Target Capabilities List
A companion to the National Preparedness Guidelines
U.S. Department of Homeland Security
September 2007
Target Capabilities List i
TABLE OF CONTENTS
PREFACE..................................................................................................................................... iii
EXECUTIVE SUMMARY ...........................................................................................................v
INTRODUCTION..........................................................................................................................1
Overview..............................................................................................................................1
Key Components of the Target Capabilities List.................................................................6
Risk Factors Considered in Preparedness Planning...........................................................10
The TCL as a Tool for Expanded Regional Collaboration................................................11
Using the Target Capabilities List .....................................................................................12
Going Forward – Refinements to the TCL ........................................................................16
COMMON TARGET CAPABILITIES
Planning .............................................................................................................................21
Communications ................................................................................................................29
Risk Management ..............................................................................................................43
Community Preparedness And Participation.....................................................................55
Intelligence and Information Sharing and Dissemination .................................................69
PREVENT MISSION AREA
Information Gathering and Recognition of Indicators and Warnings ...............................81
Intelligence Analysis and Production ................................................................................91
Counter-Terror Investigation and Law Enforcement.......................................................103
CBRNE Detection............................................................................................................115
PROTECT MISSION AREA
Critical Infrastructure Protection .....................................................................................129
Food and Agriculture Safety and Defense.......................................................................141
Epidemiological Surveillance and Investigation .............................................................161
Laboratory Testing...........................................................................................................175
ii Target Capabilities List
RESPONSE MISSION AREA
On-Site Incident Management .........................................................................................197
Emergency Operations Center Management ...................................................................209
Critical Resource Logistics and Distribution...................................................................223
Volunteer Management and Donations ...........................................................................237
Responder Safety and Health...........................................................................................249
Emergency Public Safety and Security Response ...........................................................263
Animal Disease Emergency Support ...............................................................................277
Environmental Health......................................................................................................309
Explosive Device Response Operations ..........................................................................337
Fire Incident Response Support.......................................................................................349
WMD and Hazardous Materials Response and Decontamination...................................361
Citizen Evacuation and Shelter-In-Place .........................................................................377
Isolation and Quarantine..................................................................................................395
Search and Rescue (Land-Based) ....................................................................................407
Emergency Public Information and Warning ..................................................................421
Emergency Triage and Pre-Hospital Treatment ..............................................................437
Medical Surge ..................................................................................................................449
Medical Supplies Management and Distribution.............................................................465
Mass Prophylaxis.............................................................................................................479
Mass Care (Sheltering, Feeding, and Related Services)..................................................493
Fatality Management .......................................................................................................519
RECOVER MISSION AREA
Structural Damage Assessment........................................................................................545
Restoration of Lifelines....................................................................................................557
Economic and Community Recovery..............................................................................567
Target Capabilities List iii
PREFACE
The attacks on 9/11, the anthrax attacks, the devastation from Hurricane Katrina, and preparations for a
possible pandemic illustrate the 21
st
century challenges the Nation faces. To meet these challenges, we
must understand performance requirements for a major event at the task level and build and maintain
the capabilities to perform those tasks. Preparedness for major events involves all levels of
government, the private sector, non-government organizations, and citizens.
In December, 2003, the President issued Homeland Security Presidential Directive (HSPD)-8 to
establish national policy to strengthen the preparedness of the United States to prevent, protect against,
respond to, and recover from terrorist attacks, major disasters, and other emergencies. HSPD-8
required the development of the National Preparedness Guidelines (the Guidelines). The Guidelines
define what it means for the Nation to be prepared by providing a vision for preparedness, establishing
national priorities, and identifying target capabilities. The Guidelines adopt a Capabilities-Based
Planning process supported by three planning tools: the National Planning Scenarios, Target
Capabilities List (TCL), and Universal Task List (UTL). They can be viewed online at
https://odp.esportals.com
or https://www.llis.dhs.gov.
The Target Capabilities List describes the capabilities related to the four homeland security mission
areas: Prevent, Protect, Respond, and Recover. It defines and provides the basis for assessing
preparedness. It also establishes national guidance for preparing the Nation for major all-hazards
events, such as those defined by the National Planning Scenarios. The current version of the TCL
contains 37 core capabilities.
A “Consensus of the Community” approach was used to develop the Target Capabilities List.
Stakeholders from Federal, State, local, territorial, and tribal governments, the private sector, and non-
governmental organizations came together in four national workshops and capability working groups
to define the capabilities.
The Guidelines will serve as a framework to guide operational readiness planning, priority-setting, and
program implementation at all levels of government. The Guidelines provide a call to action by all
Americans as they consider their personal and shared responsibility to be part of A Nation Prepared.
The Target Capabilities List provides guidance on building and maintaining capabilities that support
the Guidelines.
Michael Chertoff
Secretary
Department of Homeland Security
iv Target Capabilities List
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Target Capabilities List v
EXECUTIVE SUMMARY
The President and Congress directed creation of a fully integrated, adaptable, all-hazards national
preparedness system. The National Preparedness Guidelines (The Guidelines) and Target Capabilities
List (TCL) establish the system’s all-hazards framework. The Guidelines provide the vision and
establishes national priorities. The TCL is a national-level, generic model of operationally ready
capabilities defining all-hazards preparedness. Users should refer to the TCL to assess capabilities,
identify needs, and inform plans and strategies taking into account their risk. It is important to understand
that the TCL serves as a reference document and planning guide to preparedness and in no way serves as
a prescription for program or resource requirements.
The vision for the National Preparedness Guidelines is:
A NATION PREPARED with coordinated capabilities to prevent, protect against,
respond to, and recover from all hazards in a way that balances risk with resources
and need.
The Guidelines establish the following priorities to meet the Nation’s most urgent needs and adopt a
Capabilities-Based Planning process to define and build the capabilities to achieve the Guidelines:
• Expand regional collaboration
• Implement the National Incident Management System and the National Response Plan
• Implement the National Infrastructure Protection Plan
• Strengthen information sharing and collaboration capabilities
• Strengthen communications capabilities
• Strengthen CBRNE detection, response, and decontamination capabilities
• Strengthen medical surge and mass prophylaxis capabilities
• Strengthen planning and citizen preparedness capabilities
The Target Capabilities List provides a guide to addressing the priorities and achieving the National
Preparedness Guidelines. Capabilities provide the means to accomplish a mission and achieve desired
outcomes by performing critical tasks, under specified conditions, to target levels of performance.
Capabilities are delivered by appropriate combinations of planning, organization, equipment, training,
and exercises. The TCL supports an all-hazards approach to building capabilities that may be needed
in the event of terrorist attacks, natural disasters, health emergencies, and other major events. It
identifies 37 capabilities that were developed with the active participation of stakeholders representing
all levels of government, non-governmental organizations, and the private sector.
Consensus of the Community Approach: Stakeholder Involvement
The Guidelines and TCL were developed with an unprecedented level of stakeholder involvement.
The Department of Homeland Security adopted a “consensus of the community” approach, eliciting the
active involvement of local, State, and Federal agencies, over 120 national associations, non-
governmental organizations, and the private sector. Stakeholders participated through national
stakeholder workshops, working groups, and broad national reviews.
vi Target Capabilities List
The Approach to Defining Capabilities
The capabilities are derived from a threat and mission analysis. The first step in defining capabilities is
to answer the question “How prepared do we need to be?” The analysis, using the 15 National
Planning Scenarios, illustrates the range, scope, magnitude, and complexity of representative major
events, including terrorism, natural disasters, and other emergencies for which the Nation should
prepare. Mission analysis provides an overview of all the major functions related to achievement of
the four missions. It ensures that preparedness activities are focused on mission achievement.
The National Planning Scenarios serve as the basis for defining tasks that may be required to
successfully prevent, protect against, respond to, and recover from a wide range of threats and hazards,
as well as the capabilities needed to perform the tasks. The Universal Task List (UTL) is the catalogue
of tasks that may need to be performed by governmental, non-governmental, and private-sector
organizations, and the general public. No single jurisdiction or agency is expected to perform every
task identified and no two jurisdictions require the same level of capabilities. In addition, Federal
priorities and supporting program referenced herein are subject to change in response to an evolving
threat environment and competition for scare resources. In practice, subsets of tasks will be selected
based on specific roles, missions, and functions, and the appropriate level of capabilities will depend
upon risk and need.
The TCL provides a guide for development of a national network of capabilities that will be available
when and where they are needed to prevent, protect against, respond to, and recover from major events.
These capabilities define all-hazards preparedness and provide the basis for assessing preparedness and
improving decisions related to preparedness investments and strategies.
Target Capabilities
The TCL comprises 37 capabilities which are listed in the chart on the next page. They address
response capabilities, immediate recovery, selected prevention and protection mission capabilities, as
well as common capabilities such as planning and communications that support all missions. For these
capabilities, local jurisdictions and States are the lead in conjunction with Federal and private sector
support.
A Capability Summary has been developed for each capability to describe and provide guidance on the
major capability components. Each Capability Summary contains the following elements: a definition
and outcome, preparedness and performance tasks and measure, resource elements, target preparedness
levels, and identified responsibility for building and maintaining the capability.
Target Capabilities List vii
Phase I Capabilities (Included in this version of the TCL)
Common Capabilities
Planning
Communications
Community Preparedness and
Participation
Risk Management
Intelligence and Information Sharing and
Dissemination
Prevent Mission Capabilities
Information Gathering and Recognition of
Indicators and Warning
Intelligence Analysis and Production
Counter-Terror Investigation and Law
Enforcement
CBRNE Detection
Protect Mission Capabilities
Critical Infrastructure Protection
Food and Agriculture Safety and Defense
Epidemiological Surveillance and
Investigation
Laboratory Testing
Respond Mission Capabilities
On-Site Incident Management
Emergency Operations Center
Management
Critical Resource Logistics and
Distribution
Volunteer Management and Donations
Responder Safety and Health
Emergency Public Safety and Security
Animal Disease Emergency Support
Environmental Health
Explosive Device Response Operations
Fire Incident Response Support
WMD and Hazardous Materials
Response and Decontamination
Citizen Evacuation and Shelter-in-Place
Isolation and Quarantine
Search and Rescue (Land-Based)
Emergency Public Information and
Warning
Emergency Triage and Pre-Hospital
Treatment
Medical Surge
Medical Supplies Management and
Distribution
Mass Prophylaxis
Mass Care (Sheltering, Feeding and
Related Services)
Fatality Management
Recover Mission Capabilities
Structural Damage Assessment
Restoration of Lifelines
Economic and Community Recovery
Using the Target Capabilities List
The Target Capabilities List is a reference document that describes the capabilities for achieving
national preparedness. It also serves as a planning, assessment, and training tool. Various
implementation tools are being developed from the TCL to help decision-makers and managers at all
levels to define their preparedness requirements and assess levels of preparedness. Some uses are
briefly described below:
•
Risk Assessment: The determination of risk includes identification and characterization of threats,
their consequences, and our vulnerabilities. While each is important for capabilities-based planning
and national preparedness, determinations of vulnerability are important since they include not only
exposure and sensitivity, but resilience. Resilience is key since it refers to our coping capacity to
absorb events, adapt, respond to, and recover from its effects.
viii Target Capabilities List
• Planning: The TCL includes a Planning Capability designed to establish and maintain the ability
to develop, update, and test plans. In addition, each capability contains both preparedness and
performance tasks and measures that support the capability outcome and serve as a guide for
preparedness planning. The preparedness tasks and measures describe major elements or issues
that should be addressed in plans, procedures, and systems, as well as authorities, relationships,
and agreements that need to be in place to prepare to use the capability. The performance tasks
and measures also inform the planning process.
•
Strategy Development and Investment Justifications: The common framework provided by
the Guidelines, priorities, and capabilities serve as a guide to enhance homeland security strategies
and investment justifications at all levels.
•
Assessment of Preparedness: The TCL provides a basis for assessing preparedness to help
jurisdictions and agencies to plan strategically, design appropriate programs that meet proven
needs, and evaluate the effectiveness of investments over time.
•
Focus Training on Task Performance: Training programs should be modified as appropriate to
ensure that they provide participants with the knowledge, skills, and abilities to perform the critical
tasks defined by the TCL to a proficiency level sufficient to achieve the capability outcomes.
• Test Capabilities through Exercises: Exercises provide a means to test and validate
preparedness. The Homeland Security Exercise and Evaluation Program (HSEEP) is designed to
encourage a common exercise design, conduct, and evaluation methodology across all levels of
government and the private sector. HSEEP exercises are designed and evaluated to demonstrate
capability levels through the assessment of performance of critical tasks and achievement of
outcomes, as defined by the TCL.
The TCL Going Forward
The TCL is a living document. It was designed to be enhanced and refined over time as we
gain lessons from its application or real world experience. Recommendations for changes to
the TCL are welcome and will be reviewed and integrated into future versions of the TCL, as
appropriate. A change request form is posted on www.LLIS.gov.
Target Capabilities List 1
INTRODUCTION
Overview
The President and Congress directed creation of a fully integrated, adaptable, all-hazards national
preparedness system. The National Preparedness Guidelines (The Guidelines) and Target Capabilities
List (TCL) establish the system’s all-hazards framework. The Guidelines provide the vision and
establishes national priorities. The TCL is a national-level, generic model of operationally ready
capabilities defining all-hazards preparedness. Users should refer to the TCL to assess capabilities,
identify needs, and inform plans and strategies taking into account their risk.
The vision for the National Preparedness Guidelines is:
A NATION PREPARED with coordinated capabilities to prevent, protect against, respond to,
and recover from all hazards in a way that balances risk with resources.
The Guidelines establish the following priorities to meet the Nation’s most urgent needs and adopt a
capabilities-based planning approach to define and build the capabilities critical to achieve the
Guidelines:
• Expand regional collaboration
• Implement the National Incident Management System and the National Response Plan
• Implement the National Infrastructure Protection Plan
• Strengthen information sharing and collaboration capabilities
• Strengthen communications capabilities
• Strengthen CBRNE detection, response, and decontamination capabilities
• Strengthen medical surge and mass prophylaxis capabilities
• Strengthen planning and citizen preparedness capabilities
The Target Capabilities List provides a guide to addressing the priorities and achieving the National
Preparedness Guidelines. Capabilities provide the means to accomplish a mission and achieve desired
outcomes by performing critical tasks, under specified conditions, to target levels of performance. The
conditions under which the tasks must be performed are defined by a set of National Planning Scenarios.
Capabilities are delivered by appropriate combinations of planning, organization, equipment, training, and
exercises.
The TCL supports an all-hazards approach to building interchangeable, flexible capabilities needed to
address a broad range of incidents to include: terrorist attacks, natural disasters, health emergencies, and
other major incidents. It currently identifies 37 capabilities that were developed with the active
participation of stakeholders representing all levels of government, non-governmental organizations, and
the private sector.
Each capability includes a definition; outcome; preparedness and performance activities, tasks, and
measures. The TCL also identifies the role of governmental and non-governmental organizations, the
private sector, and citizens in building and maintaining capabilities. By doing so, it provides a basis for
assessing preparedness and for setting priorities for the effective use of limited resources. The TCL
serves as a valuable tool for guiding preparedness activities to include: planning, establishment of training
requirements, and evaluation of performance through exercises and operations. Although the TCL should
inform resource priorities at all levels, it does not imply a commitment of Federal funding.
2 Target Capabilities List
Assumptions for Major Events
May occur at any time with little or no warning
Require significant information-sharing at the unclassified and classified levels across multiple
jurisdictions and between the public and private sectors
Involve single or multiple geographic areas
May have significant international impact and/or require significant international information
sharing, resource coordination, and/or assistance
Can span the spectrum of incident management to include prevention, protection, response, and
recovery
Involve multiple, highly varied hazards or threats
May result in numerous casualties; fatalities; displaced people; property loss; disruption of
normal life support systems, essential public services, and basic infrastructure; and significant
damage to the environment
Impact critical infrastructure across sectors
Overwhelm capabilities of State, local, and Tribal governments, and private-sector infrastructure
owners and operators
Attract an influx of spontaneous volunteers and supplies
May require short-notice asset coordination and response
May require prolonged, sustained incident management activities
Note: The assumptions for major events mirror those for Catastrophic events found in the National Response
Plan
The Underlying Assumption: Major Events Require Partnerships
The planning assumptions for major events which were used to develop the TCL are found in the
National Response Plan (NRP), which recognizes that such events will typically be managed at the lowest
possible geographic, organizational, and jurisdictional level using the principles in the National Incident
Management System (NIMS). The Catastrophic Incident Supplement to the NRP establishes a strategy
for accelerating the delivery and application of Federal and Federally accessible resources and capabilities
in support of a jurisdictional response to a no-notice or short-notice catastrophic mass victim/mass
evacuation incident. Nonetheless, the scope of major events demands that the combined expertise and
capabilities of government, private sector, and nongovernmental organizations be brought to bear as the
Nation addresses the homeland security missions.
Consensus of the Community Approach: Stakeholder Involvement
The Target Capabilities List was developed with an unprecedented level of stakeholder involvement. The
Department of Homeland Security adopted a “consensus of the community” approach, eliciting the active
involvement of local, State, and Federal agencies, over 120 national associations, non-governmental
organizations, and the private sector. Stakeholders participated through national stakeholder workshops,
working groups, and broad national reviews.
Target Capabilities List 3
The Approach to Defining Capabilities
The National Preparedness Guidelines identify three fundamental questions that must be addressed to
achieve a Nation prepared.
How prepared do we need to be?
How prepared are we?
How do we prioritize efforts to close the difference?
To answer these questions, we must first determine what threats we face and what we need to do to
achieve the homeland security missions to prevent, protect against, respond to, and recover from those
threats. We then need to determine what tasks need to be performed, how well they need to be performed,
and the capabilities needed to perform the tasks to the appropriate level of performance. The graphic
below illustrates the process used to develop the Target Capabilities List which helps us answer these
three questions.
Capabilities
Capabilities
Development
Development
National
Planning
Scenarios
Homeland
Security
Taxonomy
Universal
Task List
Target
Capabilities
List
Capabilities Development Process and Tools
Threat
Threat
Analysis
Analysis
Mission
Mission
Area
Area
Analysis
Analysis
Task
Task
Analysis
Analysis
PROCESS
TOOLS
Starting Point: Threat Analysis
The capabilities are derived from a threat and mission analysis. The first step in defining capabilities is
to answer the question “How prepared do we need to be?” The analysis, using the 15 National
Planning Scenarios, illustrates the range, scope, magnitude, and complexity of representative major
incidents, including terrorism, natural disasters, and other emergencies for which the Nation should
prepare. Mission analysis provides an overview of all the major functions related to achievement of
the four missions. It ensures that preparedness activities are focused on mission achievement.
4 Target Capabilities List
15 National Planning Scenarios
1. Improvised Nuclear Device
2. Aerosol Anthrax
3. Pandemic Influenza
4. Plague
5. Blister Agent
6. Toxic Industrial Chemical
7. Nerve Agent
8. Chlorine Tank Explosion
9. Major Earthquake
10. Major Hurricane
11. Radiological Dispersal Device
12. Improvised Explosive Device
13. Food Contamination
14. Foreign Animal Disease
15. Major Cyber Attack
Terrorism scenarios dominate because the U.S. has had less
experience with terrorist events than with natural disasters.
A preponderance of terrorist scenarios compensates for less
operational experience with these types of events.
Focus on Achievement of Mission
A mission area analysis was also conducted to identify the
major functions related to achievement of the four missions.
It helps to ensure that all preparedness activities are focused
on mission success.
A mission area analysis was conducted through a review of
official documents and doctrine to identify the objectives
and functional areas for each of the Homeland Security
Missions. This included a review of the Homeland Security
Strategy, legislation, the Presidential Directives, and related
doctrine. The result is the all-hazards taxonomy, which
shows the alignment of all homeland security activities
toward mission achievement. The taxonomy is shown on
the next page.
Task Analysis
The National Planning Scenarios serve as the basis for defining the tasks that may be required to prevent,
protect against, respond to, and recover from a wide range of threats and hazards, as well as the
capabilities necessary to perform the tasks. The Universal Task List (UTL) is the catalogue of tasks that
may need to be performed by governmental, non-governmental, and private-sector organizations, and the
general public. During a major event the number of people performing a task may need to increase and
may be performed by a combination of local agencies as well as teams from other jurisdictions, levels of
government, or the private sector. The UTL does not identify who will perform the task or how it should
be performed. That is left to the State, local, tribal, and territorial implementing agencies. No single
jurisdiction or agency is expected to perform every task. Rather, subsets of tasks will be selected
based on specific roles, missions, and functions. The current version of the UTL is a catalogue of nearly
4,800 tasks across the four mission areas.
Target Capabilities List 5
Target Capabilities
The TCL provides a guide for developing a national network of capabilities that will be available when
and where they are needed to prevent, protect against, respond to, and recover from major events. These
capabilities define all-hazards preparedness and provide the basis for assessing preparedness and
improving decisions related to preparedness investments and strategies. They establish planning tools for
preparing the Nation for major all-hazards events such as those represented by the National Planning
Scenarios.
