restrict if necessary. 

C.1 OFFICE OF THE COMMISSIONER 

Several organizational components within OC will play a significant role in supporting the agency’s 

emergency response to a pandemic, such as OCET, and the Office of External Affairs (OEA). In addition, 

other OC offices, such as the Office of the Chief Counsel (OCC), Office of International Programs (OIP), 

and Office of Operations (OO) [Office of Financial Management (OFM) and Office of Information 

Management and Technology (OIMT), Office of Security, and Emergency Management (OSEM)], can 

provide valuable assistance during FDA’s response to a pandemic influenza emergency. A number of 

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agency officials will be considered essential employees specific to influenza pandemic emergency 

response activities. They include the following: 

OC Essential Employees 

 Chief Counsel  Deputy Commissioner for International Programs 

 Chief of Staff − Associate Commissioner for International 

 Deputy Commissioner for Policy and Planning Programs 

− Assistant Commissioner for Planning  Chief Operating Officer 

− Assistant Commissioner for Policy − Director, Office of Budget 

 Associate Commissioner for Special Medical 

Programs 

− Director, OFM 

− Director, Office of Financial Services 

 Associate Commissioner for External Affairs 

− Assistant Commissioner for External Affairs 

− Assistant Commissioner for Media Affairs 

− Chief Information Officer 

− Director, Office of Human Resources 

− Director, OSEM 

 Deputy Commissioner for Foods − Director, Office of Security Operations 

− Associate Commissioner for Food Protection − Director, OEM 

− Chief Medical Officer and Director of Outbreaks  Associate Commissioner for Regulatory Affairs 

− Senior Advisor to Director of Outbreaks  Director, Center for Biologics Evaluation and 

 Chief Scientist and Deputy Commissioner for Science Research 

and Public Health  Director, Center for Drug Evaluation and Research 

− Assistant Commissioner for Counterterrorism and 

Emerging Threats  Director, Center for Devices and Radiological Health 

 Director, Center for Food Safety and Applied Nutrition 

 Director, Center for Veterinary Medicine 

 Director, NCTR 

In addition, it is expected that each Center and Office will maintain a detailed list of essential employees, 

to include necessary support staff for the essential employees. The detailed lists of essential employees 

will be responsible for the agency’s continuity of business during an influenza pandemic and should be 

provided to OO. 

C.1.1 Office of the Chief Counsel 

OCC Essential Employees 

Associate General Counsel 

Deputy Chief Counsel 

Deputy Chief Counsel for Program Review 

Deputy Chief Counsel for Litigation 

Associate Deputy Chief Counsel for Drugs and Biologics 

Associate Deputy Chief Counsel for Devices, Food, and Veterinary Medicine 

Associate Deputy Chief Counsel for Litigation 

Executive Officer 

Senior Attorney 

One from each of these teams: 

Counseling Litigation 

Animal Products Criminal 

Biologics Civil 

Devices 

Drugs 

Foods 

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OCC provides legal services involving the agency’s regulatory activities. FDA lawyers support the 

agency’s public health and consumer protection missions in two primary ways: handling litigation and 

providing counseling advice. OCC performs the same functions mentioned in the FDA EOP to support 

FDA’s response to an influenza pandemic. 

C.1.2 Office of Legislation 

OL Essential Employees 

Assistant Commissioner for Legislation 

Senior Advisor 

Supervisory Congressional Affairs Specialist 

Congressional Affairs Specialist (2) 

The Office of Legislation (OL) provides Congress with information related to FDA’s pandemic influenza 

response activities. OL performs the same functions described in the FDA EOP to support FDA’s 

response to an influenza pandemic. 

C.1.3 Office of Policy and Planning 

The Office of Policy and Planning (OPP) is responsible for advising the Commissioner and other key 

agency officials on matters relating to FDA policies, rulemaking, and budgetary matters. 

C.1.4 Office of External Affairs 

OEA Essential Employees 

Associate Commissioner for External Affairs 

Deputy Director, Operations for External Affairs 

Senior Management Officer 

OEA works with outside groups in providing information related to FDA’s pandemic influenza response 

activities and ensures up-to-date public health advice and guidance is provided to consumers and targeted 

audiences. 

C.1.4.1 Web and Digital Media Staff 

OMA/Web and Digital Media Staff Essential Employees 

Director, Web and Digital Media Staff 

Senior Advisor/Public Affairs Specialist 

Visual Information Specialist 

Program Analysts 

Technical Information Specialist 

The OC Web and Digital Media Staff oversees the content, design, and management of FDA’s external 

website (www.fda.gov). OC Web and Digital Media Staff performs the same functions described in the 

FDA EOP to support FDA’s response to an influenza pandemic. 

July 2019 PI Annex–11 Pandemic Influenza Annex 
 

 

 

 

 

 

FDA Emergency Operations Plan 

C.1.4.2 Office of Communications 

Office of Communications Essential Employees 

Assistant Commissioner for Communications 

Deputy Director 

Visual Information Specialist 

Writer/Editors 

Program Analyst 

• Collaborate with the FDA Office of Media Affairs (OMA), HHS, Assistant Commissioner for 

Communications, and the Deputy Assistant Commissioner for Communications to protect 

consumer well-being and decrease the risk of illness, disease, or death by ensuring that the 

official influenza pandemic messages of the USG reach FDA stakeholders. 

• Develop and distribute Consumer Update articles that will help stakeholders and their audiences 

prepare for and manage pandemic influenza issues. 

• Ensure Office of Communications staff is prepared for operations, as needed, including 

operations from staff members’ homes and other offsite locations as necessary. 

C.1.4.3 Office of Media Affairs/Media Relations 

OMA Essential Employees 

Assistant Commissioner for Media Affairs 

Supervisory Public Affairs Specialist 

Program Support Specialist 

Press Officer 

OMA serves as FDA’s primary liaison with the news media and develops much of the material FDA uses 

to communicate its public health and consumer protection messages to the public. OMA performs the 

following essential functions to support FDA’s response to an influenza pandemic: 

• Collaborate with the HHS Office of the Assistant Secretary for Public Affairs (ASPA) on, and 

ensure appropriate integration with, the official influenza pandemic messages of the USG 

(www.flu.gov). 

• Maintain and update emergency/after-hours SOPs and contact lists for essential media relations 

personnel throughout FDA. 

• Ensure SOPs involving clearance of communications materials include clear indicators of when 

materials are ready for release and who has the authority to approve those indicators; collaborate 

with FDA Center communications staffs to develop boilerplate talking points that will allow 

quick messages to be released. 

• Develop emergency backup plan that clearly indicates the primary contact, secondary contact, 

and contacts-on-deck in case of sickness, infrastructure failure, or other instances of 

unavailability. 

• Ensure OIMT has assessed the technical infrastructure and is prepared for 24 hours a day, 

7 days a week (24/7) operations, operations from staff members’ homes, and other offsite 

locations. 

July 2019 PI Annex–12 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

C.1.4.4 Office of Health and Constituent Affairs 

Office of Health and Constituent Affairs Essential Employees 

Director, Office of Special Health Issues 

Deputy Director 

Medical Advisor 

Technology Information Specialist 

Program Analyst 

• Advise the Commissioner and other key FDA officials on matters related to patients, patient 

advocacy, health professionals, consumers, State and Federal activities, and industry issues. 

• Assist in the planning, administration, development, and evaluation of FDA policies related to 

patient advocacy and health professional organizations, consumers, States, and industry on 

serious and life-threatening issues. 

• Serve as a liaison between FDA and stakeholder organizations to educate various constituents on 

FDA-related issues and activities. 

• Collaborate with FDA, HHS, and health professional and patient advocacy organizations to 

ensure the official influenza pandemic messages of the USG reach health professional and patient 

advocacy organizations. 

• Deliver and distribute health professional articles that will help stakeholders and their audiences 

prepare for and manage pandemic influenza issues. 

• Organize teleconferences to inform stakeholders of topics of interest for pandemic influenza (e.g., 

EUAs, shortages, compounding). 

• Ensure staff is prepared for operations, as needed, including operations from staff members’ 

homes and other offsite locations, as necessary. 

C.2. OFFICE OF THE CHIEF SCIENTIST 

OCS Essential Employees 

Chief Scientist and Deputy Commissioner for Science and Public Health 

The Office of the Chief Scientist (OCS) serves as the agency’s focus for scientific, medical, and related 

activities within OC. 

C.2.1 Office of Counterterrorism and Emerging Threats 

OCET Essential Employees 

Assistant Commissioner for Counterterrorism and Emerging Threats 

Deputy Director, OCET 

Director, Medical Countermeasures Initiative Regulatory Policy 

Senior Advisor for Influenza 

Senior Program Manager, Office Emergency Response Coordinator 

OCET works with FDA’s medical product Centers to ensure the availability of medical countermeasures 

that can improve survival and mitigate and treat injuries from pandemic influenza. In addition to the 

functions outlined in the FDA EOP Base Plan, OCET coordinates and advises senior FDA officials on the 

portfolio of FDA influenza medical countermeasures through the FDA Pandemic Influenza Task Force. 

These include pandemic influenza vaccines, antiviral drugs, diagnostics, medical devices, and PPE such 

as facemasks and respirators. 

July 2019 PI Annex–13 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

C.3 OFFICE OF OPERATIONS 

OO Essential Employees 

Deputy Commissioner for Operations/Chief Operating Officer 

Director, Office of Equal Employment Opportunity and Diversity Management 

Director, Employee Resource and Information Center 

Director, Division of Technical Services 

Director, Office of Business Operations and Human Capital Programs 

Director, Division of Facilities Engineering and Mission Support Services 

Associate Director, Division of Planning Engineering and Space Management 

Associate Director, Division of Operations Management and Community Relations 

Director, Office of Human Resources 

Associate Director for Operations, Office of Human Resources 

Associate Director for Human Capital, Office of Human Resources 

Director, Client Services Division, Office of Human Resources 

Director, Workforce Relations Division, Office of Human Resources 

Director, OSEM 

Director, OSO 

Safety and Occupational Health Manager 

Director, OEM 

OO provides executive direction, leadership, coordination, and guidance for the day-to-day operations of 

FDA; manages overall budgets and resources; and oversees management and business activities agencywide as well as OC. OO also ensures proper conduct of FDA’s administrative and financial management 

activities including security and emergency managment. 