The capabilities assume that local jurisdictions have an operational level of capabilities to address most
routine emergencies and disasters. For example, the TCL does not address capabilities for routine
firefighting or law enforcement services, or seasonal flooding. Instead, the TCL addresses capabilities-
based preparedness to prevent, protect against, respond to, and recover from terrorism, very large-scale
disasters, pandemic health emergencies, or other major incidents. Establishing plans, procedures,
systems, interagency relationships, training and exercise programs, and mutual aid agreements required
for major events will enhance performance for all hazard response.
6 Target Capabilities List
Key Components of the Target Capabilities List
The TCL currently comprises 37 capabilities which are listed in the chart on the next page. They address
preparedness for response capabilities, immediate recovery, selected prevention and protection mission
capabilities, as well as common capabilities such as planning and communications that support all
missions. For these capabilities, local jurisdictions and States are the lead in conjunction with appropriate
Federal and private sector support.
A Capability Summary has been developed for each
capability to describe and provide guidance on the
major capability components.
Definition, Outcome, NRP Relationship
Each capability summary begins with a definition of
the capability, and follows with an outcome
statement that describes the expected results or effect
to be achieved. The next section identifies the
relationship of the capability to the emergency
support function(s) described in the National
Response Plan.
Preparedness Activities, Critical Tasks,
Measures, and Metrics
Each capability includes a description of the major
activities performed with the capability and the
critical tasks and measures associated with the
activity. They include both preparedness and performance activities, tasks, and measures.
Preparedness activities and tasks are those things that should be done prior to the demand for the
capability. Development of plans, procedures, protocols, and systems; establishment of mutual aid
agreements and authorities; provision of training; and the conduct of exercises are all examples of
preparedness tasks. Critical tasks are tasks that are essential to achieving the desired outcome and to the
success of a homeland security mission. The critical tasks are derived from the tasks found in the
Universal Task List.
Capability Summaries Include
Definition
Outcome
Relationship to NRP Emergency Support
Function (ESF)/Annex
Preparedness Activities, Tasks, Measures,
and Metrics
Performance Activities, Tasks, Measures,
and Metrics
Activity Process Flow
Capability Elements
Linked Capabilities
Planning Assumptions
Planning Factors
National Preparedness Levels
References
Target Capabilities List 7
Phase I Capabilities (Included in this version of the TCL)
Common Capabilities
Planning
Communications
Community Preparedness and Participation
Risk Management
Intelligence and Information Sharing and
Dissemination
Prevent Mission Capabilities
Information Gathering and Recognition of
Indicators and Warning
Intelligence Analysis and Production
Counter-Terror Investigation and Law
Enforcement
CBRNE Detection
Protect Mission Capabilities
Critical Infrastructure Protection
Food and Agriculture Safety and Defense
Epidemiological Surveillance and
Investigation
Laboratory Testing
Respond Mission Capabilities
On-Site Incident Management
Emergency Operations Center
Management
Critical Resource Logistics and Distribution
Volunteer Management and Donations
Respond Mission Capabilities
(Continued)
Responder Safety and Health
Emergency Public Safety and Security
Animal Disease Emergency Support
Environmental Health
Explosive Device Response Operations
Fire Incident Response Support
WMD and Hazardous Materials Response
and Decontamination
Citizen Evacuation and Shelter-in-Place
Isolation and Quarantine
Search and Rescue (Land-Based)
Emergency Public Information and Warning
Emergency Triage and Pre-Hospital
Treatment
Medical Surge
Medical Supplies Management and
Distribution
Mass Prophylaxis
Mass Care (Sheltering, Feeding and
Related Services)
Fatality Management
Recover Mission Capabilities
Structural Damage Assessment
Restoration of Lifelines
Economic and Community Recovery
8 Target Capabilities List
Performance Activities, Critical Tasks, Measures, and Metrics
Performance activities and tasks are the actions taken to prevent, protect against, respond to, or recover
from an actual event or are demonstrated during an exercise. An Activity Process Flow Map shows the
major activities that are performed with the capability and how the capability links to other capabilities.
Performance measures are quantitative or qualitative levels against which achievement of a task or
capability outcome can be assessed. They describe how much, how well, or how quickly an action should
be performed and are typically expressed in ways that can be observed during an exercise or real event.
The measures and metrics are not standards. They serve as guides and evaluation tools for
planning, training, and exercise activities. However, nationally accepted standards of performance,
benchmarks, and guidelines are reflected, if applicable.
Sample Preparedness and Performance Measures and Metrics
Example from Citizen Evacuation and Shelter-In-Place Capability
Preparedness Measure Metric
Plans addressing authority and decision-making processes for shelter-
in-place and/or evacuation are in place
Yes/No
Populations that may need assistance with evacuation/shelter-in-place
have been identified
Yes/No
Plans to provide adequate services (e.g., gas, food, water, tow trucks,
emergency medical services, etc.) along evacuation routes are in place
Yes/No
Performance Measure Metric
Time in which affected population is notified of shelter-in-place order
Within 15 minutes from order to shelter-
in-place
Time in which the evacuation of the affected general population for an
event with advanced warning is completed
Within 72 hours from the order to
evacuate
Evacuation staging/reception areas in the affected area are
coordinated with necessary sites and assisting agencies
Yes/No
Capability Elements
A capability is provided with proper planning, organization, training, equipment, and exercises. The
capability elements define the resources needed to perform the critical tasks to the specified levels of
performance, with the recognition that there is rarely a single combination of capability elements that
must be used to achieve a capability.
Where applicable, NIMS Resource Typing Definitions were used to define resource organizations or
packages. Resource typing is the categorization and description of response resources that are commonly
exchanged in disasters through mutual aid agreements. Use of these standard definitions enables
emergency management personnel to identify, locate, request, order, and track outside resources quickly
and effectively and facilitate the response of these resources to the requesting jurisdiction. Additional
resources are being typed and personnel positions are being credentialed by the NIMS Integration Center.
Consistent with NIMS, the capability elements include personnel; planning; organization and leadership;
Target Capabilities List 9
equipment and systems; training; and exercises, evaluations, and corrective actions, as shown in the chart
below.
The Capability Elements serve as a guide for identifying and prioritizing investments when
working to establish a capability. Further, existing programs and activities represented as
Capability Elements have been included for reference purposes only, and are subject to change in
response to an evolving threat environment and competition for scarce resources.
Capability Elements
Planning
Collection and analysis of intelligence and information, and development of
policies, plans, procedures, mutual aid agreements, strategies, and other
publications that comply with relevant laws, regulations, and guidance
necessary to perform assigned missions and tasks.
Organization and Leadership
Individual teams, an overall organizational structure, and leadership at
each level in the structure that comply with relevant laws, regulations, and
guidance necessary to perform assigned missions and tasks.
Personnel
Paid and volunteer staff who meet relevant qualification and certification
standards necessary to perform assigned missions and tasks.
Equipment and Systems
Major items of equipment, supplies, facilities, and systems that comply with
relevant standards necessary to perform assigned missions and tasks.
Training
Content and methods of delivery that comply with relevant training
standards necessary to perform assigned missions and tasks.
Exercises, Evaluations, and
Corrective Actions
Exercises, self-assessments, peer-assessments, outside review,
compliance monitoring, and actual major events that provide opportunities
to demonstrate, evaluate, and improve the combined capability and
interoperability of the other elements to perform assigned missions and
tasks to standards necessary to achieve successful outcomes.
Planning Assumptions and Planning Factors
The Capability Working Groups developed planning assumptions to fill in data or details not provided by
the National Planning Scenarios. Some apply to any scenario; others are scenario-specific. They also
developed specific planning factors, which indicate estimates of the quantity of the capability elements
that address the demand for the capability defined by the scenario(s).
Target Capability Preparedness Levels
Because major events can exceed the normal operating capacity of any single jurisdiction, a collaborative,
national approach should be used to plan and prepare for major events. Target preparedness levels
represent suggested levels of capability that may be needed to prevent, protect against, respond to, and
recover from major events that demand a multi-level, multi-jurisdictional, multi-disciplinary response.
Stakeholder working groups suggested Target Capability preparedness levels based on an analysis of the
circumstances and consequences described in the National Planning Scenarios and the planning factors.
They were instructed not to let their knowledge of current resources limit their thinking about
requirements needed for major events and therefore these levels should be considered in the context of
broader resource constraints and regional priorities. The Target Capability levels take into account
10 Target Capabilities List
National Preparedness Levels for
Capabilities
The Target Capability preparedness levels
estimate what may be needed should major
events exceed the capacity of any single
jurisdiction.
Responsibility for meeting Target Capability
preparedness levels can be shared across
government and non-government entities.
Many of the resource estimates are not
standing requirements – they would be
assembled when and where they are
needed.
Assessments of current capabilities against
target levels can provide an indication of
relative preparedness.
adjustments to normal operating procedures that may need to be made during major events based on the
circumstances. Such adjustments may include altering performance standards, drawing resources from
many sources, making creative use of existing resources or relying on non-traditional resources (e.g.,
volunteers).
Assignment of Roles in Achieving Target
Capability Preparedness Levels
The TCL identifies the role of governments,
nongovernmental organizations, the private sector,
and citizens in achieving the target levels. The
assignment is based on the assumption that no
single jurisdiction is likely to have all capabilities
at sufficient levels to fully address its needs if
faced with a major event. Some jurisdictions will
possess the capability while others will access it
through mutual aid, if needed. During a major
event, all jurisdictions regardless of size may call
on support from other available public and private
sources appropriate to the scale of the event.
Stakeholder working groups analyzed the
elements of each capability by criticality, risk, and
demand to make recommendations regarding the
assignment of roles and responsibilities and the
distribution of the capability across the country.
The Target Capability Preparedness Levels represent ideal states of preparedness by capability for
the purposes of a common planning and measurement framework. However, actual preparedness
investment planning will combine this framework with both risk analysis as well as appropriate
resource prioritization on a regional basis. Further, the assignments of roles and responsibilities
are neither mandates nor statements of Federal policy. These portions of the TCL serve as a guide
for planning and measuring appropriate levels of preparedness and regional coordination.
Risk Factors Considered in Preparedness Planning
Risk is a combination of credible threat, vulnerability, and consequence. Risk factors that affect capability
need and placement include: population and population density, the presence of critical infrastructure and
key resources, location in high terrorist threat or high risk natural disaster areas, and capabilities to
prevent, protect against, or mitigate a threat. The relative importance of these risk factors in determining
where or how much of a capability is needed varies by capability, as described below.
Population and Population Density
Population and/or population density are determining factors for the assignment of many of the
capabilities. For example, the target levels and distribution of capabilities such as WMD Response and
Decontamination, Medical Surge, Mass Prophylaxis, and Citizen Evacuation and Shelter-In-Place
capabilities are directly related to population. Population density is a key factor in determining the
location of some capability resources, such as those for the Fire Incident Response Support and Explosive
Device Response Operations capabilities.
Target Capabilities List 11
The type and amount of resources needed are generally different in high population, high-density areas
than in less densely populated areas. For example, Type I Urban Search and Rescue (US&R) Task Forces,
which can extricate victims from heavy construction, are assigned to urban areas with high-rise buildings.
Collapse Search and Rescue Teams and Heavy Rescue Strike Teams and Squads may be more
appropriate in less urban areas. However, the Type I USAR Task Forces, if located in large metropolitan
areas, could be made available for deployment to jurisdictions in other geographic areas.
Critical Infrastructure
Many jurisdictions or geographic areas across the country have critical infrastructure or key resources
(CI/KR) that need to be considered in the determination of risk and distribution of capabilities. Because
the capabilities in the current TCL are more focused on response activities and the presence of critical
infrastructure and key resources are so widely distributed, this was less of a discriminating factor than
population.
Credible Threat
Capability-Based Planning allows the flexibility to adjust capabilities or target levels to account for
elevations or reductions in credible threat. In addition, a jurisdiction may have capability requirements
disproportionate to its population and critical infrastructure based on its terrorist threat level or its
location.
The TCL as a Tool for Expanded Regional Collaboration
Expanded Regional Collaboration is identified as the first priority in the National Preparedness
Guidelines in recognition that large scale events may require a shared response across jurisdictions, levels
of government, and the public/private sectors depending on the scale of the event. States are encouraged
to define geographic areas or regions, in consultation with local and tribal governments that share risk and
responsibility for a major event. The expanded region facilitates the strengthening of relationships among
participants, regional preparedness planning and operations support, and joint implementation of a
capabilities-based approach. Regions may be intra- or inter-State geographic areas, as appropriate, based
on shared risk and the need for joint planning and operations. Standardization of geographic regions will
enable the States, working with local and tribal government and other partners, to coordinate preparedness
activities more effectively, spread costs, pool resources, share risk, and thereby increase the overall return
on investment.
The Guidelines also encourage the establishment of multi-jurisdictional and multi-disciplinary working
groups consisting of representatives from the entities located within the region. Through joint planning,
the region will determine how best to achieve the capabilities, decide where the capabilities should be
built and maintained, and establish priorities for the use of limited resources. The working groups will use
the TCL as the basis to identify needed capabilities; assess current capability levels and gaps; identify,
analyze, and choose options; update strategies and plans; and assess preparedness.
The capability needs for a region may be informed by utilizing the Target Capabilities Preparedness
Levels as a guide for the jurisdictions within the region. For example, based on its jurisdictions, a region
may require access to one Type I Urban Search and Rescue Task Force, three Type II Collapse Search
and Rescue Teams, and so forth. Through a collaborative, regional planning approach, the jurisdictions
within the region will determine the most effective distribution and sharing of capability resources to
ensure that they are available when and where they are needed and that all of the jurisdictions within the
region have or have access to them as needed.
12 Target Capabilities List
Capability elements to perform critical tasks are associated with performance measures and metrics.
Some capabilities are universal, such as Planning or Communications. For other capabilities, the resource
target levels are directly related to size of the population. Teams with different levels of capability (e.g.,
Level I, II, and III Bomb Squads) are assigned to appropriate levels of government or local jurisdictions
based on demand for the capability. Specialized teams or resources are generally assigned to larger
jurisdictions where there is a greater demand for the resource and where a team with sufficient trained
personnel has the opportunity to maintain proficiency through calls-for-service. Teams with more limited
capabilities that require less personnel and equipment are assigned to smaller jurisdictions where they
provide an immediate response and can request assistance from specialized teams, if needed.
The performance measures and metrics for each capability define how quickly and how effectively
critical tasks should be performed. Criticality (i.e., how quickly a specific capability is needed to prevent
an incident, save lives, prevent suffering, or reduce major damage) is an important consideration in
determining where a capability is needed. For example, decontamination of victims of a chemical attack
must typically take place within a certain period of time in order to save lives. Therefore, the Target
Capability preparedness level for this capability does not vary by location, but would still vary by the
likelihood of the event. For example, the likelihood of an event requiring decontamination is often
significantly lower in a rural setting. Since the time to act is very short, the likelihood that a jurisdiction
could have an attack or an accidental release of toxic chemicals should impact its decision to either
develop a decontamination capability or secure timely access to it. For some other capabilities,
performance requirements may vary across jurisdictions. For example, the ideal time for a bomb squad to
arrive on-scene may be much shorter in a densely populated urban area than in a less populated area,
where evacuation of an area may be the initial response.
Using the Target Capabilities List
The Target Capabilities List should be viewed as a reference document or guide to preparedness. It
should not serve as a prescription for program requirements or resource commitments. Most users will
not use the TCL document directly and/or may only use one or a subset of capabilities that are relevant to
them. They will use those portions of the TCL that are relevant to them or to their specific application
through the TCL implementation tools. For example, the Homeland Security Exercise and Evaluation
Program (HSEEP) uses the TCL as the basis for designing, conducting, and evaluating exercises. HSEEP
pulls from the performance tasks and measures section of the capabilities. Through the exercise design
process, the planners determine which of the capabilities to test during the exercise. A single exercise
would not attempt to address all the capabilities.
The National Preparedness Guidelines and the Target Capabilities List provide the framework for
preparedness and support the implementation of the Preparedness Cycle. As illustrated below, the cycle
takes the user through a series of preparedness activities from conducting risk and capabilities
assessments, strategy development, planning, identification and filling of resources gaps, training,
exercises, and implementation of corrective actions.
Various implementation tools are being developed from the TCL to help decision-makers and managers at
all levels to define their preparedness needs, build needed capabilities, and assess levels of preparedness.
In addition, DHS is developing a Guide to Using the Target Capabilities List: A Framework for
Preparedness that will provide additional guidance on how to use the TCL throughout the steps in the
preparedness cycle.
Target Capabilities List 13
Preparedness Cycle
Conduct Capabilities Assessment
Develop Strategy
Identify/Purchase
Equipment
Develop Multi-year
Training and Exercise
Plan and Schedule
Conduct Risk Assessment
Plan and Resource Programs
Conduct Training
Conduct Exercises to
Validate Training and
Plans
Assign Corrective Actions
resulting from Exercise
Evaluation and Improvement
Plans
Track/Implement
Corrective Actions
Update Capabilities Assessment/
Strategy/Multi-year Plans
Risk Assessment
The determination of risk includes identification and characterization of threats and hazards, their
consequences, and our vulnerabilities. While each is important for capabilities-based planning and
national preparedness, determinations of vulnerability are important since they include not only exposure
and sensitivity, but resilience. Resilience is key since it refers to our coping capacity to absorb events,
adapt, and respond to and recover from its effects.
The completion of a risk assessment, the first step in the preparedness cycle, helps us understand the types
of threats and hazards we face. The National Planning Scenarios help us define the range and scope of
incidents for which we must prepare. They were used in the development of the capabilities to define the
critical tasks, the measures and metrics, and the resources to perform the tasks to the desired level of
performance. The TCL is designed to provide the nation with the network of flexible and adaptive
capabilities across the country to prevent, protect against, respond to, and recover from incidents similar
to those described in the National Planning Scenarios or other scenarios. Planners and officials at all
levels will assess and determine their greatest risks within this framework to inform planning efforts and
to establish priorities for addressing resource gaps, training, and exercises.
Preparedness Planning
The President called for a Nationwide Plan Review that assessed the status of catastrophic planning for
States and 75 of the Nation’s largest urban areas. It showed that the current status of plans and planning
14 Target Capabilities List
is not adequate for the 21
st
century homeland security challenges. The report identified the need for a
significant increase in collaboration, plan specificity, and resource management.
The Nationwide Plan Review Report concluded that:
• Planning products, processes, tools, and technologies should be developed to facilitate a common
nationwide approach to catastrophic planning.
• Critical tasks, target capabilities, and associated performance measures, such as those identified in the
National Preparedness Guidelines should serve as the common reference system
• Regional planning capabilities, processes, and resources should be strengthened in accordance with
the National Preparedness Guidelines’ national priorities to expand regional collaboration and
strengthen Planning and Citizen Preparedness Capabilities.
The TCL includes a Planning Capability designed to establish and maintain a capacity at all levels to
develop, update, and test preparedness plans. In addition, each capability contains both preparedness and
performance tasks and measures that support the capability outcome and serve as a guide for preparedness
planning. Further, Capabilities-Based Planning accounts for uncertainties, by developing capabilities
suitable for a wide range of threats and hazards, when limited resources necessitate prioritization and
choice among preparedness efforts.
As entities at all levels of government, nongovernmental organizations, and the private sector review and
enhance their plans, procedures, and protocols, the TCL provides a valuable reference to ensure that they
have identified the tasks and resources and built the capabilities necessary to assure preparedness. The
TCL can be used as a guide to identify roles and responsibilities and the need for mutual aid agreements
to facilitate the sharing of capabilities across the region to provide all jurisdictions with access to needed
capabilities.
Strategy Development and Investment Justifications
States and urban areas have developed Homeland Security Strategies that provide a blueprint for
comprehensive, enterprise-wide planning for homeland security efforts. They also provide a strategic
plan for the use of Federal, State, local, and private resources to prevent, protect against, respond to, and
recover from terrorist threats or attacks, major disasters, and other emergencies. In the summer of 2005,
States and urban areas updated their strategies to align their preparedness efforts to the National
Preparedness Guidelines, the National Priorities established in the Guidelines, and the Target Capabilities.
Beginning with FY2006 applications for the State and local Homeland Security Grant Program (HSGP),
investment justifications must demonstrate a linkage to Target Capabilities as well as outline the
anticipated impact, including how State and local capabilities will be enhanced.
Guidance
Grant guidance and application kits from DHS and other Federal agencies inform strategy development
and investment justifications.
Assessment of Preparedness
The TCL provides a basis for assessing preparedness. The vision for the National Preparedness
Guidelines is for a “Nation Prepared”. The National Planning Scenarios and the TCL provide a common
perspective to conduct assessments to determine levels of readiness to perform the critical tasks and to
identify and address any gaps or deficiencies.
Assessment information should inform decisions at all levels. Policymakers need regular reports on the
status of the capabilities for which they have responsibility to help them make better resource and
Target Capabilities List 15
investment decisions and to establish priorities. Emergency managers and planners require assessment
information to help them address deficiencies, to identify alternative sources of capabilities (e.g., from
mutual aid or contracts with the private sector), and to identify which capabilities should be tested
through exercises.
Assessment information is also needed by agencies or organizations that are expected to supplement or
provide capabilities during an incident. Assessments also provide the provider agencies/organization with
information required to set priorities, make investment decisions, and position capabilities or resources, if
needed.