OO will provide workforce guidance and support to FDA Offices and Centers during a pandemic influenza emergency so that the agency’s essential functions can continue with a potentially reduced number 

of employees. OO performs the following essential functions to support FDA’s response to an influenza 

pandemic: 

• Office of Business Services (OBS). The Employee Resource and Information Center (ERIC) 

staff will provide critical support to FDA personnel, Offices, and Centers during a pandemic 

influenza emergency, including: 

− Fleet Services: Ensuring essential ground transportation/fleet is available and accessible to 

meet critical needs. 

− Mail Services: Ensuring critical mail pick-up and delivery. 

− Call Center support for critically needed administrative services. 

• Office of Facilities Engineering and Mission Support Services (OFEMS). OFEMS will ensure 

FDA facilities are safe and available for FDA staff. Temporary facilities may be acquired if 

necessary. Flexibility should be built into current leases and/or custodial contracts to address 

cleaning and maintenance of facilities’ needs in the event of an emergency and/or have adequate 

supplies on hand such that FDA employees can perform these types of activities themselves, such 

as: 

− Building, operations, and maintenance 

− Alterations to FDA space 

− Real estate management (leasing) 

July 2019 PI Annex–14 Pandemic Influenza Annex 
 

 

 

 

FDA Emergency Operations Plan 

OO Response Activities 

Alert Phase 

• Interact with HHS as appropriate. 

• Provide active internal planning for pandemic preparedness, including review and communication 

of OO’s pandemic influenza emergency response plan (ERP) to OO employees, ensuring 

essential personnel are equipped with necessary requirements to complete essential functions 

from decentralized worksites. 

• Conduct disaster response training and scenario walkthroughs. 

• Work with other FDA components to ensure emergency plans are ready and tested. 

• Coordinate training for agency staff regarding prevention (e.g., PPE, social distancing, hygiene) 

and emergency operating procedures. 

• Provide information to staff on personal hygiene and prevention. 

• Coordinate phone numbers and services with building leasers, property management vendors, and 

contractors to verify their plans during the pandemic phase (i.e., backup contract services). 

• Ensure essential personnel are equipped with necessary equipment to work from alternative 

locations, if possible. 

• Advise employees planning leave or travel to take laptop computers home. 

OO Response Activities 

Pandemic Phase 

• Perform all interpandemic phase and alert phase activities as appropriate and if requested by 

HHS. 

• To the extent possible, activate and implement OO pandemic influenza Continuity of Operations 

(COOP) Plan as appropriate. 

• Serve as agency liaison to HHS in obtaining appropriate medical countermeasures such as 

vaccines, antivirals, and PPE for agency staff. 

• Address the health and safety of staff, in particular essential staff, that may not have the option 

for teleworking by providing countermeasures through occupational health services if necessary. 

• Manage coordination of timekeeping functions and liaise with the Rockville Human Resources 

Center (RHRC) and the Program Support Center [PSC] to ensure FDA employees continue to 

receive compensation. 

• Ensure key vendors are paid for their services to prevent termination of essential services and 

supplies, potentially damaging the FDA pandemic response capability. 

• Ensure the FDA building closures and reopenings are updated in ERIC and posted on FDA’s 

intranet as circumstances warrant. 

• Ensure well-being of staff, and particularly essential staff, personnel who may not have the option 

for teleworking. 

• Ensure critical administrative functions are supported through the Call Center. 

July 2019 PI Annex–15 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

C.3.1 Office of Finance, Budget, and Acquisition 

C.3.1.1 Office of Budget 

OB Essential Employees 

Director 

Deputy Director 

Financial Advisor 

Senior Analyst 

In the event of pandemic influenza, FDA will likely need a supplemental budget request to support 

unforeseen expenses during this critical time. The Office of Budget (OB) will facilitate this process by 

working with senior management and Centers/Offices to identify resource needs, implementing the 

process to formulate the budget request, providing essential support during the review and clearance 

process, and responding to questions from congressional and other stakeholders. 

Staffing needs will vary, based on the amount of information that OB will need to obtain and the level of 

analysis that is necessary. OB will likely be able to formulate a supplemental request with about three to 

four OB staff. 

If OB is debilitated by the pandemic, it can either work with the budget analysts at HHS to assist in 

facilitating the supplemental budget request or use the FDA Center analysts (if available), some of whom 

have worked with OB in some capacity. 

Because a supplemental budget request can have numerous variables and a supplemental request must be 

reviewed and cleared very quickly, it is difficult to provide expanded services without an additional level 

of investment. A supplemental budget request must be completed in its entirety. 

In the event of an influenza pandemic, the budget liaison function is an essential activity to communicate 

budget needs and information. OB will facilitate that process by conducting outreach and coordinated 

communications, gathering information, and communicating with senior FDA management, Centers and 

Offices, HHS, Office of Management and Budget (OMB), and congressional staff. 

Staffing needs will vary based on the situation; however, three to five OB analysts can facilitate the 

liaison process using several different channels. During an influenza pandemic, the basics of the budget 

liaison function can be done with OB at half the level of staffing. 

Quality of work, timeframes, and milestones may slip as a result of reduced staffing. The quality and 

consistency control function will be important to support any budget proposals and budget information 

provided to others in FDA, the Administration, Congress, and stakeholders. OB will facilitate that process 

by using OB historical data repositories. 

Staffing needs will vary based on the situation; however, the quality level of review will depend upon the 

number of available staff. 

If OB is debilitated by an influenza pandemic, it will then work with some of the Center analysts to 

review budgetary documents for quality and consistency. OB can provide training to Center analysts on 

how it performs its quality and consistency functions, such as cross-checking budget documents and 

numbers. 

OB Response Activities 

Alert Phase 

• Track pandemic influenza budget requests and appropriations. 

• Respond to questions from Congress and stakeholders. 

July 2019 PI Annex–16 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Analyze the adequacy of the FDA budget to prepare for pandemic influenza. 

• Align annual budget requests to meet pandemic influenza obligations. 

• If necessary, develop and advance a supplemental budget request to support unforeseen expenses 

related to preparing for an influenza pandemic. 

OB Response Activities 

Pandemic Phase 

• Perform all pandemic alert activities as appropriate. 

C.3.1.2 Office of Acquisitions and Grants Services 

OAGS Essential Employees 

Director, OAGS 

Associate Director, OAGS 

Director, Division of Acquisition Support and Grants 

Director, Division of Acquisition Programs 

Director, Division of Acquisition Operations 

Director of Information Technology 

The Office of Acquisitions and Grants Services (OAGS) will ensure appropriate support services and 

supplies are acquired to support the agency’s response to the pandemic. These include, in priority order: 

1. Purchase Cards (P-cards) (formerly International Merchant Purchase Authorization Card 

[IMPAC]). OAGS manages the program and serves as the central point of contact (POC) between 

FDA and the central bank. Program offices use P-cards to make micropurchases (less than 

$3,000). In the event of an emergency, certain OAGS employees will also have P-cards with 

higher transaction limits. 

2. Simplified Acquisitions. OAGS awards these through warranted contracting officers. The bulk 

of FDA’s acquisitions are purchase orders. There are fewer statutory requirements associated 

with these than with contracts, which makes them easier and faster to award than contracts. In the 

event that the OAGS workforce is drastically reduced or it is impossible to come into the office 

(e.g., under quarantine, caring for sick a family member), simplified acquisitions should be 

awarded whenever possible. Although the limit for a simplified acquisition is generally $100,000, 

this threshold may be raised to $250,000 in the event that a contingency operation is declared by 

the President, the Secretary of Defense, or a designee. Additionally, commercial items worth up 

to $5 million can be bought using simplified acquisition procedures. The absolute number of 

purchase orders will probably decrease or stay the same even if the simplified acquisition 

threshold is raised. 

3. Contracts. OAGS contracting officers negotiate, award, and administer contracts. Whenever an 

acquisition exceeds the relevant simplified acquisition threshold, goods and services must be 

purchased using contracts. Contracts typically take longer than simplified acquisitions to award, 

but there are procedures, such as limiting competition on the basis of unusual and compelling 

urgency, that can accelerate the process. 

4. Interagency Agreements (IAGs). OAGS negotiates and is responsible for all administrative and 

business-related matters associated with IAGs between FDA and other Federal agencies. In the 

event of severely reduced staffing, it is likely that agencies will need to leverage the resources of 

other offices. FDA may leverage the resources of other agencies (e.g., reaching out to other HHS 

OPDIVs to take over exceptionally critical FDA functions) if FDA’s staff is too small to handle 

July 2019 PI Annex–17 Pandemic Influenza Annex 
 

 

 

 

 

FDA Emergency Operations Plan 

them independently. OAGS will ensure it has sufficient staff with the knowledge to execute and 

administer IAGs. 

5. Grants. OAGS administers FDA’s grant program. In the event of an emergency, grants may be 

awarded for research or education activities that support FDA’s pandemic influenza response 

work. 

6. Technology Transfer. Technology transfer encourages partnerships for collaborative research. 

This strengthens FDA’s research efforts and increases resources for mission-related projects. In 

the event of a pandemic, this is less of a priority than ensuring that mission-critical programs have 

the supplies they need. 

C.3.1.3 Office of Financial Operations 

C.3.1.3.1 Office of Financial Management 

OFM Essential Employees 

Director, OFM 

Business Continuity Coordinator (Ancillary Duty) 

Division Director, Financial Support Services 

Division Director, Budget Execution 

Division Director, Accounting 

Division Director, Business Transformation, Administration and Management 

C.3.2 Office of Information Management 

OIMT Essential Employees 

Chief Information Officer 

Deputy Chief Information Officer 

Director of Division of Business Partnership and Support 

Deputy Director of Division of Business Partnership and Support 

Director of Division of Chief Information Officer Support 

Deputy Director of Division of Chief Information Officer Support 

Director of Division of Infrastructure 

Deputy Director of Division of Infrastructure 

Director of Division of Systems 

Deputy Director of Division of Systems 

Director of Division of Technology 

Deputy Director of Division of Technology 

OIMT enables FDA’s strategic efforts to transform and improve IT systems and infrastructure needed to 

support critical agency operations. OIMT performs the following essential functions to support FDA’s 

response to an influenza pandemic: 

• Implementing and enhancing common IT systems to support FDA’s response to an influenza 

pandemic. 