Tools
A Capabilities Assessment Pilot is being implemented by DHS to test and validate the effectiveness of the
preparedness and performance measures and metrics in the TCL as a means of measuring preparedness.
The pilot assessment consists of three stages: self assessment, on-site validation, and post assessment
report and improvement. It looks at preparedness from a regional perspective, with a focus on regional
planning, coordination, and sharing of capabilities.
The National Preparedness System, described under planning, is being designed as a comprehensive
planning and assessment tool that can be used assess capabilities across all levels of government. It will
enable users to conduct a self assessment based on the TCL that takes into account validation information
from exercises, on-site assessment validations, peer reviews, and monitoring.
Focus Training on Ability to Perform Critical Tasks
Training programs should be reviewed and modified as appropriate to ensure that they prepare
participants to perform the critical tasks defined by the TCL to the proficiency level required to achieve
the capability outcomes.
States should develop Multi-year Training and Exercise Plans to build and assess capabilities. Each State
should use a combination of information from capabilities assessments that identify gaps, the State
Strategy that provides a plan to increase preparedness, and form improvement plans from completed
exercises to develop the Multi-year Training and Exercise Plan. The plans should map out the training
courses and exercises that will be conducted over the next 2-3 years. Subsequent training should focus on
building the knowledge, skills, and abilities to perform the critical tasks and should be completed prior to
being tested through exercises.
Test Capabilities through Exercises
Exercises provide a means to test and validate preparedness. The Homeland Security Exercise and
Evaluation Program (HSEEP) is designed to encourage a common exercise design, performance, and
evaluation methodology across all levels of government and the private sector. HSEEP exercises are
designed and evaluated to demonstrate capability levels through the assessment of performance of critical
tasks and achievement of outcomes, as defined by the TCL.
The exercise design process includes the following steps:
• Identify priority capabilities for improvement through exercises
• Select corresponding tasks for assessment
• Define exercise objectives based on capabilities, tasks, and jurisdiction needs
• Create a jurisdiction-specific scenario formulated specifically to meet exercise objectives
16 Target Capabilities List
HSEEP includes common evaluation tools based on the critical tasks and measures from the TCL. The
purpose of the evaluation approach is to encourage consistency and quality of data collection and
information, support qualitative and quantitative exercise analysis and assessment, and increase usability.
HSEEP also defines a standardized after action report (AAR) and improvement plan format. The AAR
provides the assessment of performance of the tasks related to priority capabilities. The improvement
plan is developed by the exercising entities and outlines specific actions and a timeline to enhance the
capabilities.
Tools and Guidance
The HSEEP policy and doctrine is organized into several volumes:
• HSEEP Volume I: HSEEP Overview and Exercise Program Management provides guidance for
building and maintaining an effective exercise program and summarizes the planning and evaluation
process described in further detail in Volumes II through V.
• HSEEP Volume II: Exercise Planning and Conduct helps planners outline a standardized
foundation, design, development, and conduct process adaptable to any type of exercise.
• HSEEP Volume III: Exercise Evaluation and Improvement Planning offers proven methodology
for evaluating and documenting exercises and implementing an improvement plan.
• HSEEP Volume IV: Sample Exercise Documents and Formats provides sample exercise materials
referenced in HSEEP Volumes I, II, III, and V.
• HSEEP Volume V: Prevention Exercises contains guidance consistent with the HSEEP model to
assist jurisdictions in designing and evaluating exercises that test pre-incident capabilities such as
intelligence analysis and information sharing.
Going Forward – Refinements to the TCL
The TCL represents a major step forward in defining preparedness and capabilities. It was developed
through the hard work of many hundreds of stakeholders from all disciplines, levels of government,
nongovernmental organizations, and the private sector. They were asked to set aside their jurisdictional
or agency perspective and define capabilities for the Nation and the role that every jurisdiction, State,
Federal agency, organization, and citizen will play in a shared response. Where standards and guidelines
exist, they were used, but standards and guidelines do not exist for many of the capabilities. Therefore,
much of the information in the TCL is based on the best judgment and expertise of those who were
involved in the working groups and those who reviewed and commented on it.
The TCL is a living document. It was designed to be enhanced and refined over time as we gain lessons
from its application or real world experience. The best way to do that is to start using it and to identify
and document where it needs to be changed. For example, are there critical tasks that need to be added or
refined? Are the measures and metrics the best measures of performance? Do they need to be modified
for different sized jurisdictions or for different scenarios? Are the capability resources adequate to
perform the critical tasks to the appropriate level of performance? Will the targets and assignment of
responsibility for building and maintaining the capabilities provide the network of capabilities that will be
available when and where they are needed?
If you see something in the TCL that does not work for your jurisdiction or agency, help to change it. Get
involved. Submit information on what does not work with a recommendation on how the TCL should be
changed or enhanced. Recommendations for changes to the TCL are welcome and will be reviewed and
integrated into future versions of the TCL, as appropriate. A change request form is posted on
Target Capabilities List 17
www.LLIS.gov. A Nation Prepared is a goal that can only be achieved over time and with the
involvement of those who work every day to secure the homeland from all threats, natural and man-made.
18 Target Capabilities List
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Target Capabilities List 19
Common Target
Capabilities
20 Target Capabilities List
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Target Capabilities List 21
COMMON MISSION: PLANNING
PLANNING
Capability Definition
Planning is the mechanism through which Federal, State, local and tribal governments, non-governmental
organizations (NGOs), and the private sector develop, validate, and maintain plans, policies, and
procedures describing how they will prioritize, coordinate, manage, and support personnel, information,
equipment, and resources to prevent, protect and mitigate against, respond to, and recover from
Catastrophic events. Preparedness plans are drafted by a litany of organizations, agencies, and/or
departments at all levels of government and within the private sector. Preparedness plans are not limited
to those plans drafted by emergency management planners. The planning capability sets forth many of the
activities and tasks undertaken by an Emergency Management planner when drafting (or updating)
emergency management (preparedness) plans.
Unlike the other target capabilities, the attributes of planning are difficult to quantify, as individual
planners may have considerably varied education and experience and still produce plans that lead to the
successful implementation of a target capability. The focus of the Planning Capability is on successful
achievement of a plan’s concept of operations using target capabilities and not the ability to plan as an
end unto itself. Plans should be updated following major incidents and exercises to include lessons
learned. The plans should form the basis of training and should be exercised periodically to ensure that
responders are familiar with the plan and able to execute their assigned role. Thus, it is essential that plans
reflect the preparedness cycle of plan, train, exercise, and incorporation of after action reviews and
lessons learned.
Outcome
Plans incorporate an accurate threat analysis and risk assessment and ensure that capabilities required to
prevent, protect against, respond to, and recover from all-hazards events are available when and where
they are needed. Plans are vertically and horizontally integrated with appropriate departments, agencies,
and jurisdictions. Where appropriate, emergency plans incorporate a mechanism for requesting State and
Federal assistance and include a clearly delineated process for seeking and requesting assistance from
appropriate agency(ies).
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
Planning supports all Emergency Support Functions (ESFs) and Annexes (support and incident) at the
Federal, State, local, territorial, and tribal levels.
Preparedness Tasks and Measures/Metrics
Activity: Conduct Strategic Planning
Definition: The art and science of developing and employing instruments of national and
State/territorial power (information, technology, economic, intelligence, and military) in a
synchronized and integrated fashion to achieve the objectives of the National Strategy for
Homeland Security, the National Preparedness Guidelines, the NRP, and supporting
State/territorial and local strategic direction and guidance. Strategic planning uses gap analysis
to develop programmatic priorities that address the mission requirements, goals, objectives,
milestones, and resources to ensure interoperable and integrated synchronization throughout all
22 Target Capabilities List
COMMON MISSION: PLANNING
levels of government and nongovernmental organizations for all hazards, incident-related
prevent, protect, respond, and recover activities.
Critical Tasks
ComA 1.1.3 Develop regional and State/local Strategic Plans
ComA 2.9.2 Identify, develop, and convene local preparedness planning organization(s)
ComA 2.2
Define and implement the responsibilities for standardized emergency management system
planning
ComA 2.2.2
Coordinate and integrate all response and recovery agencies/organizations in the planning
process
ComA 2.2.3
Coordinate and integrate nongovernmental organizations and the private sector entities into the
emergency management planning and decision-making processes
ComA 1.3.4
Conduct gap analysis to identify training, and exercise needs and to facilitate investment and
personnel decisions
ComA 1
Develop scalable strategic plans, based on normal response plans, to prevent, protect against,
respond to, and recover from natural and man-made disasters, as well as acts of terrorism
ComA 1.2 Establish the National Incident Management System
ComA 1.3 Establish and maintain a national preparedness assessment and reporting system
ComA 1.3.2
Develop a preparedness planning and review cycle that encompasses planning, training,
exercising, evaluation, and the incorporation of after action reviews (AAR) and lessons learned
(LL)
ComA 1.3.2.1
Track implementation of after action reviews and lessons learned for improvement and
corrective actions that enhance exercises and inform subsequent corrective training efforts
Preparedness Measures
Metrics
Regional and State/local strategic plans include, but are not limited to, the national mission
areas of prevent, protect against, respond to, and recover from man-made and natural disasters
and acts of terrorism
Yes/No
The strategic plan defines the vision, mission, goals, and objectives of the jurisdiction Yes/No
Strategic plan addresses protection against, response to, and recovery from natural and man-
made disasters as well as acts of terrorism
Yes/No
Planners are trained and equipped Yes/No
Frequency with which plans are reviewed and updated in accordance with Federal, State, and
local regulations and policies
Every 12 months
Improvement actions from after action reports (AARs) and lessons learned are implemented
according to the scale of disaster(s) and/or through defined Federal mandate for schedule for
completion
Yes/No
Activity: Develop/Revise Operational Plans
Definition: Use priorities identified in the Strategic Planning process, as well as any
recommendations/lessons learned, to guide the development of appropriate operational plans,
such as emergency operations plans (EOPs), comprehensive emergency management plans
Target Capabilities List 23
COMMON MISSION: PLANNING
(CEMPs), recovery plans, hazard identification risk analysis (HIRA) plans, mitigation plans, and
continuity of operations (COOP) plans. Operational plans identify the organizations and
resources required to execute the four functional mission areas of prevent, prepare, respond,
and recover.
Critical Tasks
ComA 2.1
Conduct a hazard analysis to identify threats, vulnerabilities, and consequences to be addressed
by emergency management and/or preparedness plans
ComA 2.1.3
Develop and maintain Comprehensive Emergency Management Plans (CEMPs) or similar
emergency management/preparedness plans
ComA 2.4
Develop emergency operations/response plans that describe how personnel, equipment, and
other governmental, nongovernmental, and private resources will support and sustain incident
management requirements
ComA 2.5
Develop and maintain Emergency Operations Plan (EOP) annexes for hazard specific response
to include natural and man-made disasters as well as acts of terrorism, and other hazards
ComA 2.3 Develop and execute mutual aid assistance agreements and compacts
ComA 2.7
Develop National, State/Local, and Non-Governmental Continuity Plans. All-level Continuity
Plans will describe how personnel, equipment, and other governmental, non-governmental, and
private resources will support the sustainment and/or reestablishment of essential functions.
Plans shall identify the critical and time sensitive applications, processes, and functions, to be
recovered and continued, following an emergency or disaster, as well as the personnel and
procedures necessary to do so, such as business impact analysis, business continuity
management, vital records preservation and alternate operating facilities
ComA 2.3.3
Develop regional coordination plans or activities that involve all Federal, State, local, territorial,
tribal, NGO, and private stakeholders
Preparedness Measures Metric
Continuity of Operation (COOP) plans describe how personnel, equipment, and other resources
support sustained response/survivability and recovery for all sectors
Yes/No
Continuity of Government (COG) plans describe the continued functioning of constitutional
government under all circumstances
Yes/No
Emergency response plans are consistent with the National Response Plan (NRP) and National
Incident Management System (NIMS)
Yes/No
Mutual aid assistance agreements are in place with contiguous jurisdictions Yes/No
Preparedness plans are consistent with NRP and NIMS Yes/No
Aid assistance agreements or contracts with private organizations are in place Yes/No
Pre-identified mechanisms to request assistance from counties, the State, or the Federal
Government are in place
Yes/No
Emergency response plans address substantial loss of public safety response capabilities during
catastrophic events (to include special needs populations and people with disabilities)
Yes/No
Frequency with which plans are reviewed and updated to ensure compliance with governmental
regulations and policies (Review requirements are intended to apply only when no pre-existing
review cycle has been established in Federal, State, or local requirements)
Every 12
months
24 Target Capabilities List
COMMON MISSION: PLANNING
Activity: Validate Plans
Definition: Evaluate operational plans through exercising, training, and real world events, and
use after-action reports (AARs) to support validation and revision of operational and strategic
plans
Critical Tasks
ComA 3.6
Ensure that trained, exercised, and equipped personnel are available to execute all planning
requirements as determined by applicable standards of proficiency
ComA 3.1
Develop exercises/drills of sufficient intensity to challenge management and operations and to
test the knowledge, skills, and abilities of individuals and organizations
ComA 3.2 Develop integrated national, regional, and State/local level exercises/drills
ComA 3.3
Develop regional and State/local level exercises of sufficient intensity to challenge management
and operations and test knowledge, skill and abilities of individuals and organizations
ComA 3.4 Develop lessons learned reports and procedures based on real world events and exercises
ComA 3.5
Develop, review, evaluate and update emergency management and/or preparedness plans based
on lessons learned and/or AARs to address problems/gaps and needed corrective actions
Preparedness Measures
Metric
Plans are exercised and/or evaluated according to Homeland Security Exercise and
Evaluation Program (HSEEP) requirements
Yes/No
Record of deficiencies is generated from plan review process within consensual or
mandated predetermined days for review
Yes/No
Time in which improvement plans to address deficiencies are generated Within 30 days from
development of record of
deficiencies
Frequency with which improvement plan actions are monitored for implementation Every 3 months
Linked Capabilities
Linked Capability Relationship
All Prevent Capabilities Planning provides all Prevent capabilities with a consistent foundation upon which the
other capability-specific plans, procedures, training, and exercise programs will be
developed
All Protect Capabilities Planning provides all Protect capabilities with a consistent foundation upon which the
other capability-specific plans, procedures, training, and exercise programs will be
developed
All Respond Capabilities Planning provides all Respond capabilities with a consistent foundation upon which the
other capability-specific plans, procedures, training, and exercise programs will be
developed
All Recover Capabilities Planning provides all Recover capabilities with a consistent foundation upon which the
other capability-specific plans, procedures, training, and exercise programs will be
developed
Target Capabilities List 25
COMMON MISSION: PLANNING
Validate Plans
Develop/Revise
Operational Plans
Conduct Strategic
Planning
Completed strategy with priorities
(training, equipment, operational
planning)
Completed plan for that cycle
Input lessons
learned and
improvement plan
Provide inputs into the
planning process
(lessons learned/gap
analysis/improvement
plan)
Provide planning framework
All Prevent
Capabilities
Linked
Capabilities
Planning Capability
Relationship
Capability Activity Process Flow
All Protect
Capabilities
All Respond
Capabilities
All Recover
Capabilities
Provide planning framework
Provide planning framework
Provide planning framework
26 Target Capabilities List
COMMON MISSION: PLANNING
Resource Element Description
Resource
Elements
Components and Description
Planners Planners dedicated to developing and maintaining homeland security, emergency
management, and/or all-hazards plans. Setting qualifications for planner should be
established by the jurisdiction.
Computer and planning
software tools
Includes computers with sufficient software tools to accomplish the specified tasks, such
as geographic information system tools, decision modeling programs, relational
databases, hazard modeling programs (i.e., computer-aided management of emergency
operations [CAMEO], multihazard loss estimation methodology [HAZUS]) and
consequence modeling tools.
Required training
program
Training may include but is not limited to courses offered through Federal, State, local
and private organizations, such as Federal Emergency Management Agency (FEMA),
Emergency Management Institute (EMI), Office for Domestic Preparedness (ODP)
Training Consortium, State training academies, and colleges and universities.
Completion of one or more of the above may meet minimum requirements.
Planning Assumptions
This capability applies to a wide range of incidents and emergencies including terrorist attacks, other
manmade disasters, and natural disasters. It is intended to address deliberate planning coordination.
A catastrophic incident will present a dynamic response and recovery environment requiring that
response plans and strategies be flexible enough to effectively address emerging or transforming
needs and requirements.
A “dedicated planner” is one full-time equivalent (FTE) person whose work is focused exclusively
(“dedicated”) on the development and maintenance of homeland security, emergency management,
and/or all-hazards plans.
The human or physical resources identified in the response strategy may not be available for 24-48
hours of a catastrophic event due to jurisdiction-specific considerations of resource management in
times of crisis(es) (e.g., resource needs at their home institutions, family requirements, over-
extension, limits established in MOAs, etc.).
A catastrophic incident may have significant international dimensions. These include potential
impacts on the health and welfare of border community populations, cross-border trade, transit, law
enforcement coordination, and other areas.
Planning occurs with respect to the incident (strategic, operational, and tactical/incident) and
according to the appropriate jurisdictional level (Federal, State, local, tribal).
All operational personnel are trained on all appropriate plans and their role within those plans.
Plans are validated through review, testing and exercises.
Plans are written in accordance with NIMS.
Planners have knowledge, experience, and/or training in subject areas.
The planning process includes hazard analysis and risk assessment.
The UTL is a menu of tasks that can be used in developing plans-to-task development.
Target Capabilities List 27
COMMON MISSION: PLANNING
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Planner Personnel 1 Per every 250k
population in each
State
State All Activities
Planner Personnel 2 Per territory State All Activities
Planner Personnel 2 Per UASI city and
Washington, DC
Local All Activities
Required training
program
Training 1 Per planner Federal/State/
Local
All Activities
Computer and
planning software
tools
Equipment 1 Per planner Federal/State/
Local
All Activities
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. Biological Incident Annex. In the National Response Plan. U.S. Department of Homeland Security. December
2004.
4. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/xlibrary/assets/NIMS-90-web.pdf.
5. State and Local Guide 101: Guide for All-Hazard Operations Planning. Federal Emergency Management
Agency. April 2001. http://www.fema.gov/plan/gaheop.shtm
6. NFPA 1600—Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa.
7. Resource Definitions: 120 Resources. National Mutual Aid and Resource Management Initiative, U.S.
Department of Homeland Security, Federal Emergency Management Agency. September 2004.
http://www.nimsonline.com/docs/Resource_Typing_Definitions_II.pdf.
8. Emergency Management Accreditation Program (EMAP) Standards. September 2003.
http://www.emaponline.org/index.cfm
9. Hazardous Material Emergency Planning Guide. National Response Team. NRT–1. Updated 2001.
http://www.nrt.org/Production/NRT/NRTWeb.nsf/AllAttachmentsByTitle/SA-27NRT1Update/$File/NRT-1
update.pdf?OpenElement.
10. Federal Executive Branch Continuity of Operations (FPC–65). June 2004.
http://www.fema.gov/txt/government/coop/fpc65_0604.txt.
11. Enduring Constitutional Government and Continuity of Government Operations (PDD–67). October 1998.
http://www.emergency-management.net/laws_pdd67.htm
28 Target Capabilities List
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Target Capabilities List 29
COMMON MISSION: COMMUNICATIONS
COMMUNICATIONS
Capability Definition
Communications is the fundamental capability within disciplines and jurisdictions that practitioners need
to perform the most routine and basic elements of their job functions. Agencies must be operable,
meaning they must have sufficient wireless communications to meet their everyday internal and
emergency communication requirements before they place value on being interoperable, i.e., able to
work with other agencies.
Communications interoperability is the ability of public safety agencies (police, fire, EMS) and service
agencies (public works, transportation, hospitals, etc.) to talk within and across agencies and jurisdictions
via radio and associated communications systems, exchanging voice, data and/or video with one another
on demand, in real time, when needed, and when authorized. It is essential that public safety has the intra-
agency operability it needs, and that it builds its systems toward interoperability.