• Maximizing the availability and use of IT that increases electronic access for the public, as well 

as the full span of FDA’s other external (e.g., public consumers, industry, government, academic) 

and internal customer bases, while maintaining effective security. 

• Aligning IT investments to agency pandemic influenza response work. 

July 2019 PI Annex–18 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Consolidating, modernizing, and optimizing FDA’s IT infrastructure to strengthen its pandemic 

influenza response work. 

• Providing the platform required for FDA to meet agency-wide IT initiatives for pandemic 

influenza response. 

OIMT Response Activities 

Alert Phase and Pandemic Phase 

During an influenza alert and pandemic phases, OIMT tactical activities will include: 

• Command and Control of Reporting Offices. OIMT will define and manage the emergency 

while ensuring the operations of the Center and Office are maintained as required (Levels 1 to 3) 

and essential functions are maintained (Level 4). 

• Computer Room Facilities. OIMT will ensure the computer room facilities function and will 

coordinate with PSC and building management. If cooling, generator, and power services are not 

available to the Parklawn Data Center, then all IT resources in the data center are also not 

available. 

• IT Security Services. OIMT will ensure IT security services are available that are essential to 

protect FDA’s IT assets. Increased attacks on FDA’s IT resources are likely during a perceived 

time of weakness. Personnel will focus their efforts on security measures, such as firewall 

connectivity and others, ensuring that security controls for hardware, software, and 

telecommunications are effective and protect privacy, confidentiality, and availability of FDA 

data. Personnel will monitor firewall, intrusion detection, anti-malware, and security controls for 

critical and high-impact FDA systems, providing incident response of those potential issues that 

would have a severe impact on FDA operations. These services are dependent on the computer 

room facilities. 

• LANs and Wide Area Networks (WANs). OIMT will ensure the availability of LANs/WANs 

that will be critical for both field and local users to access agency IT resources. Demand may be 

reduced due to fewer numbers of employees in the office. This service is dependent on the 

computer room facilities and IT security services. Network teams will focus their support efforts 

on those buildings declared operational and will not monitor or respond to network failures in 

buildings that are unoccupied. Networking resources can be leveraged between the Network 

Control Center and the LAN team. 

• Internet Services. OIMT will maintain Internet services that are critical to the agency’s ability to 

communicate with regulated industry and provide access to FDA’s internal and external IT 

resources. The demand for these services will be greater because most staff will revert to 

accessing these resources remotely through the Internet. Services are dependent on outside 

vendors and the users’ local Internet service provider (ISP). Networking resources can be 

leveraged between the Network Control Center and the LAN team. If additional bandwidth is 

needed, the agency will request that the ISP increase bandwidth. During a pandemic event, any 

reengineering of the network and service segments will cease so that efforts are focused on 

supporting this service. 

• Active Directory. OIMT will ensure Active Directory availability as it provides authentication 

services when users log on to the FDA systems. Although the demand for this service may not be 

great, access to IT systems will not occur if this application is down. Active Directory is 

dependent on computer room facilities, IT security services, LAN/WAN, and Internet services. 

July 2019 PI Annex–19 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Telephone. OIMT will ensure telephone availability, which is a critical need. It is estimated that 

voice and video services will increase. Within government facilities, usage will increase 

substantially with the possibility of employees being ill and more working from home during a 

pandemic phase. This service is dependent on computer room facilities; IT security services; 

LAN/WAN networks; Internet services; local exchange carriers; Verizon; and the National 

Institutes of Health (NIH), which manage the Parklawn voice switch. This function is covered by 

two groups that manage Integrated System Digital Network (ISDN) and Voice over Internet 

Protocol (VoIP). 

• Email/Cell Phone Services. OIMT will ensure COOP for FDA email and smartphone services. 

In addition to the growing demand for email and BlackBerry services, coordination of both 

services is critical because each service backs the other. As of October 2009, the FDA email 

system is no longer operated by HHS. This change will allow OIMT to improve service and 

COOP for both email and smartphone services. In the event of an email failure, expert support 

will troubleshoot and resolve outages. In addition to communications being sent out through 

email and BlackBerry services, alternate communication avenues will be used, including the FDA 

Internet, intranet, and recorded announcements at ERIC, to ensure necessary information is 

communicated to employees. These alternate communication vehicles are dependent on computer 

room facilities (Parklawn Data Center), IT security services, LAN/WAN, Internet services, local 

exchange carriers, Verizon, NIH (which manages the Parklawn voice switch), and smartphone 

Personal Identification Number (PIN)-to-PIN services. There may be a need to have an adequate 

supply of additional smartphone devices to distribute to essential personnel during an influenza 

pandemic. 

• Outlook Web Access (OWA). OIMT will monitor the availability of OWA, since this is another 

method of accessing FDA email from non-FDA-issued computers that have access to the Internet. 

In order to use OWA, users will need their Remote Secure Access (RSA) SecureID token. OWA 

gives FDA employees greater freedom to access their email from most personally owned or 

public-access personal computers (PCs) because it does not require that the computer be FDAissued or that a connection be made to the FDA network. 

• Help Desk Services. OIMT will manage and maintain Help Desk services where demand is 

expected to increase substantially as the agency executes its response plans. Although most 

problems may be resolved remotely, there will be fewer onsite Help Desk technicians available 

for support within FDA buildings. There will also be a great demand from remote logon users 

who have not logged into the systems in more than 6 months. An estimated 1:200 person ratio 

will be needed to service users. These services are dependent on building closures, numbers of 

users who are working in the office, and numbers who are working from home or other alternate 

worksites. 

• Secure Remote Access System (SRAS) Infrastructure. OIMT will ensure a SRAS 

infrastructure that will support 3,000 concurrent broadband users and about 350 dial-in users, 

although these numbers will increase as funding is increased. Once an order is given to shelter at 

home, there will be a very high demand for SRAS and, consequently, a likely surge overcapacity 

for dial-in service and considerable stress on broadband bandwidth. Dial-in service is not the 

recommended method of remote access due to the slow performance associated with this 

connection. This service is dependent on all essential IT infrastructure components being online, 

the users’ local ISP, and the telephone company having enough capacity to support the demand. 

• Storage Management. There are many FDA applications that will need access to data storage 

devices. OIMT staff may have limited capabilities to respond to all demands. A prioritized list of 

all applications will need to be derived to ensure adequate support of key applications. 

July 2019 PI Annex–20 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Application Services. Users will have to access FDA applications during a pandemic outbreak. 

OIMT staff may have limited capabilities to respond to all of the demands. A prioritized list of all 

applications will need to be derived to ensure adequate support resources are available. Support 

for this service will be dependent on the number of critical applications needed to support a 

response to a pandemic outbreak. Once those applications are determined, a support plan will be 

published that identifies the servers and storage devices that will need support. Additionally, there 

are other applications, although not directly supporting a pandemic outbreak, that will need to be 

supported, such as the Prior Notice System. These services are dependent on all critical IT 

resources being operational. Because the www.fda.gov website is hosted externally, OIMT will 

need to coordinate with the vendor to ensure continuity of service. 

• File/Print Services. File and print services are dependent on accessibility to the network drive 

and will be dependent on all critical IT resources being operational. OIMT will work diligently to 

ensure all network drives and printers are accessible. However, there may be times, such as 

during a scheduled or emergency maintenance outage, that certain network drives and printers 

will not be available. To ensure employees have access to files and documents necessary to carry 

out their duties at all times, OIMT explores secure technologies, such as the IronKey device, that 

will allow employees to save and retrieve documents and files securely to and from an external 

drive. 

• Communication Services. OIMT will continue communication services that are essential for 

overall information dissemination as well as for technical and project management during a 

pandemic influenza event. Technical IT operations information, currently issued through the 

OIMT News and Flash accounts, will continue to provide information on status and outages to 

users. OIMT can leverage the other communication officers in OO. Announcements via email are 

dependent on HHSMail services. 

• Contracts/Procurements Coverage. OIMT will ensure coverage for contracts/procurements that 

are essential, as there may be a need to procure additional contract services or hardware/software 

components. This function, although important, may be performed by another OM component. 

This service is dependent on the availability of OAGS and key OIMT staff. OIMT can leverage 

other organizations to handle agency procurement needs. 

• Critical Patch Management. Patches reduce or correct IT security threats or system problems. 

All efforts will be made to identify and apply patches that will address the most critical security 

vulnerabilities. All others will be prioritized and applied at the earliest convenience. This service 

is dependent on test servers and the availability of the network and server teams to load the 

patches. 

C.3.3 Office of Security and Emergency Management 

C.3.3.1 Office of Emergency Management 

OEM Essential Employees 

Director, Office of Emergency Management 

Director, Office of Emergency Operations (OEM/OEO) 

Special Assistant to OEM Director 

Office of Emergency Operations Staff Supervisor (2) 

Emergency Coordinator (4) 

July 2019 PI Annex–21 Pandemic Influenza Annex 
 

 

 

 

 

FDA Emergency Operations Plan 

OEM consists of the OEM Director (and staff) and the Office of Emergency Operations (OEO). OEM and 

OEO are responsible for developing crisis and emergency management policies and procedures and 

managing agency emergencies when they occur. OEM manages the FDA EOC. 

OEM Response Activities 

Alert Phase 

• Maintain situational awareness of U.S. and worldwide pandemic influenza cases. 

• Serve as agency focal point for coordination of all emergency response activities. 

• Manage the agency’s EOC and activate as needed. 

• Manage the EON-IMS to provide agency officials access to large volumes of data related to 

pandemic events. 

• Create geographic information system (GIS) maps to enhance response activities. 

• Manage FDA’s national Consumer Complaint Reporting system. 

• Provide incident command training to OEM staff and other agency staff involved in emergency 

response activities. 

• Participate in external emergency exercises, including pandemic influenza, and coordinate 

internal FDA exercises, including pandemic influenza. 

• Participate in and support HHS Office of the Assistant Secretary for Preparedness and Response 

pandemic influenza planning activities. 

• Identify agency pandemic influenza needs and goals in an agency priority setting process. 

• Lead and/or assist in the development and implementation of FDA strategy for pandemic 

influenza. 

• Lead the emergency preparedness and response component of the FDA Pandemic Influenza 

Preparedness Task Force. 

• Lead the development of agency-wide pandemic influenza plans. 

• Advise senior FDA officials on preparedness requirements for pandemic influenza. 

• Provide updates to the Commissioner, other senior agency officials, and agency emergency 

coordinators regarding DHS, HHS, and Centers for Disease Control and Prevention (CDC) 

preparedness activities for potential U.S. pandemic influenza cases. 

• Develop plans for FDA’s EOC and prepare for possible activation of an Incident Management 

Group (IMG). 

OEM Response Activities 

Pandemic Phase 

• Perform all pandemic alert activities as appropriate. 

• Give priority attention to pandemic influenza-related work and life-threatening/sustaining work 

associated with each of the activities listed above for pandemic alert phases. 

• Communicate with other Federal, State, and local governments as they request technical and 

material support from FDA, and coordinate the agency’s response to the requests. 

July 2019 PI Annex–22 Pandemic Influenza Annex 
 

 

 

 

FDA Emergency Operations Plan 

• Provide FDA liaison to HHS Secretary’s Operations Center (SOC) or other Federal EOCs as 

needed. 

• Provide daily Situation Reports (SitReps) to the HHS SOC. 

• Represent FDA on the HHS ESF #8 Pandemic Influenza Planning Group. 

• Establish the FDA IMG. 

• Provide leadership for Planning and Operations Sections of IMG. 

• Expedite triaging of incoming consumer complaints for adverse events associated with FDAregulated products intended for preventing, treating, mitigating, or containing pandemic 

influenza. 

• Provide guidance on proper handling, marking, processing, and storing of classified pandemic 

influenza materials. 

• Work with OO/OSEM/Office of Security Operations (OSO) to verify security clearances for FDA 

liaisons working at other government EOCs, liaisons from other agencies working in FDA’s 

EOC, and FDA staff working at Joint Operations Centers (JOCs) in the field. 

C.4 OFFICE OF FOODS AND VETERINARY MEDICINE 

Office of Foods Essential Employees 

Deputy Commissioner for Foods 

Associate Commissioner for Food Protection 

Chief Medical Officer and Director of Outbreaks 

Senior Advisor to Director of Outbreaks 

C.4.1 Center for Food Safety and Applied Nutrition 

CFSAN Essential Employees 

Center Director 

Deputy Directors 

Director, Office of Management Systems 

Director, Office of Food Defense Communication and Emergency Response 

Office Directors 

CFSAN COOP Leader 

The Center for Food Safety and Applied Nutrition (CFSAN), in conjunction with the agency’s field staff, 

is responsible for promoting and protecting the public’s health by ensuring that the Nation’s food supply 

is safe, sanitary, wholesome, and honestly labeled and that cosmetic products are safe and labeled 

properly. CFSAN has the authority to regulate establishments that manufacture, process, pack, hold, or 

grow food involved in interstate commerce, including manufacturers, distributors, and warehouses. It also 

determines whether data collected by another agency or organization are adequate for FDA decisions 

regarding food and cosmetic issues in an emergency. CFSAN performs the following essential functions 

to support FDA’s response to an influenza pandemic: 

• Develop and evaluate analytical methods for identifying influenza virus in foods. 

• Prohibit the extra-label use of influenza antiviral drug products in animals when such use presents 

a risk to the public health. 

July 2019 PI Annex–23 Pandemic Influenza Annex 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

CFSAN Response Activities 

Alert Phase 

• Develop and evaluate analytical methods for identifying influenza in food. 

• Identify foods and feeds that are at elevated risk of contamination and investigate the 

effectiveness of food and feed processing and preparation practices for inactivating influenza 

viruses. 

• Develop and disseminate recommendations on measures to prevent the spread of influenza virus 

via FDA-regulated foods. 

• Activate internal planning for pandemic preparedness, including the establishment of a pandemic 

influenza ERP (i.e., identifying essential functions, identifying essential personnel with adequate 

tiers for redundancy, and equipping essential personnel with necessary requirements to complete 

essential functions from decentralized worksites). 

• Coordinate food and feed safety activities and plans with Federal and State agencies, industry, 

and others. 

• Food safety activities, including surveillance, inspections, and monitoring. 

• Disseminate accurate information about food safety emergencies, which is vital to minimize the 

adverse impacts of threats or public health emergencies. 

CFSAN Response Activities 

Pandemic Phase 

Perform all pandemic alert activities as appropriate and if requested by HHS and the Homeland Security 

Council (HSC): 

• To the extent possible, activate and implement the CFSAN ERP as appropriate. 

• Inventory human capital and determine the well-being of staff. 

• Focus the Center’s remaining workforce on issues related to products associated with the ongoing 

situation; significant focus on ensuring food security, safety, and defense. 

• Conduct outreach to the public, industry, foreign public health authorities, and other stakeholders 

regarding food safety. 

• Provide cadre of trained CFSAN personnel for rapid deployment to the FDA EOC, to HHS, and 

to external organizations to provide support for contingency functions. 

C.4.1.1 Coordinated Outbreak Response and Evaluation 

CORE Essential Employees 

FDA Liaison to the CDC 

Prevention Manager 

Response Manager 

The Coordinated Outbreak Response and Evaluation (CORE) Network is responsible for managing foodborne outbreak surveillance, response, and post-response activities related to incidents involving multiple 

illnesses in the United States linked to FDA-regulated human and animal food and cosmetic products. 

During an influenza pandemic, the FDA liaison is responsible for working with the CDC for outbreak 

surveillance that may involve human or animal food. CORE as a multidisciplinary team may provide 

subject matter expertise, as needed, to the Centers. CORE would not coordinate or manage FDA’s 

July 2019 PI Annex–24 Pandemic Influenza Annex 
 

 

 

 

FDA Emergency Operations Plan 

response. If the agency activates the FDA EOC, CORE may provide resources, to the extent possible, to 

support the agency’s incident management response. 

C.4.2 Center for Veterinary Medicine 

CVM Essential Employees 

Center Director 

Executive Director 

Senior Advisor for Science 

Associate Director for Policy and Executive Programs 

Senior Policy Analyst and Director, CVM Executive Secretariat 

Director, CVM Communications Staff 

Executive Officer and Director, OM 

Director, Office of Surveillance and Compliance 

Director, Division of Animal Feeds 

Director, Division of Compliance 

Director, Office of Research 

Director, Office of New Animal Drug Evaluation 

The Center for Veterinary Medicine (CVM) ensures the safety, efficacy, and quality of drugs for animals, 

including food-producing and companion animals, animal food and feed, and medical devices used on 

animals potentially threatened by an influenza outbreak. CVM performs the following essential functions 

to support FDA’s response to an influenza pandemic: 

• Maintaining essential international program activities. 

• Collaborating with public health agencies (e.g., CDC, HHS, and the U.S. Department of 

Agriculture [USDA]) regarding feed contaminant, tissue residue programs, and other monitoring 

programs for meat and poultry involved in influenza outbreaks. 

• Providing advice in the assessment of animal drug or feed product possibly affected by influenza. 

• Providing advice to pet owners regarding animal safety measures related to influenza. 

CVM Response Activities 

Alert Phase 

• Coordinate food and feed safety activities and plans with Federal and State agencies, industry, 

and others. 

• Identify foods and animal feeds that are at elevated risk of contamination and investigate the 

effectiveness of food and feed processing and preparation practices for inactivating influenza 

viruses. 

• Prohibit the extra-label use of influenza antiviral drug products in animals when such use presents 

a risk to the public health. 

• Manage CVM laboratory capabilities and provide this information to the FDA EOC. 

• Develop and disseminate recommendations on measures to prevent the spread of influenza virus 

via FDA-regulated foods and animal feeds. 

CVM Response Activities 

Pandemic Phase 

• Perform all pandemic alert activities as appropriate. 

July 2019 PI Annex–25 Pandemic Influenza Annex 
 

 

 

FDA Emergency Operations Plan 

C.5 OFFICE OF MEDICAL PRODUCTS AND TOBACCO 

C.5.1 Office of Special Medical Programs 

OSMP Essential Employees 

Associate Commissioner Special Medical Programs 

C.5.1.1 Office of Combination Products 

OCP Essential Employees 

Director 

General Attorney (2) 

Biologist (2) 

The Office of Combination Products (OCP) ensures the prompt assignment of combination products to 

FDA Centers, the timely and effective premarket review of such products, and consistent and appropriate 

post-market regulation of like products subject to the same statutory requirements to the extent permitted 

by law. OCP performs the same functions mentioned in the FDA EOP to support FDA’s response to an 

influenza pandemic. 

C.5.2 Center for Drug Evaluation and Research 

CDER Essential Employees 

Center Director 

Deputy Director 

Director, Office of Regulatory Policy 

Director, Office of Communications 

Director, Office of Strategic Programs 

Director, Counterterrorism and Emergency Coordination Staff 

Director, Office of Compliance 

Director, Office of Pharmaceutical Quality 

Director, Office of Surveillance and Epidemiology 

Director, Office of Translational Sciences 

Director, Office of New Drugs 

Deputy Director, Office of New Drugs 

Director, Office of Antimicrobial Products 

Associate Director, Drug Shortage Staff 

Director, Office of Management 

The Center for Drug Evaluation and Research (CDER) ensures the safety, efficacy, and quality of drugs 

and therapeutic biologic agents for use as medical countermeasures in response to outbreaks of an 

influenza virus. CDER performs the following essential functions to support FDA’s response to an 

influenza pandemic. 