Outcome
A continuous flow of critical information is maintained as needed among multi-jurisdictional and multi-
disciplinary emergency responders, command posts, agencies, and the governmental officials for the
duration of the emergency response operation in compliance with National Incident Management System
(NIMS). In order to accomplish that, the jurisdiction has a continuity of operations plan for public safety
communications including the consideration of critical components, networks, support systems,
personnel, and an appropriate level of redundant communications systems in the event of an emergency.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
Primary: ESF#2: Communications
Communications supports all ESFs at the Federal, State, local, and tribal levels.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
ComC 1
Develop communication plans, policies, procedures, and systems that support required
communications with all Federal, regional, State, local, and tribal governments and agencies as
well as voluntary agencies
ComC 1.2.1
Develop procedures for the exchange of voice and data with Federal, regional, State, local, and
tribal agencies, as well as voluntary agencies
ComC 1.6
Develop supplemental and back-up communications and information technology plans,
procedures, and systems
ComC 1.6.2 Identify emergency communications and data requirements for each stakeholder
ComC 1.1.1
Develop a continuous improvement plan that enriches interoperable communications to provide
advanced customer service, reliability, and operational effectiveness
30 Target Capabilities List
COMMON MISSION: COMMUNICATIONS
ComC 1.6.5
Complete an assessment of standard communication capabilities for the Public Safety Answering
Points (PSAPs) and Public Safety Communication Centers to ensure an appropriate Continuity of
Operations Plan (COOP) is in place for public safety and service agencies’ communications
ComC 1.7.3
Develop plans to provide telecommunication and information technology support to Federal,
regional, State, tribal and local officials and the private sector
ComC 1.4
Design reliable, redundant, and robust communications systems for daily operations capable of
quickly reconstituting normal operations in the event of disruption or destruction
ComC 1.7.2
Coordinate procurement and placement of technology communication systems based on a gap
analysis of requirements versus existing capabilities
ComC 1.5 Develop information systems protection procedures
ComC 1.5.1
Develop and maintain automated credential verification systems to ensure proper credentialing
for controlled access areas
ComC 1.3 Establish and maintain information systems across response entities
ComC 1.3.1
Develop interoperable telecommunication and Information Technology systems across
governmental departments and agencies
Preparedness Measures
Metrics
Operable communications systems that are supported by redundancy and diversity, that
provide service across jurisdictions, and that meet everyday internal agency requirements, are
in place
Yes/No
Communication systems support on-demand, real-time interoperable voice and data
communication
Yes/No
Plans and procedures are in place to ensure appropriate levels of planning and building public
safety communication systems prior to an incident
Yes/No
Plans and procedures are in place to ensure appropriate levels of upgrading/enhancing public
safety communication systems and equipment prior to an incident
Yes/No
Plans and procedures are in place to ensure appropriate levels of replacing public safety
communication systems and equipment prior to an incident
Yes/No
Plans and procedures are in place to ensure appropriate levels of maintaining public safety
communication systems and equipment prior to an incident
Yes/No
Plans and procedures are in place to ensure appropriate levels of managing public safety
communication projects prior to an incident
Yes/No
Assessment of standard communication capabilities for Public Safety Answering Points
(PSAP)/Public Safety Communication Centers and Emergency Operations Centers (EOC) to
ensure appropriate Continuity of Operations Plan (COOP) for public safety and service
agencies’ communications has been completed
Yes/No
Communications Continuity of Operations Plan (COOP) that outlines back-up systems
available at State and local levels, including protocols for use of systems, is in place
Yes/No
Communications standard operating procedures (SOPs) that conform to NIMS are in place
and are used in routine multiple jurisdictional responses
Yes/No
A multi-agency and multi-jurisdictional governance structure to improve communications
interoperability planning and coordination has been established
Yes/No
Formal interoperable communications agreements have been established through the
governance structure
Yes/No
Target Capabilities List 31
COMMON MISSION: COMMUNICATIONS
Interoperability communications plans have been developed through governance structure and
include all relevant agencies for data and voice communications.
Yes/No
Interoperability policies and procedures to allow information sharing between levels of
government and Federal installations involved in incident, as necessary and as possible, are in
place
Yes/No
Redundant and diverse interoperable communication systems are available Yes/No
Plans to coordinate the procurement of communications assets to ensure interoperability are in
place
Yes/No
Plans to acquire and influence sustained interoperability and systems maintenance funding
have been developed
Yes/No
Plans include a procedure to return communications back to normal operations after each
significant incident
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
ComC 2.1.1 Develop and implement awareness training programs for response communications
ComC 2.1.2
Develop exercises/drills of sufficient intensity to challenge management and operations and to
test the knowledge, skills, and abilities of individuals and organizations for response
communications
ComC 2.2.1
Develop and conduct training to improve all-hazard incident management capability for response
communications
ComC 2.2.2
Conduct an after action review to determine strengths and shortfalls and develop a corrective
plan accordingly for response communications
Preparedness Measures
Metric
Communications-specific tabletop exercises are conducted with multi-jurisdictional and
multi-agency operations, technical, and dispatch participants
Yes/No
Communications-specific operational exercises with multi-jurisdictional and multi-agency
participants are conducted
Yes/No
Operational exercises include an observer specifically to monitor the communications piece to
ensure there is adequate information to provide in the After Action Report (AAR) to correct
any communication problems that occurred for the future
Yes/No
Frequency with which plans, procedures, and use of all operable communications systems are
tested and/or exercised in large and complex exercises
Every 12 months
All personnel including non traditional stakeholders have been trained to operate
communications systems according to their incident role
Yes/No
Frequency with plans, procedures, and use of all interoperable communications equipment are
reviewed tested and/or exercised
Every 12 months
Interoperability systems are used in pertinent everyday activities and emergency incidents to
ensure familiarity with system and cooperation
Yes/No
32 Target Capabilities List
COMMON MISSION: COMMUNICATIONS
Performance Tasks and Measures/Metrics
Activity: Alert and Dispatch
Definition: In response to an alert, make notification and provide communications management
until the Incident Command (IC), Emergency Operations Center (EOC), and Emergency
Management Agency (EMA) are stood-up
Critical Tasks
ComC 4.2 Implement incident communications interoperability plans and protocols
ComC 4.2.1 Communicate incident response information
ComC 4.2.1.1
Use established common response communications language (i.e., plain English) to ensure
information dissemination is timely, clear, acknowledged, and understood by all receivers
ComC 3.4
Request external resources using EMAC and other mutual aid/assistance processes (inter- and
intra-State)
ComC 3.5 Initiate documentation process of required forms and follow-up notations
ComC 4.2.3
Report and document the incident by completing and submitting required forms, reports,
documentation, and follow-up notations on immediate response communications
ComC 4.1.1 Ensure that all critical communications networks are functioning
ComC 4.3 Implement procedures to protect information facility and communication network systems
Performance Measures Metric
Time in which immediate dispatch information is provided to primary first responders
during regular operations
Within 60 seconds from
call classification by
dispatch
Time in which Emergency Operations Centers (EOCs), first responders, and special
resources acknowledge receipt and understanding of radio communications
Within 30 seconds from
the end of transmission
Percent of communications sent and received that are completely understood without
ambiguity by the sender or the intended receiver
90%
Frequency with which communications back-up is provided (per COOP and/or
incident plan process) during emergencies when the conventional mode of
communications fail or become overloaded to assure continued service amidst incident
Continuous
Time in which alternate communications and/or dispatch center are staffed in the event
of a catastrophic loss of the primary site
Within 1 hour from the
loss of primary site
COOP is activated based upon nature and disruption of new failure Yes/No
Recovery time per classification of failure is realistic and alternative recovery
processes are in place for incident support
Yes/No
Percent (above normal peak traffic) of technical surge and back-up capabilities within
communications and/or dispatch centers to process incoming calls effectively with the
loss of any one communication or dispatch centers (assumes surge staffing will be
available in 30 minutes)
200%
COOP allows for maximum response per incident type and duration Yes/No
Target Capabilities List 33
COMMON MISSION: COMMUNICATIONS
Activity: Provide Incident Command/First Responder/First Receiver/Interoperable
Communications
Definition: In response to notification of an incident, go to the scene to provide and receive
interoperable voice data and video communications
Critical Tasks
ComC 4.2 Implement incident communications interoperability plans and protocols
ComC 4.2.1 Communicate incident response information
ComC 4.2.2
Coordinate incident site communications to be consistent with the National Incident
Management System (NIMS) framework
ComC 4.2.1.1
Use established common response communications language (i.e., plain English) to ensure
information dissemination is timely, clear, acknowledged, and understood by all receivers
ComC 4.2.3
Report and document the incident by completing and submitting required forms, reports,
documentation, and follow-up notations on immediate response communications
ComC 4.1.1 Ensure that all critical communications networks are functioning
ComC 4.1 Establish and maintain response communications systems on-site
ComC 4.3 Implement procedures to protect information facility and communication network systems
Performance Measures
Metric
Frequency with which local first responders are provided with tactical communications
with approved local delivery process specified to incident
Continuous
Frequency with which tactical communications are provided between local disciplines
(i.e., law enforcement, fire, and EMS) and among local fire units operating in the disaster
site with approved delivery process specific to incident
Continuous
Percent of communications sent and received that are completely understood without
ambiguity by the sender or the intended receiver
90%
Frequency with which communications back-up is provided during emergencies when the
conventional mode of communications fail or become overloaded
Continuous
COOP and/or Incident Action Plan process assures continued service amidst incident Yes/No
Time in which tactical communications are provided for regional first responders
responding to the disaster site is within parameters of interoperability plans, as approved
by governance structure/body
Yes/No
Percent of mobile communications coverage provided in rural areas affected by disaster 95%
Percent of street-level hand-held communications coverage provided in urban/suburban
areas affected by disaster
95%
Percent of in-building hand-held communications coverage provided in central areas
affected by disaster
95%
Tactical communications are provided for large regional “task forces” providing recovery
assistance to disasters and other emergencies within parameters of interoperability plan, as
approved by the governance structure/body
Yes/No
34 Target Capabilities List
COMMON MISSION: COMMUNICATIONS
Activity: Provide Emergency Operations Center Communications Support
Definition: Upon notification, initiate interoperable system operations, in addition to maintaining,
managing, and assuring protection of the interoperable communications systems until the EOC is
ordered deactivated
Critical Tasks
ComC 4.2 Implement incident communications interoperability plans and protocols
ComC 4.2.1 Communicate incident response information
ComC 5.4.7 Inform staff and management of interoperable communications requirements
ComC 5.4.5
Provide direction, information and/or support as appropriate to incident command (IC) or unified
command (UC) and/or joint field office(s)
ComC 5.3.1.2
Coordinate and provide telecommunications and information technology support to Federal,
regional, State, tribal, and local officials and the private sector(s)
ComC 5.2 Establish and ensure connectivity with EOC/MACC
ComC 5.4 Coordinate communications policy and procedure across response entities
ComC 4.1 Establish and maintain response communications systems on-site
ComC 5.3 Establish and maintain interoperable information systems network within the EOC
ComC 5.3.1.1 Coordinate placement of latest technology that is available to agencies participating in response
ComC 5.3.3 Assure redundant communications circuits/channels are available for use
ComC 4.1.1 Ensure that all critical communications networks are functioning
ComC 4.2.1.1
Use established common response communications language (i.e., plain English) to ensure
information dissemination is timely, clear, acknowledged, and understood by all receivers
ComC 5.5
Maintain a common operating picture (COP) for real time sharing of information with all the
participating entities to ensure all responder agencies are working from the same information
ComC 4.2.3
Report and document the incident by completing and submitting required forms, reports,
documentation, and follow-up notations on immediate response communications
ComC 4.3 Implement procedures to protect information facility and communication network systems
ComC 5.3.1.3
Coordinate and open State communications support/channels to local and tribal government and
the private-sector to assist in awareness, prevention, response, and recovery communications
activities
Performance Measures
Metric
Percent of communications sent and received that are completely understood without
ambiguity by the sender or the intended receiver
90%
Frequency with which communications back-up is provided during emergencies when the
conventional mode of communications fail or become overloaded
Continuous
COOP and/or Incident Action Plan process to assure continued service amidst incident is
in place
Yes/No
Key officials are notified in the event of an incident using relevant tools and technologies
(e.g., call down lists, SMS messages, etc.)
Yes/No
Target Capabilities List 35
COMMON MISSION: COMMUNICATIONS
Activity: Provide Federal Facilities, Task Force, and Recovery Assistance Interoperable
Communications
Definition: In response to an alert, make notification and provide communications management
until the Incident Command and EOC are stood-up
Critical Tasks
ComC 4.2 Implement incident communications interoperability plans and protocols
ComC 4.2.1.1
Use established common response communications language (i.e., plain English) to ensure
information dissemination is timely, clear, acknowledged, and understood by all receivers
ComC 4.2.3
Report and document the incident by completing and submitting required forms, reports,
documentation, and follow-up notations on immediate response communications
Performance Measures
Metric
Tactical communications are provided for large regional “task forces” providing recovery
assistance to disasters and other emergencies within the parameters of interoperability
plans, as approved by governance structure/body
Yes/No
Frequency with which communications back-up is provided during emergencies when the
conventional modes of communication fail or become overloaded
Continuous
COOP and/or Incident Action Plan process assures continued service amidst incident Yes/No
Percent of communications sent and received that are completely understood without
ambiguity by the sender or the intended receiver
90%
Communications policies and procedures are followed Yes/No
Activity: Return to Normal Operations
Definition: Initiate deactivation procedures for the interoperable communications system and
return the system to a ready state
Critical Tasks
ComC 4.2.1.1
Use established common response communications language (i.e., plain English) to ensure
information dissemination is timely, clear, acknowledged, and understood by all receivers
ComC 4.2.3
Report and document the incident by completing and submitting required forms, reports,
documentation, and follow-up notations on immediate response communications
ComC 7.1.1 Develop communications section of the demobilization plan
ComC 7.1 Initiate interoperable deactivation procedures
ComC 7.1.2 Monitor communications demobilization
Performance Measures
Metric
Percent of communications sent and received that are completely understood without
ambiguity by the sender or the intended receiver
90%
36 Target Capabilities List
COMMON MISSION: COMMUNICATIONS
Linked Capabilities
Linked Capability Relationship
All Prevent Capabilities Communications provides all Prevent capabilities with operable and interoperable
communications
All Protect Capabilities Communications provides all Protect capabilities with operable and interoperable
communications
All Respond Capabilities Communications provides all Respond capabilities with operable and interoperable
communication
All Recover Capabilities Communications provides all Recover capabilities with operable and interoperable
communications.
Target Capabilities List 37
COMMON MISSION: COMMUNICATIONS
38 Target Capabilities List
COMMON MISSION: COMMUNICATIONS
Resource Element Description
Resource Elements Components and Description
Interoperability Communications
Plan
A plan for a designated area that includes governance, standard operating
procedures, technology, training and exercises, and usage. An Interoperability
Communications Plan is created for each designated participant area prior to an
incident
Governance Group Organization of agencies and jurisdictions who have entered governance
agreements (i.e., memorandum of understanding/memorandum of agreement
[MOU/MOA]) to coordinate decision making across agencies and jurisdictions.
Technology—System of
Systems
Operable communication systems for the disciplines and jurisdiction as defined
by the local requirements that allows for mutual aid components to connect in
when authorized and as necessary. System-of-systems consists of local, State,
and Federal components that can be connected through common interface
standards. Element includes the following processes: Needs assessment;
Evaluate current capability; Develop requirements; Perform gap analysis;
System alternatives (with costs and types); Phase-in implementation; Define
spectrum needs; Define security/encryption needs; Develop future upgrade
plan and budget process.
Interoperable Communications
Technical Assistance Program
(ICTAP) Teams
Technical assistance team that implements the ICTAP, a program designed to
enhance interoperable communications among local, State, and Federal
emergency responders and public safety officials, and is associated with the
Department of Homeland Security Office of Grants and Training’s (G&T)
Urban Area Security Initiative (UASI) grant program. Each team provides
technical assistance in four phases: Phase 1: Define Technical Assistance
Requirements; Phase 2: Define Enhancements Needed; Phase 3:
Implementation; Phase 4: Continued services as needed until local support is in
place
Public Safety Answering Point
(PSAP) and Public Safety
Communications Center
Continuity of Operations Plan
Plan that provides ability to have redundant and back-up systems in place
during an emergency
Planning Assumptions
This capability reaches across all 15 National Planning Scenarios and within each capability. All
major incidents require communication and interoperability to facilitate management of an incident.
Therefore, the target level of interoperability is independent of a specific scenario. Interoperability is
a support function for all other responder capabilities, so this mission-critical capability must be in
place to ensure the personnel who are providing the other capabilities have access to the information
they need to respond appropriately.
Interoperability is the communication between disciplines and jurisdictions that permits real time
exchanges of information on demand, with whoever needs it, when properly authorized, in
conformance with the Incident Command System.
Communications is the transmission of thoughts, messages, or information. The ability to
communicate is critical to effective emergency response and is one of the most difficult tasks that
must be performed during an incident or event. Effective communication during an emergency
Target Capabilities List 39
COMMON MISSION: COMMUNICATIONS
requires a system that is both interoperable and redundant. The ability to transmit thoughts,
messages, and information can be accomplished through a multitude of ways. In emergency
response, the mechanisms that assist personnel in communications can vary, but are largely made up
of wireless voice (radio), voice and data telephone (wireless and landline), wireless data, and internet
voice/data.
Communications interoperability is the ability of multiple entities to intermingle meaningful
transmission of thoughts, messages, or information while using similar or dissimilar communications
systems. A redundant communications system is a duplication of communications systems that can
be accessed by personnel for the purpose of responding to, and/or mitigating and recovering from an
incident or event.
One of the major issues facing public safety and service agencies is the inability to communicate with
one another when the need arises. Effective and efficient emergency response requires coordination,
communication, and sharing of vital information among numerous public safety agencies. As the
National Strategy for the Physical Protection of Critical Infrastructures and Key Assets observes,
“most systems supporting emergency response personnel have been specifically developed and
implemented with respect to the unique needs of each agency.”
Public Safety Answering Point (PSAP), Public Safety Communication Centers, and Emergency
Operation Centers (EOCs) must be in place and competently operational with the resources, and
operational integrity to perform during an incident.
Agencies must be “operable,” meaning they must have sufficient public safety and service agency
communications capabilities to meet their everyday internal requirements before they place value on
being “interoperable,” meaning being able to work with other disciplines and agencies. They need to
improve those systems first but this improvement planning needs to include a vision for improved
interoperability with other disciplines and agencies. At a time when more attention is being paid to
interoperability among different disciplines and jurisdictions within the community, there still exists
fundamental communication deficiencies within disciplines and jurisdictions as practitioners strive to
perform the most routine and basic elements of their job functions.
These deficiencies result in daily communication challenges for those working on the front lines in
public safety and service agencies. The Interoperability Continuum (see reference link below)
outlines critical elements for the planning and implementation of successful public safety and service
agencies’ communications and interoperability solutions. These elements include governance,
standard operating procedures, technology, training and exercises, and usage of interoperable
communications. To drive progress along the five elements of the continuum and improve
interoperability, public safety and service agency practitioners should observe the following
principles:
Gain leadership commitment from all public safety and services agencies.
Foster collaboration across all public safety and services agencies for planning and
implementation.
Work with policy makers to gain leadership commitment and resource support for
interoperability.
Plan and budget for ongoing updates to systems, procedures, and documentation.
Use interoperability solutions on a regular basis.
Interoperability is a support function for all other responder capabilities, so this mission critical
capability must be in place to ensure the other capabilities have access to the information they need to
respond.
Existing Continuity of Operations Plans (COOPs) for public safety and service agency
communications systems are in place.
40 Target Capabilities List
COMMON MISSION: COMMUNICATIONS
Individual agencies and jurisdictional systems must be operable and functioning before mutual aid
can come in and connect to interoperate.
Spectrum management should be coordinated to allow adequate allocation across all disciplines and
jurisdictions.
Critical infrastructure protective actions have been implemented to ensure communications systems
remain operable.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource Organization Estimated
Capacity
Scenario
Requirement Values
Quantity of
Resources Needed
Interoperability
Communications Plan
One plan supports
each designated
participating area
All appropriate planning
has been done prior to an
incident
One per designated
participant area
Governance Group One governance
group supports each
participating area
All appropriate
interactions, decisions and
agreements have been
made prior to incident to
ensure effective response
at the incident
One governance group
per participating area as
designated by local
responder requirements
Technology- System of Systems System that is
appropriately
connected to achieve
interoperability
when authorized and
as necessary
One operable
communication system
for each individual
agency
Interoperable Communications
Technical Assistance Program
(ICTAP) Teams
Needed prior to incident
to ensure appropriate
planning and engineering
support is in place during
an incident
20 ICTAP teams for
technical engineering and
planning as requested by
the participating area
Approaches for Large-Scale Events
Because interoperability refers to the coordination and communication of command level or other
authorized staff at the operational level, all large-scale events and the 15 National Planning Scenarios
require plans that provide for established interoperability infrastructure before the incident occurs.
Planning should include the ability to reconstitute normal communications systems that have been
saturated, disrupted, or destroyed during an event.
Target Capabilities List 41
COMMON MISSION: COMMUNICATIONS
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Interoperability
Communications
Plan
Plan 1 Per State/Territory State All Activities
Interoperability
Communications
Plan
Plan 1 Per intrastate
Region
Local
(Intrastate
region)
All Activities
Interoperability
Communications
Plan
Plan 1 Per UASI city Local (City) All Activities
Governance Group Organization
and Leadership
1 Per State State All Activities
Governance group Organization
and Leadership
1 Per intrastate
Region
Local
(Intrastate
region)
All Activities
Technology—
System of Systems
Resource
Organization
1 Nationally Federal/State/
Local
All Activities
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/xlibrary/assets/NIMS-90-web.pdf.
4. Emergency Management Accreditation Program (EMAP) Standards. September 2004.
http://www.emaponline.org/index.cfm.
5. Federal Leadership Needed to Facilitate Interoperable Communications Between First Responders. U.S.
Government Accountability Office. September 2004. http://www.mipt.org/pdf/gao041057t.pdf.
6. The State and Local Role in Domestic Defense. Policy Briefing. Cohen, John D., and Hurson, John A.
Progressive Policy Institute. January 2002. http://www.ppionline.org/documents/local_home_d.pdf.