CDER Response Activities 

Alert Phase 

• Perform drug approval activities (i.e., review of investigational and new drug applications, 

associated labelingand advertising, and guidance for field inspections). 

July 2019 PI Annex–26 Pandemic Influenza Annex 
 

 

 

 

 

FDA Emergency Operations Plan 

• Perform drug safety activities, including adverse event monitoring, drug product quality 

activities, and post-market surveillance. 

• Perform compliance activities, including regulatory surveillance assessments and actions and 

coordination of actions involving recalls, shortages, tampering, fraudulent or counterfeit products, 

and inspections. 

• Perform emergency response coordination/activities for all CDER-regulated products, liaison to 

the Strategic National Stockpile (SNS), maintenance of the CDER Situation Room (CSR), 

program responsibility for classified documents and security clearances, and coordination of 

EUAs. 

• Monitor for drug shortages. 

• Facilitate communication with manufacturers of pandemic influenza products on issues of availability, adverse event reporting, and potential new products. 

• Collaborate with HHS regarding stockpile issues, including labeling, appropriate usage, shelf-life 

and expired product considerations, product performance, pharmacovigilance and monitoring, use 

in special populations, and other evolving issues. 

• Process pre-EUAs in anticipation of declared emergencies. 

• Activate internal planning for pandemic preparedness, including the establishment of a Continuity 

of Operations Plan (COOP); identifying essential functions and essential personnel with adequate 

tiers for redundancy; and equipping essential personnel with necessary equipment/ 

procedures to complete essential functions from decentralized worksites. 

CDER Response Activities 

Pandemic Phase 

• Continue to perform drug regulatory review activities (i.e., review of investigational and new 

drug applications, associated labelingand advertising, and guidance for field inspections). 

• Perform all interpandemic phase and pandemic alert activities as appropriate and if requested by 

HHS and the HSC. 

• To the extent possible, activate and implement the CDER COOP, CDER Pandemic Administrative Operating Plan, and other ERPs as appropriate. 

• Inventory human capital and the capability of staff to work. 

• Focus the Center’s remaining workforce on issues related to products associated with the ongoing 

situation, significant life-saving products, and new generic drugs to prevent shortages and 

respond to significant adverse event incidents, EUA requests, and emergency response 

coordination issues. 

• Conduct public outreach to industry, foreign public health authorities, the public, and other stakeholders regarding availability and regulatory status of antiviral drugs. 

July 2019 PI Annex–27 Pandemic Influenza Annex 
FDA Emergency Operations Plan 

C.5.3 Center for Biologics Evaluation and Research 

CBER Essential Employees 

Center Director 

Deputy Director 

Associate Directors 

Emergency Operations Coordinator 

International Affairs Advisor 

Program Manager for Pandemic Influenza 

Senior Advisor for Counterterrorism/Medical Countermeasures 

Director, OM 

Director, Office of Vaccine Research and Review 

Director, Office of Blood Research and Review 

Director, Office of Compliance and Biologics Quality 

Director, Office of Communications, Outreach, and Development 

Director, Office of Biostatistics and Epidemiology 

Director, Office of Cellular, Tissue, and Gene Therapies 

CBER Office of Information Management Liaison 

The Center for Biologics Evaluation and Research (CBER) ensures the safety, efficacy, and quality of 

biological products potentially used as medical countermeasures during a pandemic influenza emergency. 

CBER performs the following essential functions to support FDA’s response to an influenza pandemic. 

CBER Response Activities 

Alert Phase 

• Participate, through the WHO Global Influenza Surveillance and Response System (GISRS) to 

obtain, identify, and characterize emergent influenza viruses with pandemic potential. 

• Work with WHO Collaborating Centres (CCs) and WHO Essential Regulatory Laboratories 

(ERLs) to generate, calibrate, and cross-calibrate reference reagents for vaccine formulation as 

necessary. 

• Continue internal capacity building efforts, including development of novel reassortants (animal 

H1, H2, H5, H7, H9, etc.) suitable for vaccine production, methods development to improve 

assays for clinical assessment, and assays necessary for product release. 

• Provide guidance to sponsors regarding new and/or advanced product development and clinical 

trials research, including novel vaccines and therapies. 

• Conduct post-marketing surveillance and enforcement activities relating to biological products in 

accordance with pandemic guidance as appropriate. 

• Industry outreach for purposes of increasing vaccine production and fill/finish capacity to meet 

pandemic demand. 

• Provide CBER management that will carefully examine all domestic and foreign travel to restrict 

if necessary. 

• Collaborate with HHS, other parts of the USG, and other international organizations, such as 

WHO, on the framework and method for appropriate selection of pandemic reference strains for 

vaccine production. 

July 2019 PI Annex–28 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Collaborate with HHS regarding stockpile issues, including labeling, appropriate usage, shelf-life 

considerations, product performance, pharmacovigilance and monitoring, use in special 

populations, and other evolving issues. 

• Provide active internal planning for pandemic preparedness, including the establishment of a 

pandemic influenza ERP and continual updates as needed, identifying essential functions and 

essential personnel with adequate tiers for redundancy, and equipping essential personnel with 

necessary requirements to complete essential functions from decentralized worksites. 

• To the extent possible, assess the availability of biological products and take steps to divert or 

mitigate the impact of shortages. 

• Provide training to staff regarding prevention (e.g., PPE, social distancing, hygiene) and 

emergency operating procedures. 

• Play an integral part in any global harmonization of regulatory processes within FDA’s existing 

framework for pandemic activities, should this be necessary. 

CBER Response Activities 

Pandemic Phase 

• Engage in pandemic activities as appropriate and if requested by HHS and the HSC. 

• To the extent possible, activate and implement the CBER Pandemic Influenza COOP Plan and 

other ERPs as appropriate. 

• To the extent possible, ensure well-being of staff and, particularly, essential staff personnel who 

may not have the option for teleworking (such as those involved in laboratory work supporting 

vaccine production, quality control, and release) by the provision of countermeasures through 

occupational health services in coordination with OC’s OM. 

• Respond to and process EUA requests after a declaration of public health emergency by the HHS 

Office of the Secretary. 

• Using a risk-based approach, prioritize allocation of review and inspectional resources for 

licensure and emergency use of medical countermeasures, as well as other essential activities that 

will confer the maximum and most beneficial public health impact. 

• Ensure timely information flow within CBER, as well as other organizations within the USG. 

• Facilitate dialogue and information exchange with industry and international entities, as well as 

participation in global efforts to develop consensus approaches, to the extent possible, for clinical 

trial designs and adverse event reporting that can guide vaccination strategies. 

• Conduct public outreach to domestic and foreign public health authorities, the public, and other 

stakeholders regarding pandemic vaccines and other biological products. 

July 2019 PI Annex–29 Pandemic Influenza Annex 
 

 

 

 

FDA Emergency Operations Plan 

C.5.4 Center for Devices and Radiological Health 

CDRH Essential Employees 

Center Director 

Deputy Director 

Senior Associate Director 

Director, Office of Management Operations 

Office Director, Office of Device Evaluation 

Office Director, Office of In-Vitro Diagnostic Device Evaluation and Safety 

Office Director, Office of Compliance 

CDRH COOP Leader 

Division Director, Division of Anesthesia General Hospital Infection Control and Dental Devices 

Office Director, Office of Surveillance and Biometrics 

Office Director, Office of Communication, Education, and Radiation Programs 

CDRH ensures the safety, efficacy, and quality of medical devices used during a pandemic influenza 

emergency. CDRH performs the following essential functions to support FDA’s response to an influenza 

pandemic. 

CDRH Response Activities 

Alert Phase 

• Educate device users on how to use influenza-related devices safely and effectively. 

• Communicate influenza-related device activities and information to industry and consumers. 

• Process pre-EUAs in anticipation of declared emergencies. 

• Facilitate device development, regulatory review, and production of devices that may be needed 

during an influenza pandemic. 

• Conduct post-market surveillance to monitor the safety and effectiveness of influenza-related 

devices (including devices used for diagnosis, devices used to administer therapeutics, PPE, and 

devices used for supportive care). 

• Lend technical expertise and assistance to international efforts to prepare for a potential influenza 

pandemic. 

• Support efforts to ensure an adequate supply of influenza-related devices through cooperative 

interactions with manufacturers and distributors and coordination with the SNS to determine the 

adequacy of stocks and actions required to meet targeted amounts. 

• Use an emergency shortages database to identify and monitor needed supplies. 

• Collaborate with public health agencies regarding product stockpile issues, appropriate usage, 

labeling, product performance, monitoring, use in special populations, and other evolving issues. 

• Collaborate with HHS regarding stockpile issues related to medical devices. 

• Activate internal plans for pandemic preparedness in regard to staff communication and 

readiness, including teleworking during the pandemic. 

• Provide training for staff on prevention and protection techniques for the influenza pandemic that 

must be followed in the workplace. 

July 2019 PI Annex–30 Pandemic Influenza Annex 
 

 

FDA Emergency Operations Plan 

CDRH Response Activities 

Pandemic Phase 

• Perform all pandemic alert activities as appropriate. 

• Process EUAs for products after a declaration of public health emergency by the HHS Office of 

the Secretary. 

• Conduct post-market surveillance to monitor the safety and effectiveness of influenza-related 

devices (including devices used for diagnosis, devices used to administer therapeutics, PPE, and 

devices used for supportive care). 

• Support efforts to ensure an adequate supply of influenza-related devices through cooperative 

interactions with manufacturers and distributors and coordination with the SNS to determine the 

adequacy of stocks and actions required to meet targeted amounts. 

• Use an emergency shortages database to identify and monitor supplies of certain devices that 

have the potential to be in demand, but in short supply during influenza outbreaks. 

C.6 OFFICE OF GLOBAL REGULATORY OPERATIONS AND POLICY 

C.6.1 Office of International Programs 

OIP Essential Employees 

Deputy Commissioner for International Programs 

Associate Commissioner for International Programs 

Deputy Director, OIP 

OIP is responsible for coordinating and, if appropriate and permitted, communicating appropriate 

emergency-related information to foreign governments and international organizations, such as WHO. 