7. Resource Definitions: 120 Resources. National Mutual Aid and Resource Management Initiative, U.S.
Department of Homeland Security, Federal Emergency Management Agency. September 2004.
http://www.nimsonline.com/docs/Resource_Typing_Definitions_II.pdf.
8. National Association for Amateur Radio. http://www.arrl.org/
9. NFPA 1221—Standard for the Installation, Maintenance and Use of Emergency Services Communications
Systems. National Fire Protection Association. 2002 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1221.
10. NFPA 1561—Standard on Emergency Services Incident Management Systems. National Fire Protection
Association. 2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561.
42 Target Capabilities List
COMMON MISSION: COMMUNICATIONS
11. Plan for Accelerating the Development of National Voluntary Consensus Standards for Public Safety
Interoperable Communications. Report to Congress in Response to House Report 108-796 to the Fiscal Year
2005 Department of Homeland Security Intelligence Reform Bill. March 2005.
12. Tactical Interoperable Communications Planning Guide. U.S. Department of Homeland Security, Office for
Domestic Preparedness, Interoperable Communications Technical Assistance Program. April 2004.
13. Statement of Requirements for Public Safety Wireless Communications and Interoperability Version 1.0. U.S.
Department of Homeland Security, Office for Interoperability and Compatibility, SAFECOM Program. March
10, 2004 http://www.safecomprogram.gov/NR/rdonlyres/3FFFBFBA-DC53-440E-B2EF-
ABD391F13075/0/SAFECOM_Statement_of_Requirements_v1.pdf..
14. Interoperability Continuum. U.S. Department of Homeland Security, Office for Interoperability and
Compatibility, SAFECOM Program. April 2005. http://www.safecomprogram.gov/NR/rdonlyres/54F0C2DE-
FA70-48DD-A56E-3A72A8F35066/0/ContinuumBrochure.pdf.
15. Operational Guide for the Interoperability Continuum: Lessons Learned from RapidCom. U.S. Department of
Homeland Security, Office for Interoperability and Compatibility, SAFECOM Program. Summer 2005.
16. Recommended Federal Grants Guidance: Public Safety Communications & Interoperability Grants. U.S.
Department of Homeland Security, Office for Interoperability and Compatibility, SAFECOM Program.
November 2004. http://www.safecomprogram.gov/SAFECOM/library/grant/1017_recommendedfederal.htm.
17. Statewide Communications Interoperability Planning (SCIP) Methodology. U.S. Department of Homeland
Security, Office for Interoperability and Compatibility, SAFECOM Program.
http://www.safecomprogram.gov/SAFECOM/library/interoperabilitycasestudies/1223_statewidecommunication
s.htm
18. Why Can’t We Talk? Working Together To Bridge the Communications Gap to Save Lives. National Task Force
for Interoperability guide. National Institute of Justice. February 2003. http://www.ojp.usdoj.gov/nij/pubs-
sum/204348.htm
19. Technical Assistance Catalog. See assistance related to the Interoperable Communications Technical Assistance
Program (ICTAP): CBRNE Terrorism Prevention #103 (PREV-103), CBRNE Terrorism Response # 214
(RESP-214), and CBRNE Terrorism Recovery #304 (RECV-304). U.S. Department of Homeland Security,
Homeland Security Preparedness Technical Assistance Program.
http://www.ojp.usdoj.gov/odp/docs/ODP_TA_Catalog.pdf
Target Capabilities List 43
COMMON MISSION: RISK MANAGEMENT
RISK MANAGEMENT
Capability Definition
Risk Management is defined by the Government Accountability Office (GAO) as “A continuous process
of managing—through a series of mitigating actions that permeate an entity’s activities—the likelihood of
an adverse event and its negative impact.” Risk Management is founded in the capacity for all levels of
government to identify and measure risk prior to an event, based on credible threats/hazards,
vulnerabilities, and consequences, and to manage the exposure to that risk through the prioritization and
implementation of risk-reduction strategies. The actions to perform Risk Management may well vary
among government entities; however, the foundation of Risk Management is constant.
Currently there are a variety of tools, processes, and offerings in practice and under development to serve
the capability of Risk Management. As with the distribution of the National Infrastructure Protection
Plan, the Department of Homeland Security has outlined core requirements for the management of risk,
and will continue to serve this capability through additional technical assistance. As communities mature
their Risk Management capability they are encouraged to look to DHS for continued guidance and
updates to Threat information from the aforementioned Homeland Infrastructure Threat and Risk
Analysis Center (HITRAC) office as well as guidance on the further development of a risk analysis
methodology for critical asset protection.
Outcome
Federal, State, local, tribal and private sector entities identify and assess risks, prioritize and select
appropriate protection, prevention, and mitigation solutions based on reduction of risk, monitor the
outcomes of allocation decisions, and undertake corrective actions. Additionally, Risk Management is
integrated as a planning construct for effective prioritization and oversight of all homeland security
investments.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
ESF #1: Transportation
ESF #3: Public Works and Engineering
ESF #4: Firefighting
ESF #5: Emergency Management
ESF #6: Mass Care, Housing, and Human Services
ESF #8: Public Health and Medical Services
ESF #9: Search and Rescue (Land-Based)
ESF #10: Oil and Hazardous Materials Response
ESF #12: Energy
ESF #13: Public Safety and Security
ESF # 14: Long-Term Community Recovery and Mitigation
44 Target Capabilities List
COMMON MISSION: RISK MANAGEMENT
Preparedness Tasks and Measures/Metrics
Activity: Develop Risk Framework
Definition: Develop a framework for how risk assessments and risk analysis will serve the
business process of managing “risks” and a process for stakeholder buy-in. Establish a
comprehensive stakeholder governing process to oversee an all-encompassing ongoing
perspective of the risks posed onto the respective community. This body should include public
administrators, the owners and operators of critical infrastructure and key assets within the
given community, as well as key stakeholders and decision makers. Furthermore, the
“framework” must consider the functional as well as spatial relationships of assets as they are
often interrelated.
Critical Tasks
ComE 1.1
Ensure senior leadership communicates in writing the risk framework and intent to use risk
analysis to all stakeholders
ComE 1.2 Develop actionable risk management strategy with short, medium, and long-term objectives
ComE 1.3 Develop risk analysis and risk management plans and procedures
ComE 1.3.1 Develop standards and guidelines to guide risk assessment activities
ComE 1.4 Develop and implement risk analysis training programs for state, local, and private entities
ComE 1.4.1 Conduct training in modeling and the use of analytical tools
ComE 1.4.2
Conduct risk management training for security, response, and recovery managers
ComE 1.5
Develop and implement programs to assess changes in risk and effectiveness of risk
management
ComE 1.5.1 Develop system for collecting and sharing lessons learned regarding risk management
Preparedness Measures
Metric
An actionable risk management strategy that includes short, medium, and long term
objectives is in place
Yes/No
Risk analysis and risk management plans are in place Yes/No
A strategy to mitigate current risk profile has been implemented Yes/No
Schedule and capability for updating risk analysis and risk management plans is in place Yes/No
State, local, and private entities have been trained to conduct risk analysis Yes/No
Monitoring program to detect changes in risk is in place Yes/No
Program to assess program/security measures implementation is in place Yes/No
Activity: Assess Risks
Definition: Assess potential targets within given system of governance as well as in relation to
other systems. Identify functional as well as spatial relationships of assets and systems
infrastructure and assets. This activity may be applied to assets (power generation), systems
Target Capabilities List 45
COMMON MISSION: RISK MANAGEMENT
(power supply grids), Sectors (power industry) and geographic areas (metropolitan areas). Risk
management includes risks from both man made events and acts of nature.
Critical Tasks
ComE 2.1 Conduct criticality analysis (also known as screening) to identify potential targets
ComE 2.2
Conduct vulnerability assessments to assess vulnerability of potential targets to identified
threats
ComE 2.3 Conduct consequence analysis of critical assets
ComE 2.4 Conduct threat assessment of potential targets
ComE 2.4.1
Conduct or obtain intelligence community threat/hazard analysis through State or local
Interagency Working Groups (Joint Terrorism Task Force) to identify threats to potential
targets
ComE 2.4.2
Obtain intelligence reporting and the receipt of the threat data through the Department of
Homeland Security’s Homeland Infrastructure Threat and Risk Analysis Center (HITRAC)
ComE 2.5 Calculate risk to potential targets based on threat, vulnerability, and consequence
ComE 2.6 Establish relative order of priorities for risk mitigation among risk portfolio
ComE 2.7
Conduct response and recovery capabilities analysis to determine capability to respond to and
recover from the occurrence of identified risks
Performance Measures
Metrics
Criticality results were used to identify potential targets Yes/No
Threat, vulnerability, and consequence results were used to assess risk for potential targets Yes/No
A comprehensive risk assessment has been completed for potential targets identified Yes/No
Risk assessment plans and procedures were implemented Yes/No
Activity: Prioritize Risks
Definition: Rate and/or rank criticality of potential targets to mitigate or transfer associated risk
(if possible) as related to given target within a system of targets
Critical Tasks
ComE 3.1 Identify potential protection, prevention, and mitigation strategies for high-risk targets
ComE 3.2
Prioritize identified strategies by risk reduction expected outcomes appreciating the various
threat, vulnerabilities, and consequences that affect that community, system or asset
Performance Measures
Metrics
Risk and risk reduction results were used to prioritize risk-reduction strategies Yes/No
Integration of a schedule and strategy to implement risk reduction strategies, including
milestones, funding strategies, and opportunity costs where possible has been completed
Yes/No
Integration of a schedule and strategy for reducing the greatest risk posed to the respective
stakeholder has been completed
Yes/No
46 Target Capabilities List
COMMON MISSION: RISK MANAGEMENT
Activity: Develop Business Case
Definition: Develop cost-benefit/cost-effectiveness analysis for consideration of applicable
prescribed measures required to mitigate associated risks to an asset or system of assets;
consider opportunity costs associated to one measure versus another
Critical Tasks
ComE 4.1 Develop or select methodology for cost-benefit/cost-effectiveness analysis of risk reduction
solutions
ComE 4.2 Select risk reduction solutions for implementation based on risk reduction strategies
ComE 4.3 Allocate resources to support risk reduction solutions
Performance Measures
Metrics
Funding priorities reflect risk assessment and prioritization of risk-reduction strategies Yes/No
Solutions were selected and resources allocated Yes/No
Resources were allocated and measures established to shift to a new risk reduction target Yes/No
Activity: Manage Risk
Definition: Manage and monitor risk through continued assessment and analysis. Continuous
consideration should be given to refresh the given threat, emerging vulnerabilities, and changing
consequences to the system or assets under consideration.
Critical Tasks
ComE 5.1 Monitor the progress of solution implementation
ComE 5.1.1 Undertake corrective actions
Performance Measures
Metrics
Selected solutions have been verified as successfully implemented Yes/No
Selected solutions were effective in reducing risk Yes/No
Activity: Conduct Risk Communication
Definition: Develop understanding and appreciation of risk assessment, risk analysis, and risk
management principles, and develop avenues for receiving information on threat, vulnerability,
and consequence
Critical Tasks
ComE 6.1
Share the assessment of sector-specific infrastructure risk with interdependent entities within
appropriate sectors
Performance Measures
Metrics
Risk management strategy is communicated regularly with stakeholders (monthly or
quarterly reporting)
Yes/No
Target Capabilities List 47
COMMON MISSION: RISK MANAGEMENT
Linked Capabilities
Linked Capability Relationship to Capability
CBRNE Detection CBRNE Detection provides potential threat information used in the risk
assessment process of Risk Management
Critical Infrastructure Protection Critical Infrastructure Protection uses the risk assessment process to prioritize
protection decisions
Emergency Operations Center
Management
Risk Management provides risk assessments to Emergency Operations Center
Management
Intelligence and Information
Sharing and Dissemination
Risk Management provides information for Intelligence and Information
Sharing and Dissemination
Intelligence Analysis and
Production
Risk Management provides analysis processes to Intelligence Analysis and
Production
Planning Risk Management is a key step in the all-hazards planning process.
48 Target Capabilities List
COMMON MISSION: RISK MANAGEMENT
Target Capabilities List 49
COMMON MISSION: RISK MANAGEMENT
Resource Element Description
Resource Elements Components and Description
Local law enforcement
Personnel with skills, ability, and training to promulgate local risk assessment
and risk management strategies, with a focus on risk management, and to
participate in risk communication activities
Urban Area Working Groups
Personnel with skills, ability, and training to promulgate local risk assessment
and risk management strategies, with a focus on risk management, and to
participate in risk communication activities
Regional Transit Security
Working Groups
Personnel with skills, ability, and training to promulgate local risk assessment
and risk management strategies, with a focus on risk management, and to
participate in risk communication activities
Area Maritime Security
Committees
Personnel with skills, ability, and training to promulgate local risk assessment
and risk management strategies, with a focus on risk management, and to
participate in risk communication activities
Owners and Operators of
Critical Infrastructure/Key
Resources (CI/KR)
Personnel with skills, ability, and training to promulgate emergency operations
plans (EOPs) as part of local and regional risk management strategies, and to
participate in risk communication activities
State Administrative Agencies
(SAAs)
Personnel with skills, ability, and training to promulgate State-wide risk
assessment and risk management strategies; to participate in risk
communications activities; and to use risk reduction tools to evaluate alternate
risk management strategies
Federal law enforcement and
homeland security community
Personnel with skills, ability, and training to promulgate national risk
assessment and risk management strategies; to participate in risk
communications activities; and to create, disseminate, and use risk reduction
tools to evaluate alternate risk management strategies
Joint Terrorism Task Forces
(JTTFs)
Task forces formed at the local level and composed of persons from various
government and private entities (e.g., law enforcement, public health, local
businesses, key infrastructure representatives, emergency management, and
other first responders).
National intelligence community
Personnel with skills, ability, and training to support national risk assessment
and Risk Management strategies and to participate in risk communications
activities. Training and formal education are keys to having a sound Risk
Management background. Various levels of government will require varying
levels of experience or capabilities
Risk analysis/risk management
tools
Tools to facilitate risk analysis/risk management
Cost estimating tools Tools to estimate costs of risk management decisions
Geographical Information
System (GIS) data collection
tools
Tools to facilitate the collection of geographically-specific data
Planning Assumptions and Definitions
Risk assessments can be conducted in a relative manner. Calculated threat and risk ratings will not
represent absolute probabilities, unless accurate probability data is readily available, but rather will be
measured relative to other threats.
50 Target Capabilities List
COMMON MISSION: RISK MANAGEMENT
Scenario-based risk assessment will be used to evaluate threat, vulnerability, and consequence. For
purposes of consistency the National Planning Scenarios should be used.
Input will be sought from the national intelligence community, including JTTFs, to establish viable
threats and the relative likelihood of those threats. To seek alignment with the National Infrastructure
Protection Plan would be to use the threat analysis generated by DHS/ Homeland Infrastructure
Threat and Risk Analysis Center (HITRAC) in coordination with the intelligence community. This
would provide a more authoritative and more consistent threat input.
Scenario-specific threat assessments will include evaluation of target value, weapon availability,
attack simplicity, as well as past history and specific intelligence information. Target values will
require expert opinion and should be coordinated with the intelligence community and/or Federal
stakeholders. Furthermore, the "intent" and "capability" of the adversary must be applied to assess
terrorist threat. This approach is consistent with the DHS/NIPP threat analysis approach.
Vulnerability analysis will measure the likelihood that specific scenarios could be executed
successfully based on an evaluation of physical features, security capabilities, and response
capabilities that serve to prevent an attack from being successful.
Consequence analysis will measure the expected outcome of specific scenarios based on analysis of
the susceptibility to attack of the asset given the functional characteristics of the targets, likely
cascading impacts to interdependent assets, and the availability of response and recovery capabilities.
Prevention, response, and recovery assessments will also be based on the same set of scenarios.
Total systemic risk will be calculated as an integration of risk across all targets and scenarios within a
jurisdiction.
Appropriate protection, prevention, and mitigation solutions will be evaluated using risk-reduction
tools. Threat, vulnerability, and consequence will be re-evaluated based upon implementation of
solutions. Initial risk calculations serve as a benchmark against which risk reduction is measured.
Criticality assessments will be based on critical target factors that represent the mission of targets to
the Federal, State, local, and tribal entities. Considerations should be provided to the factors of
human health impact, economic impact, national strategic mission impact, and psychological impact
as aligned to Homeland Security Presidential Directive-7.
Life cycle costs for identified solutions will be evaluated, including implementation costs such as
training and recurring costs such as personnel and maintenance, and discounted to produce a net
present cost. Where available and known, costs to upgrade will be included.
Resources will be allocated through cost-benefit analysis, comparing total risk reduction and costs.
From an actionable perspective, all communities of interest are responsible for risk communication.
Risk communication may include but should not be limited to intelligence data, potential terrorism
target selection or infrastructure selection, and anomalies which may result in prevention and or
deterrence. Furthermore, there are tactical, strategic, and operational responsibilities for each
respective community of interest.
Federal, State, and local governments and the private sector all have a role in managing risk. Each
should develop an understanding and appreciation of the principles of risk assessment, analysis and
management. Each should develop a framework that integrates risk management in their business,
and include a process for stakeholder buy-in and governance.
There are current departmental activities aligned to develop a national baseline for risk management
architecture. The Department of Homeland Security has defined the framework as the appreciation
for consequence, threat, and vulnerability. Given this foundation and the work of the Department, a
target architecture should be forthcoming. The National Infrastructure Protection Plan (to be
released) provides a framework for the foundations of risk management. Specifically, Chapter 3 and
Appendix 3 of the National Infrastructure Protection Plan.
Target Capabilities List 51
COMMON MISSION: RISK MANAGEMENT
The work within this target capability is focused on “terrorism risk,” as it is that adversarial
relationship that this target capability is designed for under the disciplines of homeland security. It is
intended to establish the fundamental equations that define terrorism risk and to standardize
terminology for conduct of a terrorism risk assessment. However, the ability to plan for catastrophic
events such as natural disasters should be considered equally within the greater scheme of risk
management.
Although estimates can be made as to the potential goals of terrorist groups, the targets that they
might select, and the types of weapons that they might use, the actions of terrorists do not absolutely
conform to any set of rules or statistics. Because relatively few attacks have occurred in the United
States, historical data using trend analysis cannot predict future events and may be of only limited use
in predicting even the type, time, or location of attacks that might be launched.
Because of the human element, there is a linkage between terrorism risks at different potential targets.
Unlike most forms of risk, where the likelihood of the event occurring at any given location is
independent, with terrorism the likelihood of the event occurring is very much dependent on actions
that occur at other potential targets. If security measures are increased at one target (target
hardening), the relative likelihood of attack can increase at other potential targets (soft targets). This
happens because additional security measures could direct resources away from one target and
towards others with lower levels of deterrence.
Similarly, the relative value of a potential target can also have a major effect on the likelihood of
attack. Terrorist target sites will meet certain goals for an attack, including casualties, economic
disruption, or symbolic importance. A larger relative value for one potential target over another
makes it more likely that the site might be attacked. Changes in the relative value of other sites could
have the effect of changing the risk of terrorism at a particular site, even if no change occurred at the
site itself.
Standard algorithms and terminology for evaluating risk must be modified to deal with the effects of
the human-element and of the linkages between targets.
Target attractiveness measures the features of a particular asset that may make it more or less likely to
be targeted by terrorists for a particular form of attack. Evaluation of target attractiveness should
include an evaluation of two sets of features: target value and deterrence. Target value evaluates
those features of an asset that make it more likely that an asset will be attacked; features that make the
asset attractive as a target. These may include: potential for casualties, potential for economic
disruption, and symbolic importance. Deterrence evaluates those features that make a target less
likely to be attacked. These features primarily include visible security and known response
capabilities.
In instances where frequency of attack can be reasonably evaluated using statistical analysis or some
other direct form of estimate, that metric can be directly used for target attractiveness.
The Consequence of a terrorist attack is a product of the criticality of the target and the impact that an
attack would have on that criticality.
Consequence = (Criticality) X (Impact)
Criticality is broadly defined as the particular aspects or features of an asset that would make
someone want to protect the asset against an attack. Generally, criticality is defined using a set of
‘Critical Asset Factors’. These factors define the specific features of an asset that could make it
important to protect that asset from attack. Examples of typical critical asset factors include:
Loss of Life
Economic losses
Disruption of Government Services
Degradation of Critical Infrastructures and Key assets
52 Target Capabilities List
COMMON MISSION: RISK MANAGEMENT
Symbolic and Psychological Impact
Cascading impacts on interdependent assets
Once the risk has been determined, the likelihood of an attack being successful can be assessed. In
determining the susceptibility of an attack or “vulnerability to attack” it is assumed that the asset has
been targeted, that the terrorists have the required weapon(s) and equipment, and that the attack will
take place. The susceptibility then measures the probability that the attack would achieve its desired
result given the constraints that are in place at the target, including physical constraints, operational
constraints, and security measures.