OIP also receives information and requests for information (RFIs) from foreign governments. OIP 

performs the following essential functions to support FDA’s response to an influenza pandemic: 

• Maintain contacts and efficient channels for communications with FDA counterpart agencies and 

FDA staff in other countries to assess the impact of the pandemic on FDA and advise on 

appropriate actions. 

• Monitor and report on relevant international development and resources. 

OIP Response Activities 

Alert Phase 

• Exchange information with foreign counterparts to ensure compliance with FDA laws, 

regulations, and policies and consistency in responses to an influenza pandemic. 

• Monitor and report on relevant international developments and resources. 

• Coordinate and advise on international technical cooperation, assistance, and capacity-building 

activities. 

• Establish policies and procedures pertaining to international travel and processing international 

travel requests. 

OIP Response Activities 

Pandemic Phase 

July 2019 PI Annex–31 Pandemic Influenza Annex 
 

 

 

 

 

FDA Emergency Operations Plan 

• Conduct international pandemic alert activities. 

• Follow the Pandemic Influenza Annex to the FDA EOP and other relevant advice. 

• If staff is limited, OIP functions will be restricted to: 

− Communicating with foreign governments and international organizations, including foreign 

embassies and consulates in the United States. 

− Exchanging information with foreign counterparts to ensure compliance with FDA laws, 

regulations, and policies and consistency in responses. 

− Implementing policies and procedures pertaining to international travel and processing international travel requests; OIP will process only international travel that is consistent with 

requirements and limitations pertaining to the pandemic situation. 

C.6.2 Office of Regulatory Affairs 

ORA Essential Employees 

Associate Commissioner for Regulatory Affairs 

Deputy Associate Commissioner for Regulatory Affairs 

Associate Commissioner for Medical Products and Tobacco 

Associate Commissioner for Human and Animal Foods 

Program Directors 

Program Senior Advisor 

Office Director 

District Director 

Program Division Director 

Laboratory Director 

Program Director of Investigations Branch 

Program Director of Compliance Branch 

Program Compliance Officer 

Import Compliance Officer 

Legal Instrument Examiner 

Administrative Officer 

Supervisory Consumer Safety Officer 

Emergency Response Coordinator 

Laboratory Supervisor 

Special Assistant to District Director 

Commissioned Corps Officers 

Special Agent in Charge (SAIC), 

Office of Criminal Investigations (OCI) Headquarters/ 

Investigative Operations Division 

SAIC OCI Headquarters/Administrative Operations Division 

SAIC OCI Office of Internal Affairs 

Senior Operations Manager, OCI/Headquarters 

COOP Coordinator 

Director of Import Operations Branch 

Investigator/Consumer Safety Officer 

Criminal Investigator/Special Agent 

Consumer Complaint Coordinator 

Program Recall Coordinator 

Director of Cooperative Programs 

Specialists/Cooperative Programs 

(Milk, Shellfish, Retail, Radiological Health) 

Laboratory Analyst 

Laboratory Branch Director 

Associate Director for Business and Safety 

Operations 

Supervisory Industrial Hygienist 

Industrial Hygienist 

Staff Assistants 

National Health Fraud Coordinator 

Public Information Branch Representative/Manager 

Director, Headquarters/ 

OCI Public Affairs Specialist 

Program Support (as needed for response) 

Timekeeper 

Sample Custodian 

ORA, led by the Associate Commissioner for Regulatory Affairs (ACRA), protects consumers and 

enhances public health by maximizing compliance of FDA-regulated products and minimizing risk 

associated with those products. ORA is the lead office for all agency field activities. ORA maintains a 

database of FDA-regulated establishments that enables FDA to rapidly identify establishments adversely 

affected by a pandemic influenza incident. In the event of product shortages, ORA’s establishment 

July 2019 PI Annex–32 Pandemic Influenza Annex 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

database can assist the agency in identifying firms with needed production capabilities or product 

inventory. ORA performs the following essential functions to support FDA’s response to an influenza 

pandemic: 

• Investigating and pursuing enforcement action against fraudulent or counterfeit pandemic 

influenza products. 

• Initiating surveillance and follow-up activities for fraudulent pandemic products sold over the 

Internet. 

• Conducting post-market surveillance activities related to vaccines (team biologics). 

ORA Response Activities 

Alert Phase 

• Conduct domestic and foreign inspections; import entry review, field exams, sample collections, 

and analyses; and take appropriate enforcement actions against violative firms or products of 

heightened concern because of their relation to pandemic influenza (for instance, vaccines and 

influenza drugs) to ensure compliance with applicable regulations. 

• Investigate and pursue enforcement action against fraudulent or counterfeit pandemic influenza 

products, both domestic and foreign. 

• Provide incident command training to essential staff and other staff involved in emergency 

response activities. 

• Participate in internal FDA and external pandemic influenza emergency exercises, including 

pandemic influenza. 

• Ensure staff members have equipment and supplies needed in order to work from home. 

• Participate in educational outreach activities for industry, FDA regulatory counterparts, and other 

external customers. 

• ORA management to carefully examine all foreign travel and restrict if necessary. 

• Maintain situational awareness of pandemic influenza cases worldwide through OEM. 

• Activate internal ORA planning for pandemic preparedness, including the establishment of a 

pandemic influenza ERP; identify essential functions and essential personnel with adequate tiers 

for redundancy; and equip essential personnel with necessary equipment to complete essential 

functions for decentralized worksites. 

ORA Response Activities 

Pandemic Phase 

• All activities stated above also apply during an alert phase, as appropriate, and if requested by 

HHS and the HSC. 

• Intensify efforts to identify fraudulent, harmful, or ineffective products that are promoted for 

preventing, diagnosing, or treating pandemic influenza. 

• Give priority attention to pandemic influenza-related work and life-threatening/sustaining work 

associated with emergency response coordination activities. 

• To the extent possible, activate and implement the pandemic influenza ERP, COOP Plan, and 

other ERPs as appropriate. 

July 2019 PI Annex–33 Pandemic Influenza Annex 
 

FDA Emergency Operations Plan 

C.6.2.1 Office of Regulatory Affairs Laboratories 

ORA laboratories will provide analytical support for agency efforts to identify counterfeit or fraudulent 

pandemic influenza products and to support their removal from the marketplace. ORA laboratories will 

also participate in shelf-life extension and related programs associated with the maintenance of national 

stockpiles of critical influenza products. 

July 2019 PI Annex–34 Pandemic Influenza Annex 
 

 

 

 

 

 

 

Officer 

Shortage 

Team 

Commissioner 

(or delegated authority) 

Agency Executive 

Group 

Agency Incident Coordinator 

Liaison 

Officer 

Public Information 

Officer/Joint 

Information Center 

Logistics 

Section 

Employee 

Health Advisor 

I 

Units 

-

FDA Emergency Operations Plan 

D. DIRECTION, CONTROL, AND COORDINATION 

This section provides a description of Incident Command System (ICS) positions and groups, which are 

specific to a pandemic influenza response and describes their primary roles and responsibilities. 

FDA response operations for major incidents, such as pandemic influenza, are based on the concepts, 

practices, and principles of NIMS and its organizational structure, the ICS. Among other things, NIMS 

prescribes what types of information FDA should provide the HHS SOC and in what format, including 

SitReps and Incident Action Plans (IAPs). NIMS also requires the use of universal terminology to ensure 

a common understanding of requirements and requests in an interagency environment. The ICS organizational structure provides standard nomenclatures for both teams and individual positions. For a complete 

listing of the FDA ICS structure (IMG)78 refer to FDA EOP, Section D, “Direction, Control, and 

Coordination.” 

Expansions of the FDA response structure for a pandemic influenza response may vary according to 

numerous considerations and operational factors. ICS offers flexibility in determining the right structural 

approach for the specific circumstances of the incident at hand. Dependent on the incident objectives 

established and strategies developed, the IMG may include Logistics and Finance/Administrative as part 

of the response and expand FDA’s command structure Operations Section, including any one of the 

groups described in Section D below (see Figure D-1). 

Figure D-1. Possible Pandemic Influenza IMG Structure 

78 For more information on specific roles and responsibilities of each ICS position, refer to the FDA Incident Management 

Handbook. 

July 2019 PI Annex–35 Pandemic Influenza Annex 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

D.1 COMMAND STAFF 

The FDA Command Staff includes a Public Information Officer (PIO), Liaison Officers (LNOs) and 

Safety Officer (SO). Technical Advisors may be assigned to the Planning Section or to the Command 

Staff working directly for the Agency Incident Coordinator (AIC). Technical Advisors can include the 

Science/Medical Advisor, EUA/Product Interface Advisor, International Advisor, and Legal Advisor.79 

D.1.1 Pandemic Influenza-Specific Liaisons 

When activated, the FDA EOC serves as the agency-wide focal point for pandemic influenza emergency 

operations, coordination, and communications. External liaisons from the CDC or other agencies may be 

present at the FDA EOC. FDA may also send liaisons to the coordinating agency for the event or 

participate in the response coordination if an incident or unified command is set up. 

D.1.2 Legal Advisor 

D.1.2.1 Legal Group 

The Legal Group works to address the following issues related to pandemic influenza in support of the 

Legal Advisor: 

• Adverse event reporting guidance. 

• Fraudulent products warning letters and enforcement actions. 

• FDA-regulated products used during an influenza pandemic (i.e., export and import, overriding 

patents, and public informational statements). 

• EUAs. 

• Occupational issues (e.g., agency recommendations for employees, ensuring harmonization of 

multiple guidance for employees provided by multiple entities). 

• Preparation for congressional hearings. 

D.2 GENERAL STAFF 

The General Staff is responsible for the functional aspects of the FDA ICS. The General Staff consists of 

the Operations, Planning, Logistics, and Finance/Administration Sections, which comprise designated 

FDA headquarters and field emergency staffs. Individual position assignments within these Sections are 

discussed in the FDA EOP. 

D.2.1 Operations Section 

The Operations Section is responsible for coordinating all agency activities related to regulated products 

in response to an influenza pandemic event. Figure D-1 depicts FDA’s Operations Section during a 

pandemic influenza response. The groups listed below could possibly be established when the number of 

resources exceeds the manageable span of control of the IMG and the Operations Section Chief. Groups 

are established to divide the incident into functional areas of operation. Additional levels of supervision 

may also exist below the Group level. 