There are a number of methods that can be used to calculate or estimate susceptibility. These range
from simple ratings of security capabilities to complex, simulation-based evaluations of detailed
attack scenarios. The most appropriate method will depend on the type of asset and the goals of the
risk assessment. In general, however, an appropriate assessment of susceptibility would include an
evaluation of physical features, security capabilities, and response capabilities that serve to prevent an
attack from being successful. These activities can also be categorized as those that serve to deny,
detect, delay, or defend against the attack, and are addressed by other capabilities in the TCL.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Risk assessment does not focus on single incidents but rather assesses risk across a number of viable
threats and critical assets.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per
x)
Lead Capability Activity
supported by
Element
Local law
enforcement
Personnel As Needed Local Develop Risk
Framework
Assess Critical
Infrastructure Risks
Manage Risk
Conduct Risk
Communication
Urban Area
Working Groups
Personnel As Needed Local Develop Risk
Framework
Assess Critical
Infrastructure Risks
Manage Risk
Conduct Risk
Communication
Regional Transit
Security Working
Groups
Personnel As Needed Local (Intrastate
region)
Develop Risk
Framework
Assess Critical
Infrastructure Risks
Manage Risk
Target Capabilities List 53
COMMON MISSION: RISK MANAGEMENT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per
x)
Lead Capability Activity
supported by
Element
Conduct Risk
Communication
Area Maritime
Security
Committees
Personnel As Needed Local (Intrastate
region)
Develop Risk
Framework
Assess Critical
Infrastructure Risks
Manage Risk
Conduct Risk
Communication
Owners and
operators of critical
infrastructure/ key
resources (CI/KR)
Personnel As Needed State/Local/
Private Sector
Develop Risk
Framework
Conduct Risk
Communication
Assess Critical
Infrastructure Risks
and Manage Risk
Analyze
Interdependencies of
Assets (Functional,
Spatial)
State
Administrative
Agencies
Personnel As Needed State Assess Critical
Infrastructure Risks
Prioritize Risks
Develop Business
Case
Manage Risk
Conduct Risk
Communication
Federal law
enforcement and
homeland security
community
Personnel As Needed Federal (DHS)
Develop Business
Case
Manage Risk
Conduct Risk
Communication
Joint Terrorism
Task Forces
(JTTFs)
Personnel As Needed Federal (DOJ,
DHS)
Develop Business
Case
Manage Risk
Conduct Risk
Communication
National
intelligence
community
Personnel As Needed Federal
Develop Business
Case
Manage Risk
Conduct Risk
Communication
54 Target Capabilities List
COMMON MISSION: RISK MANAGEMENT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per
x)
Lead Capability Activity
supported by
Element
Risk analysis/risk
management tools
Equipment As Needed Federal/State/
Local
Assess Risk
Cost estimating
tools
Equipment As Needed Federal/State/
Local
Develop Business
Case
Manage Risk
Geographical
Information
System (GIS) data
collection tools
Equipment As Needed Federal/State/
Local
Assess Risk
References
1. National Infrastructure Protection Plan. Department of Homeland Security.
2. Homeland Security Presidential Directive/HSPD-8, “National Preparedness”. December 2003.
http://www.whitehouse.gov/releases/2003/12/20031217-6.html
3. National Response Plan (NRP). Department of Homeland Security, December 2004.
4. National Incident Management System (NIMS). Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf
5. Walker, David M. “Strategic Budgeting: Risk Management Principles Can Help DHS Allocate Resources to
Highest Priorities,” United States Government Accountability Office, Testimony Before the Subcommittee on
Management, Integration, and Oversight, Committee on Homeland Security, House of Representatives, GAO-
05-824T, June 29, 2005: http://www/gao.gov/new.items/d05824t.p
Target Capabilities List 55
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
COMMUNITY PREPAREDNESS AND
PARTICIPATION
Capability Definition
The Community Preparedness and Participation capability provides that everyone in America is fully
aware, trained, and practiced on how to prevent, protect/mitigate, prepare for, and respond to all threats
and hazards. This requires a role for citizens in personal preparedness, exercises, ongoing volunteer
programs, and surge capacity response. Specific capabilities for UNIVERSAL preparedness, including
knowledge of all-hazards (technological, natural, and terrorist incidents) and related protective measures,
skills, and supplies, will be determined through a collaborative process with emergency responders.
Outcome
There is a structure and a process for ongoing collaboration between government and nongovernmental
resources at all levels; volunteers and nongovernmental resources are incorporated in plans and exercises;
the public is educated and trained in the four mission areas of preparedness; citizens participate in
volunteer programs and provide surge capacity support; nongovernmental resources are managed
effectively in disasters; and there is a process to evaluate progress.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability should play a role in ESFs and Annexes at the Federal, State, tribal, and local levels.
Preparedness Tasks and Measures/Metrics
Activity: Establish Collaborative Structure and Process for Government and Non-
Governmental Entities at All Levels
Definition: Develop an organizational entity with member representation from emergency
responder disciplines, elected officials, voluntary organizations, civic organizations, faith-based
organizations, special needs advocacy groups, private sector, neighborhood associations,
educational institutions, and critical infrastructure.
Critical Tasks
ComF 1.1.1
Establish leadership support at the national, State, tribal, and local levels for Citizen Corps
Councils
ComF 1.2
Establish and maintain Citizen Corps Councils at all levels of government: Federal, State, tribal,
local
ComF 1.2.2
Establish a strategic plan for the Citizen Corps Council’s jurisdiction to engage all residents in
preparedness, training, drills/exercises, and volunteer support taking into account the
jurisdiction’s potential threats, critical infrastructure, population density, and population
composition
ComF 1.3 Develop all-hazards preparedness requirements and a process to sustain citizen capabilities
ComF 1.2.3 Implement a process to count and assess membership of Citizen Corps Councils
56 Target Capabilities List
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Preparedness Measures
Metrics
Number of local Citizen Corps Councils nationwide 2500
Percent of total U.S. population served by a Citizen Corps Council 99%
Membership of Citizen Corps Council includes representatives from government,
emergency management officials, civic organizations, faith-based organizations, special
needs advocacy groups, private sector, critical infrastructure, education, and
neighborhood associations
Yes/No
Strategic plan to engage all residents in preparedness, training, drills/exercises, and
volunteer support is in place
Yes/No
Local Citizen Corps Councils coordinate with State level Citizen Corps Councils Yes/No
Activity: Integrate Public Outreach and Non-Governmental Resources into Emergency
Operations Plans and Exercises
Definition: Include sufficient planning for alerts and public warnings, emergency public education
and information, evacuation, mass care, health and medical services, non-governmental volunteer
and donations resource management, and establish clear roles and protocols for volunteers for
all ESFs and Annexes. Evaluate plans through exercises that include non-governmental entities,
volunteer operations, and the general public.
Critical Tasks
ComF 2.1 Integrate citizen participation in the planning process at all levels
ComF 2.1.1
Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises,
and volunteer opportunities), consideration for individuals with disabilities and their care givers
ComF 2.1.2
Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises,
and volunteer opportunities), consideration for individuals who do not speak English
ComF 2.1.3
Incorporate in all plans, procedures, and protocols (including outreach, training and exercises,
and volunteer opportunities), consideration for individuals with low income and limited
resources
ComF 2.1.4
Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and
volunteer opportunities), consideration for age-related issues and concerns
ComF 2.1.5
Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and
volunteer opportunities), consideration for companion and service animals
ComF 2.3.1
Integrate non-governmental entities, volunteers, and the general public in exercise planning,
implementation, and review of all levels (national/international, regional, State, tribal, urban,
local) and types of exercises (all hazards, terrorism, bioterrorism, natural disasters)
ComF 2.2.2
Establish and maintain a database of the jurisdiction’s non-governmental assets to include
entities that manage trained and skilled volunteers, unaffiliated volunteers, and donated goods
ComF 2.2.3
Establish necessary stand-by contracts and MOAs and MOUs with appropriate private sector and
non-governmental organizations to augment government resources with NIMS-credentialed
volunteers and NIMS-typed materials.
ComF 2.4
Establish and maintain a process to evaluate citizen preparedness and participation and to
recognize exemplary citizens in preparedness programs
ComF 2.4.1 Implement processes to evaluate and periodically reassess citizen related component of
Target Capabilities List 57
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Emergency Operations Plans, to include alerts and warnings, public education and emergency
public information, evacuations, mass care, and non-governmental resource management
ComF 2.4.2 Implement a process to evaluate non-governmental participation in exercises at all levels
ComF 2.5
Support community infrastructure to achieve appropriate levels of preparedness, to include
developing community-wide automated alerts and warning systems and training citizens working
in critical infrastructure locations
Preparedness Measures Metrics
Percent of State and UASI jurisdictions’ EOPs that address citizen preparedness and
participation, establish volunteer support for ESFs, and plan for use of non-governmental
resources
100%
Percent of exercises that engage non-governmental entities, volunteers and the general
public
100%
Frequency with which non-governmental entities and citizens (i.e., non-emergency
responders) participate in planning, implementing, and reviewing community emergency
exercises
Every 24 months
Plans include MOUs specific to non-governmental entities (e.g., personnel and resources) Yes/No
Performance Tasks and Measures/Metrics
Activity: Provide Education and Training for the Public in All Mission Areas
Definition: Ensure the public is educated and trained in prevention, protection, response, and
recovery for all hazards, with specific consideration for high-threat hazards for the area in which
they live, work, or attend school and for special needs
Critical Tasks
ComF 3.1
Plan, conduct, and evaluate public education programs for citizen prevention,
protection/mitigation, response and recovery capabilities
ComF 3.1.2
Provide continuing education and training for the public on: prevention, protection and
mitigation measures, community emergency response plans, alerts and warnings (including threat
levels), evacuation/in-place protection plans and exercises, participating in government-
sponsored emergency exercises, volunteer opportunities and training for year round volunteer
role or surge capacity role in response and recovery
ComF 2.1.1
Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises,
and volunteer opportunities), consideration for individuals with disabilities and their care givers
ComF 2.1.2
Incorporate, in all plans, procedures, and protocols (including outreach, training and exercises,
and volunteer opportunities), consideration for individuals who do not speak English
ComF 2.1.3
Incorporate in all plans, procedures, and protocols (including outreach, training and exercises,
and volunteer opportunities), consideration for individuals with low income and limited
resources
ComF 2.1.4
Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and
volunteer opportunities), consideration for age-related issues and concerns
ComF 2.1.5
Incorporate in all plans, procedures and protocols (including outreach, training and exercises, and
volunteer opportunities), consideration for companion and service animals
ComF 3.2.1 Train the public to be aware and to report suspicious items and behavior
58 Target Capabilities List
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
ComF 3.2.2
Provide crime prevention, counter-terrorism and public education program materials in multiple
languages
ComF 3.2.3
Assist owners of critical infrastructure in increasing security measures and strengthening
connection to local law enforcement through Citizen Corps Councils
ComF 3.2.4
Strengthen Community Oriented Policing philosophy by providing volunteer opportunities to
support local law enforcement
ComF 3.3.1
Establish jurisdictional citizen educational programs on personal protective measures, disaster
kits and communications plans
ComF 3.3.2
Develop and provide community preparedness public education program and materials for at risk
populations
ComF 3.3.3
Develop and provide community preparedness public education program and materials for non-
English speaking communities and special needs populations
ComF 3.3.4 Support education and training on automated alerts and warnings and related responses
ComF 3.1.3 Implement a process to assess citizen preparedness and implement longitudinal tracking
Performance Measures
Metrics
Percent of annual increase in number of citizens educated and trained in UNIVERSAL all-
hazards capabilities until 80% of population is educated and trained
5%
Percent of annual increase in number of citizens who are aware of heightened jurisdictional
threat levels and aware of jurisdiction alerts and warnings, until 80% of citizens maintain
awareness
5%
Percent of annual increase in number of citizens within the jurisdiction who are alert to
unusual behavior in others that might indicate potential terrorist activity and understand
appropriate reporting procedures, until 80% of citizens maintain knowledge
5%
Percent of annual increase in number of privately held critical infrastructure computer owners
who implement appropriate virus protections and act on virus alerts, until 80% of owners
achieve implementation
5%
Percent of annual increase in number of households that conduct pre-incident preparation – to
include maintaining a communication plan, disasters supplies, and a practicing
evacuation/shelter-in-place, and maintaining skills until 80% of households maintain pre-
incident preparation
5%
Percent of annual increase in number of citizens prepared to evacuate or relocate to designated
shelter (to include citizens with special needs), until 80% of population is prepared
5%
Percent of annual increase in jurisdiction’s population that is knowledgeable of workplace,
school, and community emergency plans, until 80% of population maintains knowledge
5%
Percent of annual increase in number of citizens prepared to shelter-in-place and have
emergency supplies on hand as advised by local authorities, until 80% of population prepared
to shelter in place
5%
Percent of annual increase in number of citizens trained in basic first aid, until 80% of
population maintains skills
5%
Percent of annual increase in number of citizens educated and trained in RISK-BASED
capabilities for high-threat incidents in their area, to include natural hazards, technological
hazards, and terrorism, until 72% of population (80% of those living in high-threat area) are
educated and trained per appropriate hazard
5%
Percent of annual increase in number of citizens who know the appropriate detailed response 5%
Target Capabilities List 59
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
for specific high-threat incidents in their area, to include multiple incidents where appropriate,
until 72% of population (80% of those living in high-threat area) have specialized awareness
Percent of annual increase in number of population trained in CBRNE and decontamination
procedures, until 46% of population (80% of those living in urban areas) maintain skills
5%
Percent of annual increase in number of population with risk-based life-saving skills, until 72%
of population (80% of those living in high-threat area) maintain specialized skills.
5%
Percent of annual increase in number of households, businesses, and schools that have
implemented mitigation measures to protect property from specific high-threat, until 72%
households, businesses, and schools (80% of those in high-risk areas) have implemented
mitigation measures
5%
Activity: Provide Volunteer Opportunities: year round and in surge operations
Definition: Develop and implement education, training, and exercises for ongoing volunteer
programs and volunteer surge response and recovery activities
Critical Tasks
ComF 4.1
Develop and sustain volunteer opportunities for citizens to support local emergency responders
and community safety efforts year round, to include necessary training and equipment
ComF 4.2
Develop NIMS credentialing for volunteer surge capacity job functions to support all ESFs and
annexes
ComF 4.3
Develop and implement training and exercise programs to enable citizens to support emergency
response and recovery operations
ComF 4.4
Implement a process to track numbers of volunteers who participate in ongoing volunteer
programs
ComF 4.5 Implement a process to track numbers of volunteers who participate in surge capacity roles
ComF 4.6 Implement liability coverage for volunteer activity for appropriate jurisdiction
Performance Measures
Metrics
Percent of annual increase in number of trained citizens providing volunteer support to
local emergency responder disciplines (law enforcement, fire, emergency medical and
public health services), until 10% population volunteers an average of 20 hours per year
= 560 million hours/year
2%
Percent of surge capacity of pre-trained and credentialed citizens prepared to augment
and supplement official government emergency response with manpower and private
sector in-kind resources for ESFs and annexes for any given emergency response
function
20%
Activity: Incident Response
Definition: Non-governmental entities, volunteers, and the general public respond according to
plan and training
Critical Tasks
ComF 5.1 Implement public, volunteers, and non-governmental entity roles in emergency operations plans
60 Target Capabilities List
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Performance Measures
Metrics
Percent of population responding to official instructions and providing self care and by-
stander care
100%
Percent of citizens with disabilities or special needs (requiring 24-hour care and/or
equipment) who had access to life-sustaining resources during emergency situations
100%
Public communications were provided without electrical dependence and were
accessible to all citizens in the jurisdiction, including people with disabilities and non-
English speaking populations
Yes/No
Evacuation assistance was provided for those who cannot evacuate on their own Yes/No
Percent of pre-identified shelters that accommodated companion and service animals
and people with disabilities
100%
Volunteers provided surge capacity for ESFs and annexes, including Transportation,
Communications, Mass Care, Resources Management, Public Health and Medical
Services, Search and Rescue, Public Safety and Security, Long-Term Community
Recovery and Mitigation, External Affairs, Volunteers and Donations Management
Yes/No
Non-governmental resources were quickly deployed using stand-by contracts, MOUs
and MOAs
Yes/No
Jurisdictions outside of the incident impact area provided volunteer and donations
support through pre-established mechanisms.
Yes/No
Jurisdictions outside of the incident impact area provided mass care to evacuees, as
needed
Yes/No
Linked Capabilities
Linked Capability Relationship to Capability
All Prevent Capabilities Community Preparedness and Participation prepares citizens to participate in
prevention
All Protect Capabilities Community Preparedness and Participation prepares citizens to participate in
protection
All Respond Capabilities Community Preparedness and Participation prepares citizens to participate in
response
All Recover Capabilities Community Preparedness and Participation prepares citizens to participate in
recovery
Volunteer Management and
Donations
Community Preparedness and Participation prepares citizens to volunteer and
to donate
Mass Care (Sheltering, Feeding,
and Related Services)
Community Preparedness and Participation prepares citizens to volunteer for
mass care services
Citizen Evacuation and Shelter-In-
Place
Community Preparedness and Participation educates citizens in how to
evacuate or how to shelter-in-place or volunteer to support such efforts
Emergency Public Information
and Warning
Community Preparedness and Participation informs citizens how to acquire
information from Emergency Public Information and Warning
Target Capabilities List 61
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
62 Target Capabilities List
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Resource Element Description
Resource Elements Components and Description
National Leadership for
Community Preparedness and
Participation
National leaders from White House, Secretaries of key Federal agencies, State
governors, military leadership, and congressional representation—organized to
provide a national voice to promote the integration of citizens into the DHS
mission.
National Citizen Corps Council
Approximately 70 national emergency responder discipline associations,
NGOs, disability advocacy groups, faith-based organizations, private sector
associations, and government agencies that promote strategies, plans, and
exercise guidance to foster governmental/non-governmental collaboration at
the State and local levels for citizen preparedness and participation.
Citizen Corps Councils
Each Citizen Corps Council is composed of representatives of the emergency
responder disciplines, civic organizations, NGOs, private sector, faith-based,
schools, elected leadership, and other community stakeholders. Local
Councils (tribal, county, or city level) oversee local citizen opportunities for
education, training/exercises, and volunteer support. Local Councils require
adequate supplies and equipment and a minimum of one dedicated staff.
Public Education Specialists
Specialists to educate the public in the four mission areas of preparedness and
to promote volunteer opportunities. State level specialists educate and support
the public in developing knowledge, skills, and abilities (both universal and
risk-based) to support the four mission areas and to promote volunteer
opportunities. Local level specialists focus on education and also ensure
alerts/warning and crisis communications are adequate. All include resources
to develop and reproduce adequate numbers of outreach materials.
National Training Clearing
House
Clearing house of citizen training courses, to provide training materials for all
States. Includes classroom and online courses/resources.
State Training Team
Train-the-trainer instructors for pre-incident training and post incident just-in-
time training.
Citizen Preparedness Team
Teams of individuals based in neighborhoods, workplaces, schools, faith based
organizations, military, who prepare themselves with basic necessities—food,
water, medicine, power, communications equipment, shelter, and emergency
plans; adequate number of members also receive training in first aid and
emergency response skills. Identified leader reports status up the
organizational/community chain. Includes team equipment, as applicable, and
supplies, such as emergency disaster kit for home, work and vehicle—
sufficient food, water, medicine, etc.
Volunteer Support: Year Round
Volunteer services coordinated through Citizen Corps Councils to support
emergency responders, providing emergency responders with more time for
primary professional duties (i.e. provide administrative support, patrolling,
public education or as needed by discipline). Example programs include:
Volunteers in Police Service, Medical Reserve Corps, Fire Corps, Community
Emergency Response Teams, and Citizens Watch programs.
Volunteer Support: Surge
“NIMS -credentialed” volunteers to support ESFs, emergency response and
recovery, as needed. Volunteers are identified in advance of incidents and
agree to perform pre-defined roles in accord with the certifications they
receive. Ad hoc training for surge support is also anticipated. Volunteer roles
include transportation, communications, mass care, resources management,
Target Capabilities List 63
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Resource Elements Components and Description
public health and medical services, search and rescue, public safety and
security, long-term community recovery and mitigation, external affairs, and
affiliated volunteers and unsolicited donations management.
Planning Assumptions
(Unless otherwise noted, all population data is from 2000 census)
People with disabilities, the very young and the very old, people with language barriers, and low
income populations are adversely affected in all incidents. All resource organizations and activities
include consideration and opportunities for participation for people with disabilities, non-English
speaking populations, and those with low income
The medical community is functioning close to peak capacity at time of incident and will need surge
capacity from trained volunteers.
Emergency services will be overwhelmed and will need surge capacity from non-governmental
resources.
With the exception of hurricanes and early signs of biological infection, there will be no warning
before incidents occur.
Steps taken before an incident occurs (such as planning, training, exercises, and equipment) have a
significant impact on reducing loss of life and property.
Professional responders and volunteers may get ill or fail to participate as expected due to fear of
getting sick, or perceived greater need to care for their own families.
Alerts/warnings and emergency public information will need to be provided in multiple languages,
multiple formats, and through multiple venues.
The 2000 census estimated 280 million people and 109 million households in the U.S. (actual
population now estimated at over 298 million.)
85% of the U.S. population is over 9 years of age and under 85 years of age.
90% of the total U.S. population lives in an area with high-risk for at least one major hazard/threat.
Assuming that 80% of this should be trained, the target population is 72% of the total population
(80% of the 90% at-risk base).
58% of the total U.S. population lives in metropolitan areas with 1 million or more residents.
Civic organizations, places of worship, youth organizations, business associations, NGOs and other
groups are willing to embrace hometown security and provide information and opportunities to get
involved to their members.
25% of U.S. population aged 3 and older attended school in spring of 2002 (nursery school through
grad school).
64% of the U.S. population aged 16 and over is in the labor force.
84% of the U.S. population self-identifies with a religious belief and 43% of this group report
attending worship services “weekly or more,” representing over 100 million people attending worship
services weekly or more (35% of the total U.S. population).
20% of the U.S. population self reports some type of long lasting condition or disability.
4.5% of the U.S. population is 75 years of age or older, over 12 million people.
12% of U.S. population reported 1999 family incomes below poverty threshold.
42% of households have at least one personal computer in the home.
64 Target Capabilities List
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
There are 800,000 sworn law enforcement officers in the U.S. or 1 officer for every 350 people.
There are 1.1 million firefighters in the U.S. (73% are volunteer) or 1 firefighter for every 255 people.
There are 860,000 personnel at all levels of pre-hospital service: basic EMT, intermediate EMT, and
paramedics or 1 for every 325 people.
There are approximately 2.76 million “emergency responders (law, fire, EMT/paramedic” in the U.S.,
less than one percent of the total U.S. population. Thus 20% surge capacity represents 560,000
trained volunteers.
Liability concerns do not preclude volunteers from participating.
Emergency Management Assistance Compact (EMAC) agreements encompass NIMS-credentialed
volunteers and NIMS-typed resources from non-governmental organizations and entities.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
National Leadership for
Community Preparedness and
Participation
Level of leadership
necessary to achieve
awareness of and content
for universal/risk-based
capabilities disseminated
to entire nation
As required to achieve
national target
capabilities
National Citizen Corps
Council
One council can address
all hazards and scenarios
One National Council
Citizen Corps Councils
Tribal, county, and local
Councils serve 99% of
the U.S. population;
56 State Councils;
estimated ~2500
Councils nationwide
Public Education Specialists
At a minimum, each
State needs 3 education
specialists to educate
80% of the population
20 specialists at the
national level
300 specialists at the
State level across the
nation. Number of
specialists by State is
weighted by State
population.
These numbers would
surge to address crisis
communications during
an incident
National Training
Clearinghouse
One clearinghouse serves
all States
One National
Clearinghouse
State Training Team
Each state needs 5 to 20
instructors
Approximately 850
trained instructors;
number of instructors per
State is based on State
Target Capabilities List 65
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Resource Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
population
Online courses will also
be available (see National
Clearinghouse)
Citizen Preparedness Team
Each person in the high-
threat areas participates
on 2 teams (i.e.
neighborhood and
work/school/faith-based)
80% of 98 million
households organized
into citizen preparedness
teams
80% of labor force and
student populations
organized into teams
Support ― Year Round
Year round volunteers
are not scenario-driven,
but can take care of
responder duties (i.e.
the non-emergency
portion―administrative
activities, office duties,
research, etc.)
10% of U.S. population
(28 million people)
volunteer an average of
20 hours per 12 months;
~5600 million hours per
12 months
Support ― Surge Volunteers
(to be “NIMS-credentialed”)
Up to 20% surge of
current capacity
Actual surge
requirement to be
identified by other
capabilities
20% of uniformed
emergency responders
(2.8 million) represent
560,000 trained
volunteers
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
National
Leadership for
Community
Preparedness and
Participation
Federal
Resource
Organization
1 Nationally Federal
Establish
Collaborative
Structure and
Process for
Government and
Nongovernmental
Entities at All
Levels
Integrate Public
Outreach and
Nongovernmental
Resources into
Emergency
66 Target Capabilities List
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Operations Plans
and Exercises
Provide Education
and Training for
the Public in All
Mission Areas
Provide Volunteer
Opportunities: year
round and in surge
operations
Incident Response
National Citizen
Corps Council
Federal
Resource
Organization
1 Nationally Federal All Activities
Citizen Corps
Councils
Non-NIMS
Resource
Organization
1 Per State State Integrate Public
Outreach and
Nongovernmental
Resources into
Emergency
Operations Plans
and Exercises
Provide Education
and Training for
the Public in All
Mission Areas
Provide Volunteer
Opportunities: year
round and in surge
operations
Incident Response
Citizen Corps
Councils
Non-NIMS
Resource
Organization
1 Per local
jurisdiction
Local Integrate Public
Outreach and
Nongovernmental
Resources into
Emergency
Operations Plans
and Exercises
Provide Education
and Training for
the Public in All
Mission Areas
Provide Volunteer
Opportunities: year
round and in surge
Target Capabilities List 67
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
operations
Incident Response
Public Education
Specialists
Personnel 20 Nationally Federal/State/
Local
Integrate Public
Outreach and
Nongovernmental
Resources into
Emergency
Operations Plans
and Exercises
Provide Education
and Training for
the Public in All
Mission Areas
Incident Response
Public Education
Specialists
Personnel 3 – 20 per State; numbers
based on State
population, up to 20
State
Integrate Public
Outreach and
Nongovernmental
Resources into
Emergency
Operations Plans
and Exercises
Provide Education
and Training for
the Public in All
Mission Areas
Incident Response
Public Education
Specialists
Personnel 1 – 10 per local
jurisdiction;
numbers based on
population, up to 10
Local Integrate Public
Outreach and
Nongovernmental
Resources into
Emergency
Operations Plans
and Exercises
Provide Education
and Training for
the Public in All
Mission Areas
Incident Response
National Training
Clearinghouse
Resource
Organization
1 Nationally Federal
All Activities
68 Target Capabilities List
COMMON MISSION: COMMUNITY PREPAREDNESS AND PARTICIPATION
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
State Training
Team
Personnel 5 – 20 Per State; numbers
based on State
population
State
Provide Education
and Training for
the Public in All
Mission Areas
Provide Volunteer
Opportunities: year
round and in surge
operations
Citizen
Preparedness Team
Non-NIMS
Resource
Organization
1 Per neighborhood,
school, workplace,
etc.
Local
Provide Education
and Training for
the Public in All
Mission Areas
Volunteer Support:
Year Round
Non-NIMS
Resource
70 million Nationally (1 person
volunteering an
average of 12 hours
per year ~840
million volunteer
hours per year)
Local
Provide Volunteer
Opportunities: year
round
Volunteer Surge
Support: Surge
Non-NIMS
Resource
560,000 Nationally Local
Provide Volunteer
Opportunities:
surge
Incident Response
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Emergency Management Accreditation Program (EMAP) Standards. September 2003.
http://www.emaponline.org/index.cfm.
5. Emergency Management Assistance Compact (EMAC).
6. Homeland Security Exercise and Evaluation Program (HSEEP).
7. Citizen Corps mission, resources and materials: citizen preparedness, training and volunteer program resources:
Ready, Red Cross, FEMA public education materials; Citizen Corps Guide for Local Officials, CERT,
Volunteers in Police Service, Medical Reserve Corps, Fire Corps, Neighborhood Watch program materials; and
citizen preparedness research. http://www.citizencorps.gov
Target Capabilities List 69
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
INTELLIGENCE AND INFORMATION SHARING
AND DISSEMINATION
Capability Description
The Intelligence and Information Sharing and Dissemination capability provides necessary tools to enable
efficient prevention, protection, response, and recovery activities. Intelligence/ Information Sharing and
Dissemination is the multi-jurisdictional, multidisciplinary exchange and dissemination of information
and intelligence among the Federal, State, local, and tribal layers of government, the private sector, and
citizens. The goal of sharing and dissemination is to facilitate the distribution of relevant, actionable,
timely, and preferably declassified or unclassified information and/or intelligence that is updated
frequently to the consumers who need it. More simply, the goal is to get the right information to the right
people at the right time.
An effective intelligence/information sharing and dissemination system will provide durable, reliable, and
effective information exchanges (both horizontally and vertically) between those responsible for
gathering information and the analysts and consumers of threat-related information. It will also allow for
feedback and other necessary communications in addition to the regular flow of information and
intelligence.
Outcome
Effective and timely sharing of information and intelligence occurs across Federal, State, local, tribal,
territorial, regional, and private sector entities to achieve coordinated awareness of, prevention of,
protection against, and response to a threatened or actual domestic terrorist attack, major disaster, or other
emergency.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs)/Annexes:
ESF #1: Transportation
ESF #2: Communications
ESF #3: Public Works and Engineering
ESF #4: Firefighting
ESF #5: Emergency Management
ESF #6: Mass Care, Housing, and Human Services
ESF #7: Resource Support
ESF #8: Public Health and Medical Services
ESF #9: Urban Search and Rescue
ESF #10: Oil and Hazardous Materials Response
ESF #11: Agriculture and Natural Resources
ESF #12: Energy
ESF #13: Public Safety and Security
ESF #14: Long-Term Recovery and Mitigation
Biological Incident Annex
`
70 Target Capabilities List
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
Cyber Incident Annex
Terrorism Incident Law Enforcement and Investigation Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
ComG 1.1.1
Identify all Federal, State, regional, tribal, and local stakeholders for inclusion in the information
sharing framework
ComG 1.1.2
Identify non-law enforcement governmental entities and officials for inclusion in the information
sharing framework
ComG 1.1.3
Identify appropriate law enforcement and other enforcement governmental personnel for receipt
of security clearances at an appropriate level to ensure effective dissemination of critical
information
ComG 1.2.1
Develop information sharing network standards: survivable, interoperable, compatible, secure,
accessible
ComG 1.2.2 Develop alternate, supplemental, and back-up routing procedures
ComG 1.3
Develop and maintain operationally sound policies to comply with regulatory, statutory, privacy,
and other issues that may govern the gathering of information
ComG 1.4 Develop regulatory, statutory, and/or privacy policies
ComG 1.4.1
Develop a clearly defined process for preventing, reporting, and addressing the inappropriate
disclosure of information and/or intelligence
ComG 1.4.2
Develop a clearly defined mechanism/process (reduced to a single pipeline wherever possible or
prudent) for sharing information/intelligence between Federal and State sources
ComG 1.4.3
Establish alternative, supplemental, and back-up mechanisms for routing information and/or
intelligence to the necessary agencies
Preparedness Measures Metrics
Frequency with which informational distribution lists with points of contact are updated Every month
Relevant Federal, State, regional, local, and tribal authorities have been identified as
necessary participants in the information sharing process
Yes/No
Relevant Federal, State, regional, local, and tribal authorities have access to the necessary
information sharing systems
Yes/No
Memoranda of understanding (MOU) or similar agreements between appropriate entities
are in place
Yes/No
Federal agencies have a process in place to declassify or provide tear lines for relevant
information and/or intelligence
Yes/No
The number of law enforcement and other governmental personnel identified to receive
security clearances meets jurisdictional requirements/needs
Yes/No
Appropriate Federal, State, regional, local, and tribal law enforcement and other Yes/No
Target Capabilities List 71
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
governmental personnel receive security clearances at an appropriate level of
classification
Regulatory, statutory, and/or privacy policies are in place Yes/No
Federal, State, regional, local, and tribal law enforcement entities have a clearly defined,
implemented, and audited process for preventing, reporting, and addressing the
inappropriate disclosure of information and/or intelligence
Yes/No
Clearly defined and documented mechanisms/processes (reduced to a single pipeline
wherever possible and prudent) for sharing information/intelligence among Federal, State,
regional, local, and tribal sources are in place
Yes/No
Mechanisms/processes for sharing information/intelligence among Federal, State,
regional, local, and tribal sources are technologically proficient for the entities involved
Yes/No
Alternative, supplemental, and back-up mechanisms for routing information and/or
intelligence to the necessary agencies are available and routinely evaluated
Yes/No
Mechanisms within the information sharing network to provide feedback and/or follow-up
information as needed are in place
Yes/No
Local agencies have an established procedure/protocol for providing intelligence products
or relevant information to street-level law enforcement personnel
Yes/No
Fusion Centers/processes ensure the participation of appropriate private-sector entities Yes/No
The Department of Homeland Security (DHS) Information Sharing and Analysis Center
(ISAC) program ensures the participation of appropriate private-sector entities
Yes/No
Joint Terrorism Task Forces have a process for sharing relevant information with the
private sector in a timely manner
Yes/No
Access to early detection/alert programs and networks and all-source information is
available (e.g., Public Health Information Network, BioSense, Homeland Security
Information Network, Information Sharing and Analysis Centers, etc.) as appropriate
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
ComG 2.2.1
Design and conduct exercises to test Intelligence and Information Sharing and Dissemination
tasks within a single unit and jointly with other jurisdictions and levels of government
ComG 2.1.1
Train appropriate personnel on intelligence/information sharing and disseminate processes and
procedures
Preparedness Measures Metrics
There are adequate numbers of trained personnel at all levels (especially at dispatch or
communications centers) to process and disseminate information
Yes/No
Personnel are aware of and trained to adhere to pre-defined security clearances and need-
to-know parameters
Yes/No
Appropriate personnel are trained in processing and disseminating information and
intelligence
Yes/No
Personnel are trained in the process for preventing, reporting, and addressing the
inappropriate disclosure of information and/or intelligence
Yes/No
`
72 Target Capabilities List
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
Exercises test the process for preventing, reporting, and addressing the inappropriate
disclosure of information and/or intelligence
Yes/No
All appropriate law enforcement personnel have received the Criminal Intelligence
Coordinating Council (CICC) Outreach Package
Yes/No
All appropriate law enforcement personnel promote the concept of intelligence-led
policing as outlined in the CICC Outreach Package
Yes/No
Training and exercise programs include interaction with the private sector operators of
critical infrastructure
Yes/No
Exercises test alternative, supplemental, and back-up mechanisms for routing information
and/or intelligence to the necessary agencies
Yes/No
Performance Tasks and Measures/Metrics
Activity: Incorporate All Stakeholders in Information Flow
Definition: Identify and share information with all pertinent stakeholders across all disciplines
through a clearly defined information sharing system
Critical Tasks
ComG 3.1
Share information and/or intelligence between Federal, State, local, and tribal levels by using
clearly defined mechanisms/processes
ComG 3.1.1
Adhere to predefined security clearances and need-to-know parameters when disseminating
information and intelligence
ComG 3.1.2
Comply with regulatory, statutory, privacy-related, and other issues that may govern the sharing
of information
ComG 3.1.3 Prevent, report, and/or address inappropriate disclosures of information and/or intelligence
Performance Measures Metrics
Compliance with regulatory, statutory, privacy-related, and other issues that govern the
sharing of information is audited on a regular basis
Yes/No
Percent of inappropriate disclosures of information and/or intelligence for which records
are maintained
100%
Percent of inappropriate disclosures of information and/or intelligence that are reported
and resolved according to established processes
100%
Activity: Vertically Flow Information
Definition: Share information vertically (up and down from the Federal level) within law
enforcement and other appropriate agencies in a timely and effective manner
Critical Tasks
ComG 4.1
Share intelligence and information systematically between Federal, State, local, and regional
entities in a timely manner
Target Capabilities List 73
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
ComG 4.1.1
Disseminate relevant intelligence and/or information from Federal or State entities to local
authorities in a usable format and in a timely manner
ComG 4.1.3
Disseminate relevant information and/or intelligence products to street-level law enforcement
personnel
ComG 4.1.2
Provide relevant intelligence and/or information from local authorities to Federal or State entities
in a usable format and in a timely manner
ComG 4.2.2
Declassify or provide tear lines for relevant information and/or intelligence
Performance Measures Metrics
Time in which relevant information received from the fusion center is disseminated to
street-level personnel
Within 12 hours from
receipt at the fusion
center
Percent of law enforcement intelligence/information passed to local authorities that is
deemed useful or actionable
100%
Activity: Horizontally Flow Information
Definition: Share information across disciplines (among fire departments, EMS units, public
works, the private sector, and so forth) at all levels and across jurisdictions in a timely and
efficient manner
Critical Tasks
ComG 5.1
Adhere to horizontal coordination across jurisdictions among law enforcement and other
appropriate agencies at all levels through effective and timely information sharing
ComG 5.1.1 Share intelligence and/or information across disciplines in a timely and effective manner
ComG 5.2
Structure dissemination and information sharing mechanisms so that private-sector entities
receive accurate, timely, and unclassified information that is updated frequently and is consistent
with their formal intelligence requirements
Performance Measures Metrics
A clearly defined process or procedure is used to disseminate information and products Yes/No
Intelligence and/or information is shared across disciplines in a timely manner Yes/No
Linked Capabilities
Linked Capability Relationship to Capability
All Protect Capabilities Intelligence and Information Sharing and Dissemination provides the
means for sharing data on suspected and actual threats, which prompts
additional monitoring and the implementation of specific protection
activities. Monitoring results from the Protect Capabilities is further
shared as needed through this Capability.
All Respond Capabilities Intelligence and Information Sharing and Dissemination provides the
means for sharing data needed to carry out response activities effectively.
Results of response actions are then further shared as needed through this
Capability.
`
74 Target Capabilities List
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
Linked Capability Relationship to Capability
Risk Management Intelligence and Information Sharing and Dissemination provides the
means for sharing threat, vulnerability, and consequence data used in risk
management.
Information Gathering and Recognition
of Indicators and Warnings
The data gathered through Information Gathering & Recognition is
communicated through Intelligence and Information Sharing and
Dissemination
Counter-Terror Investigation and Law
Enforcement
Information needed by Counter-Terror Investigation and Law
Enforcement to conduct investigations is provided through Intelligence
and Information Sharing and Dissemination
Intelligence Analysis and Production Intelligence and Information Sharing and Dissemination provides the
means for communicating data that is gathered to those that analyze it in
Intelligence Analysis and Production
Planning Information provided via Intelligence and Information Sharing and
Dissemination is used to ensure that plans adequately address terrorist
threats
CBRNE Detection Information from CBRNE Detection is transferred to the appropriate
parties through Intelligence and Information Sharing and Dissemination
Community Preparedness and
Participation
Community participation in awareness is one means by which
information to be shared is generated.
Communications Communications provides the necessary structure and systems for
implementing Intelligence and Information Sharing and Dissemination.
Target Capabilities List 75
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
Information disseminated
to appropriate stakeholders
Incorporate All
Stakeholders in
Information Flow
Stakeholders identified
Vertically Flow
Information
Horizontally Flow
Information
Appropriate levels of
government received
information
Appropriate disciplines at
appropriate levels of
government received
information
Capability Activity Process Flow
Relationship
Linked
Capabilities
Intelligence/Information Sharing and Dissemination
Risk
Management
CBRNE
Detection
All Protect and
Respond
Capabilities
Provide information
Information
Gathering and
Recognition of
Indicators and
Warnings
Intelligence
Analysis and
Production
Analyzed data provided
Planning
Community
Preparedness and
Participation
Communications
Information for
dissemination provided
Raw information for
dissemination provided
Provide system for
dissemination
Provide information
Provide information
Provide information
Provide information
Counter-Terror
Investigation and
Law Enforcement
`
76 Target Capabilities List
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
Resource Element Description
Resource Elements Components and Description
Personnel for sharing operational
information
Personnel involved in the operational aspects of information sharing (e.g.,
information technology (IT) personnel, law enforcement, public health, fire,
emergency medical service (EMS), transportation, and other non-law
enforcement personnel)
Personnel for sharing
information on collaborative
initiatives
Federal, State, local, tribal, private sector personnel, and other key stakeholders
involved in information sharing and collaboration initiatives
Joint Terrorism Task Forces
(JTTFs)
Task forces composed of persons from various government and private
elements (e.g., law enforcement, public health, local businesses, key
infrastructure representatives, emergency management, and other first
responders)
Fusion center/process personnel Supervisors and other management personnel within fusions centers involved
in the oversight and execution of defined processes and procedures
Equipment and systems for
information sharing and
collaboration
Information sharing network architecture (e.g., Regional Information Sharing
System (RISS)/Law Enforcement Online (LEO), Joint Regional Information
Exchange System (JRIES), National Law Enforcement Telecommunication
System (NLETS), FBI Criminal Justice Information System/National Crime
Information Center (CJIS/NCIC) networks), including hardware and software
physical and network security
Information sharing software Data synthesis software (hazard prediction, assessment, and threat modeling
software); data collection/information gathering software.
Planning Assumptions
Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions
against the United States and its interests. These activities decrease the perpetrators’ chance of
success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or
detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless
of a single type of threat, adversary capability, time or location of incident. Similarly, these
capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as
they conduct traditional all-hazards, all-crimes activities.
This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related
National Planning Scenarios. Initial planning, however, has been focused on bombing using
improvised explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device,
and a radiological dispersal.
Effective prevention depends on timely, accurate, and actionable information about the adversary,
their operations, their support, potential targets, and methods of attack. Homeland security
intelligence/information fusion is the overarching process of managing the development and flow of
information and intelligence across all levels and sectors of government and the private sector on a
continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to
emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal
entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes
issues.
Target Capabilities List 77
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary
capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence
Analysis and Production; and Intelligence and Information Sharing and Dissemination.
All appropriate objectives and critical tasks will be exercised regularly at all levels in order to
measure performance and demonstrate capability.