79 See the FDA EOP, Section D, for a description of the Technical Advisor positions. 

July 2019 PI Annex–36 Pandemic Influenza Annex 
 

 

 

 

 

 

 

FDA Emergency Operations Plan 

D.2.1.1 Drug Group 

The Drug Group addresses drug issues, such as drug product availability, adverse event reporting, 

labeling changes, whether EUAs for drugs are appropriate, and what restrictions should be placed on uses 

authorized under EUAs related to an influenza pandemic operational response. The following are some 

potential teams, led by CDER staff, that may be needed to manage mitigation and recovery issues. 

D.2.1.1.1 Antiviral Team 

The Antiviral Team addresses issues concerning the availability of antiviral drugs and EUA requests and 

manages adverse event reporting and monitoring. 

D.2.1.1.2 Expired Drugs Team 

The Expired Drugs Team deals with such issues as use of expired antiviral drugs and drugs out of 

specification, including those in the SNS. This team would have input in discussing whether an EUA 

should/can include private sector stockpiles (e.g., hospital associations, large employers) or whether a 

separate authorization is needed. The Expired Drugs Team would also monitor labeling and Shelf Life 

Extension Program (SLEP) issues related to the event. 

D.2.1.1.3 Drug Shortage Team 

The Drug Shortage Team is responsible for reporting on the availability and surge capacity for antiviral 

drugs, monitoring commercial inventory, and working with manufacturers of influenza drug products to 

prepare for possible increases in demand. If needed, the team would contact manufacturers of intravenous 

antibiotics, intravenous fluids, and other critical care drugs to prepare for possible increased needs. 

D.2.1.1.4 Adverse Drug Events Team 

The Adverse Drug Events Team assists with the monitoring of adverse drug events specifically to identify 

undesired side effects and unexpected adverse effects from a drug product used to treat influenza. 

D.2.1.2 Biologics Group 

The Biologics Group addresses vaccines, blood, and other biologics issues as part of an influenza 

pandemic operational response. Some potential teams, with team leaders from CBER staff, may be 

needed to manage mitigation and recovery issues. 

D.2.1.2.1 Vaccine Team 

The Vaccine Team works with U.S.-licensed manufacturers of influenza vaccines concerning the 

regulatory and scientific aspects of the development and licensure of vaccines for the novel influenza 

virus. They participate in various recurring meetings facilitated by the Biomedical Advanced Research 

and Development Authority (BARDA), National Vaccine Program Office (NVPO), CDC, WHO, and 

international regulators, such as the European Medicines Agency (EMEA) and Health Canada. 

In addition, the Vaccine Team works to address any issues related to: 

• Preparation of reference strains from which manufacturers can make viral seeds for vaccine 

production. 

• Production of reagents to test vaccine potency. 

• Providing strains for assays and manufacture as necessary. 

• Standardization of clinical trials. 

• Vaccine production. 

July 2019 PI Annex–37 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

• Discussion with manufacturers, when needed, regarding the information needed to potentially 

support the use of unapproved vaccines in a declared emergency under an EUA. 

D.2.1.2.2 Blood Team 

The Blood Team is responsible for providing guidance related to blood and tissue donations and use of 

such products when impacted by a pandemic. The team also works with outside groups to address any 

blood shortages that might arise. 

D.2.1.3 Medical Device Group 

The Medical Device Group would manage issues related to an influenza pandemic operational response. 

Potential units, with team leaders from CDRH staff members, that may be needed to manage mitigation 

and recovery issues are the IVD Team, PPE and Other Devices Team, and Shortage Team. 

D.2.1.3.1 In-Vitro Diagnostics Team 

The IVD Team performs the following: 

• Respond to triage EUA requests. 

• Respond to inquiries regarding EUA requests from: 

− The CDC, U.S. military, and domestic and international commercial sources for IVDs 

claiming to subtype or detect the novel viral strain or to detect virus mutant variants. 

− Manufacturers regarding instruments to be used in the development of IVDs. 

• Clear tests and instruments for the availability of detection of the novel influenza, including rapid 

tests and other influenza testing-related products, such as viral transport media/swabs. 

• Monitor reagent and system shortages on a short-term (daily or weekly) basis as well as a longterm (monthly) basis. 

• Monitor claims for detection and differentiation of the influenza virus. 

• Review data and labeling of cleared or approved devices for which a company proposes new 

claims and changes. 

• Work with the CDC to monitor availability of new influenza subtype panels from CDC/American 

Type Culture Collection (ATCC) for use by assay developers. 

• Conduct rapid review of any promising influenza devices capable of differentiating novel 

subtypes, particularly those that are rapid or point-of-care tests, and those for detection of mutant 

variants of the virus. 

• Address fraudulent claims by monitoring websites and complaints regarding claims to diagnose 

novel influenza and issuing warning letters as appropriate. 

• Support the development of laboratory-developed tests for virus diagnosis. 

D.2.1.3.2 Personal Protective Equipment and Other Devices Team 

The PPE and Other Devices Team performs the following: 

• Exchange information with CDC/SNS, States, and manufacturing sector and provide real-time 

monitoring of consumption/utilization rates of PPE during emergencies. 

• Respond to State and private sector inquiries about perceived shortages during public health 

emergencies. 

July 2019 PI Annex–38 Pandemic Influenza Annex 
 

 

FDA Emergency Operations Plan 

• Anticipate and plan for future surges in demand for N95 devices. 

• Track and trace status of N95 devices released from SNS. 

• Meet with manufactures about the development of new PPEs. 

• Address shortages of PPE by working with industry to update current manufacturing capabilities 

and assist with long-term planning by the manufacturing sector to meet demands for a potential 

surge. 

D.2.1.3.3 Shortage Team 

The Shortage Team would be created if shortages of IVDs, PPEs, and other devices are too extensive to 

be managed by the above units alone. 

D.2.2 Logistics Section 

D.2.2.1 Employee Health Advisor 

The Employee Health Advisor is a staff member of the OO Employee Safety and Environmental 

Management Staff (ESEMS) who addresses the need for appropriate health protection for high-risk FDA 

employees. The Employee Health Advisor works with HHS and the USPHS Federal Occupational Health 

(FOH) Services to ensure adequate medical countermeasures are made available to protect FDA 

responders. 

July 2019 PI Annex–39 Pandemic Influenza Annex 
FDA Emergency Operations Plan 

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July 2019 PI Annex–40 Pandemic Influenza Annex 
 

FDA Emergency Operations Plan 

E. COMMUNICATIONS AND INFORMATION MANAGEMENT 

This section is reserved for text to be added at a future date. 

July 2019 PI Annex–41 Pandemic Influenza Annex 
FDA Emergency Operations Plan 

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July 2019 PI Annex–42 Pandemic Influenza Annex 
 

 

 

 

 

 

 

 

FDA Emergency Operations Plan 

F. AUTHORITIES AND REFERENCES 

F.1 NATIONAL STRATEGIES 

National Strategy for Pandemic Influenza 

On November 1, 2005, President George W. Bush issued a National Strategy for Pandemic Influenza that 

called for comprehensive and coordinated pandemic preparedness planning at all levels of government 

and the private sector. It outlines how the Nation intends to prepare, detect, and respond to a pandemic. 

This strategy describes the important roles to be played not only by the Federal government, but also by 

State and local governments, private industry, international partners, and individual citizens. HHS was 

identified as the lead department for medical response. 

www.flu.gov/professional/federal/pandemic-influenza.pdf 

National Strategy for Pandemic Influenza – Implementation Plan 

In May 2006, the HSC published the National Strategy for Pandemic Influenza – Implementation Plan. 

The introductory letter signed by President George W. Bush cited more than 300 critical actions to 

address the threat of pandemic influenza. Chapter 6, Protecting Human Health, includes actions on 

(1) achieving national goals for producing and stockpiling vaccine and antiviral medications; and 

(2) prioritizing and distributing limited supplies of vaccine and antiviral medications. It details how the 

Nation is currently preparing for, and how it detects and responds to, a potential pandemic influenza 

outbreak. www.flu.gov/professional/federal/pandemic-influenza-implementation.pdf 

F.2 FEDERAL PLANS AND GUIDANCE 

HHS Pandemic Influenza Plan, Part 1 – Strategic Plan 

The HHS Pandemic Influenza Plan, Part I – Strategic Plan (November 2005) contains a summary of 

major pandemic response roles for HHS officials, agencies, and divisions. 

www.flu.gov/planning-preparedness/federal/hhspandemicinfluenzaplan.pdf 

The major pandemic response roles for FDA include the following: 

• Regulating manufacturing processes. 

• Evaluating and licensing pandemic vaccines. 

• Evaluating and approving antiviral drugs for influenza. 

• Facilitating the development, evaluation, and clearance or approval of diagnostic tests and 

devices. 

• Preparing reagents to standardize the potency of inactivated influenza vaccines. 

• Preparing reference strains appropriate for vaccine manufacturing. 

• Reviewing antiviral drug and pandemic vaccine supply issues. 

• Evaluating and issuing EUAs when appropriate. 

• Monitoring vaccine adverse events. 

• Monitoring antiviral drug adverse events. 

• Maintaining close communication with drug and vaccine manufacturers. 

• Evaluating investigational new drug (IND) applications and investigational device exemptions 

(IDEs) for medical products that diagnose, treat, prevent, or mitigate influenza. 

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• Evaluating new manufacturing sites and processes for antiviral drugs. 

• Making necessary changes in prescribing and patient information, including dosing, target 

populations, and other directions for use for antiviral drugs and pandemic vaccines based on 

research and adverse events. 

• Evaluating long-term stability of stockpiled antiviral drugs for purposes of shelf-life extension. 

• Monitoring to protect against the distribution of counterfeit antiviral drugs and pandemic 

vaccines. 

HHS Pandemic Influenza Implementation Plan 

The HHS Pandemic Influenza Implementation Plan (November 2006) provides a roadmap for the 

Department’s pandemic preparedness and response. It outlines specific steps to implement the actions 

identified in the HHS Pandemic Influenza Plan, Part 1 – Strategic Plan. 

www.flu.gov/planning-preparedness/federal/hhspandemicinfluenzaplan.pdf 

F.3 FDA SUPPORTING DOCUMENTATION 

FDA OPDIV Section to the HHS Pandemic Influenza Operational Plan 

The FDA OPDIV section to the HHS Pandemic Influenza Operational Plan (November 21, 2006) 

includes essential functions that FDA Centers and Offices must continue to perform to ensure COOP in 

the event of an influenza pandemic. 

Center/Office Emergency Plans and Procedures 

The following plan supports implementation of this Pandemic Influenza Annex to the FDA EOP: 

• OC/OO/Office of Financial Operations (OFO)/OFM – Business Continuity Plan (June 2013) 

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Appendix A: 

Protection of Workers: Guidance on Preparing the 

Workplace and Workers for an Influenza Pandemic 

Introduction 

An influenza pandemic occurrence will cause large numbers of employees to be absent from work 

because of illness, because they may have to care for ill family members, because schools or daycare 

centers are closed, or because they are afraid to come to work. 

It is estimated that during a period of peak influenza pandemic illness, approximately 30 to 40 percent of 

employees working in a particular office or organization could be absent. An outbreak in a particular 

geographic area could last from 6 to 8 weeks. There is little way of knowing when an influenza pandemic 

will occur or how severe it will be in the population. 

Planning for an influenza pandemic should assume a worst-case scenario that would be characterized by a 

high level of illness and absenteeism, social disruption, and economic loss in the public, private, and 

nonprofit sectors of the economy. The level of risk experienced by employees in the various FDA Centers 

and Offices will depend on the nature of their occupations and the degree to which they have occupational 

exposure to people potentially infected with the pandemic influenza virus. 

Action Steps 

Expanding teleworking by employees and “social distancing” are two actions that can be taken by 

managers to facilitate continuation of an agency’s essential functions despite high workforce absenteeism. 

Social distancing refers to employee behavior to reduce the frequency, proximity, and duration of contact 

between people (both employees and customers) to reduce the chances of spreading influenza from 

person-to-person. 

Spread of Influenza 

It is important that employees understand how influenza can be spread among people. It is spread 

primarily through large droplets (droplet transmission) that directly contact the nose, mouth, or eyes. 

Droplets are produced when infected people cough, sneeze, or talk. This sends relatively large infectious 

droplets and very small sprays (aerosols) into the nearby air and into contact with other people. The large 

droplets can only travel around 6 feet. Consequently, people should limit close contact with others to a 

distance no closer than 6 feet. A second way that influenza is transmitted is by individuals touching 

objects that have been contaminated with influenza viruses and then transferring the infected material 

from their hands to their nose, mouth, or eyes. A third way of transmitting influenza is through the spread 

of very small infectious particles (aerosols) that travel in the air. Employees need to understand these 

three principal means of transmission of influenza so that they can take steps, to the maximum extent 

possible, to protect themselves against infection. 

Occupational Safety and Health Administration Guidance 

The U.S. Department of Labor (DOL) Occupational Safety and Health Administration (OSHA) has issued 

a document entitled Guidance on Preparing Workplaces for an Influenza Pandemic (OSHA 3327-02N 

2007 and updated version 3227-05R 2009), which provides detailed, but strictly advisory, guidance for 

employers on preparing their workplaces to minimize the impact of an influenza pandemic on their 

workers and operations. This guidance will help employers and employees identify the pandemic 

influenza risk levels in their individual workplace settings. OSHA identifies appropriate control measures 

for pandemic influenza—these measures include good hygiene, cough etiquette, social distancing, the use 

of PPE, and staying home from work when ill. 

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Although the work of the FDA Centers and Offices differs from other USG agencies and among themselves, there are many pandemic preparedness recommendations in the OSHA guidance publication that 

are applicable to all FDA elements. They include: 

• Be aware of and review other USG, State, and local health department pandemic influenza plans; 

incorporate appropriate actions from these plans into workplace disaster plans. 

• Prepare and plan for operations with a reduced workforce. 

• Work with your suppliers to ensure you can continue to operate and provide services. 

• Develop a sick leave policy that does not penalize sick employees, thereby encouraging 

employees who have influenza-related symptoms to stay home so they do not infect other 

employees; recognize that employees with ill family members may need to stay home to care for 

them. 

• Identify possible exposure and health risks to your employees: Are your employees expected to 

have a lot of contact with the general public? 

• Minimize exposure to fellow employees or the public. 

• Identify business-essential functions and people required to sustain business-necessary functions 

and operations; prepare to cross-train or develop ways to function in the absence of these 

positions. It is recommended that employers train three or more employees to be able to sustain 

business-necessary functions and operations. 

• Plan for downsizing services, but also anticipate any scenario that may require a surge in your 

services. 

• Some employees will have individual risk factors that should be considered by employers as they 

plan how the organization will respond to a potential pandemic (e.g., immuno-compromised 

individuals and pregnant women). 

• Stockpile items such as soap, tissue, hand sanitizer, cleaning supplies, and recommended PPE. 

When stockpiling items, be aware of each product’s shelf-life and storage conditions, and 

incorporate product rotation into your stockpile management program (Guidance on Preparing 

Workplaces for an Influenza Pandemic, pp.13-15). 

OSHA’s Guidance on Preparing Workplaces for Pandemic Influenza notes that the two most effective 

ways of protecting employees from pandemic influenza depend upon emphasizing proper hygiene (i.e., 

disinfecting hands and surfaces) and practicing social distancing as previously described. OSHA 

describes a “hierarchy of controls” as the most effective way of dealing with a workplace hazard. This 

concept places a high priority on intervention strategies by management and on attempts to remove the 

hazard from the workplace rather than to rely primarily on the employees to reduce their exposure. 

Depending on the nature of the work of each FDA Center and Office, the strategies for work practice and 

engineering controls, administrative controls, work practices, and PPE will differ in both cost and 

effectiveness. 

CDC Guidance 

The CDC has issued a report entitled Community Mitigation Guidelines to Prevent Pandemic Influenza — 

United States, 2017 , and supporting technical documents80 which provides planning guidance for State, 

80 Community Mitigation Guidelines to Prevent Pandemic Influenza — United States, 2017: Technical Report 1: Chapters 1-4 

and Community Mitigation Guidelines to Prevent Pandemic Influenza — United States, 2017: Technical Report 2: Supplemental 

chapters 1-7 

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local, tribal, and territorial communities. This planning focuses on several measures other than 

vaccination and drug treatment that might be useful during an influenza pandemic to reduce its harm. The 

guidelines provide evidence-based recommendations on the use of nonpharmaceutical interventions 

(NPIs) in mitigating the effects of pandemic influenza. The pandemic mitigation interventions described 

in the documents include: 

Personal NPI 

• Personal Protective Measures for Everyday Use: Voluntary Home Isolation, Respiratory 

Etiquette, and Hand Hygiene 

• Personal Protective Measures Reserved for Pandemics: Voluntary Home Quarantine and Use of 

Face Masks in Community Settings 

Community NPI 

• School Closures and Dismissals 

• Social Distancing Measures for Schools, Workplaces, and Mass Gatherings 

Environmental NPI 

• Environmental Surface Cleaning Measures or Schools, Workplaces, 

Hierarchy of Controls 

OSHA defines work practice controls as “procedures for safe and proper work that are used to reduce the 

duration, frequency, or intensity of exposure to a hazard.” Managers and supervisors should solicit 

suggestions from employees on ways to implement safe work practice controls. Engineering controls are 

preferred over all others because “they make permanent changes to reduce exposure to hazards and do not 

rely on employee or customer behavior.” These types of controls involve making permanent changes to 

the work environment to reduce work-related hazards. 

Administrative controls include “controlling employees’ exposure by scheduling their work tasks in ways 

that minimize their exposure levels.” Examples of administrative controls include discontinuation of nonessential travel to locations with high illness transmission rates, implementing work practices such as 

email, websites, and teleconferences that minimize face-to-face contact between employees, and adopting 

flexible work arrangements, such as telecommuting or flexible work hours, to reduce the number of 

employees who must be at work at one time or in one specific location. 

PPE is considered appropriate for employees during certain types of exposures, but is no replacement for 

other types of prevention interventions, such as engineering controls, cough etiquette, and hand hygiene. 

Examples of the types of PPE appropriate for a pandemic influenza include: gloves, goggles, face shields, 

and respiratory protection devices. 

Each of the above types of work practices and controls may be appropriate for implementing in FDA 

Centers and Offices. However, there is no single list of these four prevention strategies that would 

necessarily be appropriate for implementing in each FDA organization. Rather, it is incumbent upon the 

director of each Center and Office to engage the employees and supervisors in their unit to examine how 

the work of their organization can be modified to provide maximum protection for the staff should an 

influenza pandemic occur. 

All actions taken by FDA managers and supervisors must be consistent with and not conflict with other 

Federal, State, and local health department pandemic influenza plans. As appropriate, portions of these 

other plans may be incorporated into individual pandemic influenza plans developed for individual FDA 

Centers and Offices. 

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HHS, Office of Personal Management (OPM), and U.S. General Services Administration (GSA) have 

documents and websites that provide policy and guidance applicable for emergency situations, such as an 

influenza pandemic. Human capital management, leave, temporary closing of work spaces and treatment 

of absences, and telework are all functions that may need to be implemented during the course of an 

influenza pandemic that may impact FDA Centers and Offices. As needed, directors and supervisors 

should consult the following documents/websites: 

• OPM and GSA Policy on Telework 

www.telework.gov 

• HHS Telecommuting Program Policy 

http://intranet.hhs.gov/ohr/telework/policy.html 

• Interim Pre-pandemic Planning Guidance: Community Strategy for Pandemic Influenza 

Mitigation in the United States – Early, Targeted, Layered Use of Nonpharmaceutical 

Interventions 

www.flu.gov/planning-preparedness/community/mitigation.html# 

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