Both the Planning Factors for a Single Incident section and the Approaches for Large-Scale Events
section have been omitted because there is no incident or large-scale event that necessarily occurs
before these capabilities come in to play.
Planning Factors for a Single Incident
Not Applicable
Approaches for Large-Scale Events
Not Applicable
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Personnel for
sharing operational
information
Personnel As Needed
Federal/State
Local
Incorporate All
Stakeholders in
Information Flow
Vertically Flow
Information
Horizontally Flow
Information
Personnel for
sharing information
on collaborative
initiatives
Personnel As Needed
Federal/State/
Local
All Activities
Joint Terrorism
Task Forces
(JTTFs)
Personnel As Needed
Federal/State/
Local
All Activities
Fusion
center/process
personnel
Personnel As Needed
Federal/State/
Local
All Activities
Equipment and
systems for
information sharing
and collaboration
Equipment As Needed
Federal/State/
Local
All Activities
Information
Sharing Software
Equipment As Needed
Federal/State/
Local
All Activities
`
78 Target Capabilities List
COMMON MISSION: INTELLIGENCE AND INFORMATION SHARING AND DISSEMINATION
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S.
Department of Homeland Security, Office for Domestic Preparedness. June 2003.
http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf.
5. Information/Intelligence Sharing System Survey. Global Intelligence Working Group. 2001.
http://it.ojp.gov/documents/intell_sharing_system_survey.pdf.
6. Fusion Center Guidelines. Global Justice Information Sharing Initiative. July 2005.
7. The National Criminal Intelligence Sharing Plan. U.S. Department of Justice, Global Justice Information
Sharing Initiative. 2004. http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf.
8. Applying Security Practices to Justice Information Sharing. U.S. Department of Justice, Global Justice
Information Sharing Initiative, Security Working Group. March 2004.
http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf.
9. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO-
03-1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d03715t.pdf.
10. Doctrine for Intelligence Support to Joint Operations. Joint Publication 2-0. Joint Chiefs of Staff, Director
of Intelligence. March 2000. http://www.fas.org/irp/doddir/dod/jp2_0.pdf.
11. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July
2004. http://www.9-11commission.gov/.
12. The Homeland Security Advisory Council Prevention and Information Sharing Working Group. 2004.
13. Fusion Center Initiative. Homeland Security Advisory Council. April 2005.
14. State, Tribal and Local Intelligence and Information Sharing Initiative. Homeland Security Advisory
Council. December 2004.
15. Homeland Security Advisory Council. June 2005.
16. National Strategy for Homeland Security. Office of Homeland Security. July 2002.
http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf.
17. Sector-Specific Intelligence Sharing Analysis Center information. Department of Homeland Security.
18. Homeland Security Information Network.
http://www.dhs.gov/dhspublic/display?theme=43&content=3747&print=true.
19. Information Sharing and Analysis Center program. http://www.isaccouncil.org/about/.
20. NFPA 1061: Standard for Professional Qualifications for Public Safety Telecommunicator. National Fire
Protection Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1061
21. NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications
Systems. National Fire Protection Association. 2002.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1221
22. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection
Association. 2005. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=15
Target Capabilities List 79
Prevent Mission Area
Target Capabilities
80 Target Capabilities List
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Target Capabilities List 81
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
INFORMATION GATHERING AND
RECOGNITION OF INDICATORS AND
WARNINGS
Capability Definition
The Information Gathering and Recognition of Indicators and Warning Capability entails the gathering,
consolidation, and retention of raw data and information from sources to include human sources,
observation, technical sources and open (unclassified) materials. Unlike intelligence collection,
information gathering is the continual gathering of only pure, unexamined data, not the targeted collection
traditionally conducted by the intelligence community or targeted investigations. Recognition of
indicators and warnings is the ability to see in this gathered data the potential trends, indications, and/or
warnings of criminal and/or terrorist activities (including planning and surveillance) against U.S. citizens,
government entities, critical infrastructure, and/or our allies.
Outcome
Locally generated threat and other criminal and/or terrorism-related information is identified, gathered,
entered into an appropriate data/retrieval system, and provided to appropriate analysis centers.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex)
This capability supports:
Terrorism Incident Law Enforcement and Investigation Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Pre.A1b 1.1
Develop and maintain operationally sound policies to comply with regulatory, statutory, privacy,
and other issues that may govern the gathering of information
Pre.A1b 1.2
Develop and maintain procedures, systems, and/or technology to process the inflow of gathered
information from all sources in a timely fashion
Pre.A1b 1.3
Develop and provide States and tribal authorities with information needs clearly defined by the
Federal community based on the threat environment in a timely manner
Pre.A1b 1.4
Provide the Federal community with feedback on specificity and relevance of Federal
information needs products defined by the State
Pre.A1b 1.5
Communicate information needs from Federal community and States to local law enforcement,
Tribal, private-sector, and other appropriate personnel as needed and in a timely manner
Pre.A1b 1.6
Provide feedback from information-gathering entities to the State on specificity and relevance of
State information needs products
82 Target Capabilities List
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Pre.A1b 1.7
Develop and communicate baseline indicators and warnings sets from Federal community to
State and Tribal authorities
Pre.A1b 1.8
Determine within the Federal community Essential Elements of Information (EEI) that can be
used to identify terrorist operations
Preparedness Measures Metrics
State, tribal, and local areas have a clearly defined, implemented, and audited process in
their jurisdiction for requesting information from the Federal community, generally
through their State’s designated senior official
Yes/No
Key stakeholders in the Federal community have developed clear and concise information
needs based on the threat environment
Yes/No
The Federal community has delivered its information needs to each State’s designated
senior officials using a clearly defined process
Yes/No
Each State’s designated senior officials can verify receipt of information needs from the
Federal community (or demonstrate an understanding of information needs)
Yes/No
Frequency with which Federal community updates its information needs Every 12 months
Information needs products contain a feedback mechanism Yes/No
Processes by which State, tribal, and/or local authorities request information from the
Federal community is in place
Yes/No
Process by which the State uniformly and consistently communicates information needs
to the local level is in place
Yes/No
Regulatory, statutory, and/or privacy policies that govern the gathering of information are
in place
Yes/No
A clearly defined process for passing information gathered by law enforcement and other
agencies during routine day-to-day activities into the information-sharing network is in
place
Yes/No
Feedback is provided to those responsible for gathering information during routine day-
to-day activities
Yes/No
The process for passing information gathered by law enforcement and other agencies has
been audited
Yes/No
Law enforcement and appropriate agencies are have audited plans, processes, and
technology in place that enable them to do the following:
Identify items and materials used by criminal and/or terrorist organizations and report
suspicious activities related to them
Gather information on critical infrastructure and other potentially high-risk locations
and assets
Increase information gathering activities regarding critical infrastructure and other
potentially high-risk locations and assets, during an elevated threat level
Coordinate information gathering operations across jurisdictions
Process gathered information
Provide all operational personnel with the most recent indicators and warnings to
report
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Percent of jurisdictions that have an established system for public reporting of suspicious
activity (e.g., 911, tip lines)
100%
Target Capabilities List 83
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Appropriate governmental entities operate or participate in public education programs to
raise public awareness of suspicious activities and how to report them
Yes/No
Content and template standards for reported information are in place Yes/No
Processes, protocols, and technical capabilities to allow extraction of information from
public, private, and law enforcement databases are in place
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Pre.A1b 2.1.1 Develop and initiate terrorism indicator sets and relationships training programs
Pre.A1b 2.1.2 Develop and distribute information gathering and reporting programs
Pre.A1b 2.1.6 Develop and initiate critical infrastructure surveillance technique and criteria
Pre.A1b 2.1.4 Provide training feedback to Federal trainers
Preparedness Measures Metrics
Law enforcement and public safety personnel who shall be trained in information
gathering and recognition of indicators and warnings have been identified.
Yes/No
The following training has been provided to identified personnel:
Training in recognizing criminal and/or terrorism indicators and warnings
Refresher training in indicators and warnings
Training in critical infrastructure (CI) surveillance
Advanced training programs
Yes/No
Yes/No
Yes/No
Yes/No
Federally developed training in recognizing and reporting indicators and warnings at
identified businesses (via a train-the-trainer program) is conducted
Yes/No
Businesses in each jurisdiction that should be targeted for training in indications and
warnings have been identified
Yes/No
Frequency with which government training entities review and update training materials Every 12 months
Government training entities conduct Federally developed training in recognizing
indicators and warnings to appropriate State, tribal, and local entities
Yes/No
Performance Tasks and Measures/Metrics
Activity: Gather Information
Definition: Gather information that could be used to identify terrorist operations from all sources
(e.g., law enforcement, public health, public works, transportation, firefighting and emergency
medical entities) through routine activities
Critical Tasks
Pre.A1b 3.1
Gather homeland security information during routine day-to-day activities and pass to
appropriate authorities
Pre.A1b 3.1.1 Identify items and materials used by criminal and/or terrorist organizations to carry out attacks
84 Target Capabilities List
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Pre.A1b 3.1.2 Catalog information provided by all sources and retain in a database to enable timely retrieval
Pre.A1b 3.2
Conduct information gathering operations on critical infrastructure and other potentially high-
risk locations or assets
Pre.A1b 3.3
Coordinate information gathering activities with relevant local, tribal, State, and Federal entities
on an ongoing basis, in particular with the Joint Terrorism Task Force (JTTF) in terrorism-
related cases
Pre.A1b 3.3.1
Establish short, medium, and long term coordinated information gathering policies, procedures
and systems
Performance Measures
Metrics
Information was organized, linked, searchable, and easily retrievable Yes/No
Information provided by all sources met predefined standards for accuracy, completeness
and consistency
Yes/No
The process for passing information gathered during routing activities was implemented Yes/No
Information was passed to appropriate authorities using a clearly defined process, utilizing
predefined network channels
Yes/No
The effectiveness of this process was assessed by appropriate agencies Yes/No
Feedback was provided to those responsible for gathering information Yes/No
Activity: Identify Suspicious Circumstances
Definition: Recognize and identify suspicious circumstances or indicators and warnings
associated with planning, support, and operations related to potential criminal and/or terrorist-
related activities
Critical Tasks
Pre.A1b 4.1
Recognize suspicious activities involving items and materials used by criminal and/or terrorist
organizations
Pre.A1b 4.2
Recognize and identify suspicious circumstances or indicators and warnings that may be
associated with planning, support, and operations related to potential criminal and/or terrorist-
related activities
Pre.A1b 4.3 Utilize a predefined notification process to advise law enforcement of suspicious activity
Pre.A1b 4.4
Notify law enforcement of potential terrorist activities in/around or related to private sector
businesses/operations
Performance Measures Metrics
Law enforcement personnel followed-up with a reporting organization if more information was
necessary
Yes/No
Law enforcement personnel acted on authenticated information Yes/No
Law enforcement personnel used approved response protocols to dispatch the appropriate
public or private sector personnel to the potential threat
Yes/No
Upon examination at the incident scene, law enforcement or related personnel were able to
differentiate suspicious behaviors and activities from illegal or potentially threatening actions
Yes/No
Target Capabilities List 85
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Key private-sector businesses used an established communication avenue to report suspicious
activities to appropriate Federal, State, local, or tribal law enforcement entities
Yes/No
The general public has been advised how to recognize suspicious activity (e.g., 911 tip lines,
etc.)
Yes/No
The general public was familiar with and used a predefined notification process to advise law
enforcement of suspicious activity
Yes/No
Activity: Screen Information
Definition: Receive, authenticate, and screen information for relevance, with the appropriate level
of oversight/supervision and in a timely manner
Critical Tasks
Pre.A1b 5.1 Provide guidance to create linked, compatible national database architecture
Pre.A1b 5.2 Query databases or records to check for significance of information
Pre.A1b 5.3
Maintain and update procedures and/or systems to process the inflow of gathered information
from all sources in a timely fashion
Performance Measures Metrics
Relevant personnel had access to systems or technology in order to enter gathered
information
Yes/No
Database systems were linked and compatible allowing for rapid transmission and
processing of pertinent information
Yes/No
Gathered information was processed using clearly defined procedures Yes/No
Information was traceable, allowing for easy communication between disseminator and
analyst
Yes/No
Procedures for tracking information were audited Yes/No
All pertinent information was cataloged and databased to enable timely retrieval Yes/No
Intelligence related to high risk infrastructure or an acute threat was prioritized and
reported as soon as it was observed
Yes/No
Information provided by all sources was corroborated Yes/No
Information was catalogued and files are maintained in accordance with standards in the
Fusion Center Guidelines
Yes/No
Information was extracted in accordance with approved processes, protocols, and
technical capabilities
Yes/No
86 Target Capabilities List
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Linked Capabilities
Linked Capability Relationship to Capability
Animal Disease Emergency Support
Animal Disease Emergency Support monitoring activities may provide
a source of data for Information Gathering
CBRNE Detection
Data from detection devices/processes may be a source of data for
Information Gathering
Community Preparedness and
Participation
Information provided by citizens via hot lines and other collection
centers may be a source of data for Information Gathering
Food and Agricultural Safety and
Defense
Food and Agricultural monitoring activities may provide a source of
data for Information Gathering
Intelligence Analysis and Production
Information Gathering provides the data used by Intelligence Analysis
and Production
Intelligence and Information Sharing
and Dissemination
Intelligence and Information Sharing provides the means for collecting
the data from various sources
Counter-Terror Investigation and Law
Enforcement
Data gathered through Counter-Terror Investigation and Law
Enforcement may provide a source of data for Information Gathering
Laboratory Testing
Laboratory analysis may provide a source of data for Information
Gathering
Epidemiological Surveillance and
Investigation
Epidemiological surveillance may provide a source of data for
Information Gathering
Critical Infrastructure Protection
Critical Infrastructure Protection is a source of data for Information
Gathering
Target Capabilities List 87
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Gather
Information
Screen
Information
Identify Suspicious
Circumstances
Potential indicators and warning
reported
Capability Activity Process Flow
Relationship
Linked
Capabilities
Information Gathering and Recognition of Indicators
and Warnings Capability
Intelligence
Analysis and
Production
End: Forward Information
for analysis
All Protect and
Respond
Capabilities
Raw data may be provided
CBRNE Detection
Raw data provided
Community
Preparedness and
Participation
Raw data provided
Provide information
Intelligence/
Information
Sharing and
Dissemination
Means for data collection
provided
Counter-Terror
Investigation and
Law Enforcement
Raw data provided
Animal Disease
Emergency
Support
Raw data provided
Laboratory
Testing
Raw data provided
Epidemiological
Surveillance and
Investigation
Raw data provided
Critical
Infrastructure
Protection
Raw data provided
88 Target Capabilities List
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Resource Element Description
Resource Elements Components and Description
Information gathering personnel
Multi-agency/discipline personnel at all levels to support information
identification, gathering, and recognition (e.g., medical personnel, law
enforcement, etc.)
Information processing personnel
Personnel at all levels to process (receive, authenticate, and screen)
information
Joint Terrorism Task Force
(JTTF)
Task forces formed at the local level and composed of persons from various
government and private entities (e.g., law enforcement, public health, local
businesses, key infrastructure representatives, emergency management and
other first responders)
Public reporting system
System for public reporting of suspicious activity (911, tip lines, etc.)
Information gathering systems and
equipment
Surveillance and detection systems/equipment, data gathering and analyzing
systems (dedicated software), access to early detection/alert programs and
networks, and all-source information
Planning Assumptions
Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions
against the United States and its interests. These activities decrease the perpetrators’ chance of
success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or
detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless
of a single type of threat, adversary capability, time or location of incident. Similarly, these
capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as
they conduct traditional all-hazards, all-crimes activities.
This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related
National Planning Scenarios. Initial planning, however, has been focused on bombings using
improvised explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device,
and a radiological dispersal.
Effective prevention depends on timely, accurate, and actionable information about the adversary,
their operations, their support, potential targets, and methods of attack. Homeland security
intelligence/information fusion is the overarching process of managing the development and flow of
information and intelligence across all levels and sectors of government and the private sector on a
continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to
emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal
entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes
issues.
Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary
capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence
Analysis and Production; and Intelligence and Information Sharing and Dissemination.
All appropriate objectives and critical tasks will be exercised regularly at all levels in order to
measure performance and demonstrate capability.
Both the Planning Factors for a Single Incident section and the Approaches for Large-Scale Events
section have been omitted because there is no incident or large-scale event that necessarily occurs
before these capabilities come in to play.
Target Capabilities List 89
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
Planning Factors for a Single Incident
Not Applicable
Approaches for Large-Scale Events
Not Applicable
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead
Capability
Activity
supported by
Element
Information
gathering personnel
Personnel As Needed
Federal/State/
Local/Private
Sector
Gather Information
Screen Information
Identify Suspicious
Circumstances
Information
processing
personnel
Personnel As Needed
Federal/State/
Local
Gather Information
Screen Information
Identify Suspicious
Circumstances
Joint Terrorism
Task Force (JTTF)
Federal
Resource
Organization
As Needed
Federal Gather Information
Screen Information
Identify Suspicious
Circumstances
Public reporting
system
Equipment As Needed
Federal/State/
Local
Gather Information
Screen Information
Identify Suspicious
Circumstances
Information
Gathering Systems
and Equipment
Equipment As Needed
Federal/State/
Local/Private
Sector
Gather Information
Screen Information
Identify Suspicious
Circumstances
References
1. Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S.
Department of Homeland Security, Office for Domestic Preparedness. June 2003.
http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf.
2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
3. National Response Plan. U.S. Department of Homeland Security. December 2004.
4. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
5. U.S. Department of Homeland Security Priority Information Requirements. July 2004–January 2005.
90 Target Capabilities List
PREVENT MISSION: INFORMATION GATHERING AND RECOGNITION OF INDICATORS AND WARNINGS
6. Applying Security Practices to Justice Information Sharing, Version 2. U.S. Department of Justice, Global
Justice Information Sharing Initiative, Security Working Group. March 2004.
http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf.
7. Fusion Center Guidelines. Global Justice Information Sharing Initiative. July 2005.
8. The National Criminal Intelligence Sharing Plan. Global Justice Information Sharing Initiative, U.S.
Department of Justice. Revised June 2005.
http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf.
9. Fusion Center Initiative. Homeland Security Advisory Council. April 2005.
10. State, Tribal, and Local Intelligence and Information Sharing Initiative. Homeland Security Advisory
Council. December 2004.
11. Private Sector Information Sharing Initiative. Homeland Security Advisory Council. June 2005.
12. Homeland Security Information Network.
http://www.dhs.gov/dhspublic/display?theme=43&content=3747&print=true.
13. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO–
03–1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d03715t.pdf.
14. Information/Intelligence Sharing System Survey. Global Intelligence Working Group. 2001.
http://it.ojp.gov/documents/intell_sharing_system_survey.pdf.
15. Doctrine for Intelligence Support to Joint Operations. Joint Publication 2-0. Joint Chiefs of Staff, Director
of Intelligence. March 2000. http://www.fas.org/irp/doddir/dod/jp2_0.pdf.
16. National Strategy for Homeland Security. Office of Homeland Security. July 2002.
http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf.
17. Report on the U.S. Intelligence Community’s Prewar Intelligence Assessments on Iraq. Select Committee
on Intelligence, U.S. Senate, 108th Congress. July 2004. http://intelligence.senate.gov/iraqreport2.pdf.
18. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July
2004. http://www.9-11commission.gov/.
Target Capabilities List 91
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
INTELLIGENCE ANALYSIS AND PRODUCTION
Capability Definition
Intelligence Analysis and Production is the merging of data and information for the purpose of analyzing,
linking, and disseminating timely and actionable intelligence with an emphasis on the larger public safety
and homeland security threat picture. This process focuses on the consolidation of analytical products
among the intelligence analysis units at the Federal, State, local, and tribal levels for tactical, operational,
and strategic use. This capability also includes the examination of raw data
to identify threat pictures,
recognize potentially harmful patterns, or connect suspicious links to discern potential indications or
warnings.
Outcome
Timely, accurate, and actionable intelligence/information products are produced in support of prevention,
awareness, deterrence, response, and continuity planning operations.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports:
Terrorism Incident Law Enforcement and Investigation Incident Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Pre.A1c 1.1.1
Provide terminology/lexicon glossary from Federal Government to all relevant fusion
center/process entities to eliminate agency-to-agency terminology confusion
Pre.A1c 1.1.2
Use tear-line formats to ensure that State, local and/or tribal officials with varying levels of
clearance have access to useful information
Pre.A1c 1.1.3 Develop a broad, national, uniform template for analytic products
PreA1c 1.2
Provide guidance for planners to develop their own current intelligence products, indications and
warnings at all levels
PreA1c 1.2.1 Develop guidance for establishing threat at the management level
PreA1c 1.3 Develop means to share regional and State indications and warnings
PreA1c 1.3.1 Develop memoranda of understanding for information sharing with other fusion centers
PreA1c 1.3.2 Develop guidelines for tailoring information according to audience
PreA1c 1.4 Develop plans and procedures for establishing and staffing fusion center
PreA1c 1.4.1 Develop job descriptions and training requirements for personnel
92 Target Capabilities List
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Preparedness Measures Metrics
A State fusion center strategy is in place that:
Conforms to Fusion Center Guidelines
Provides for a coordinated interface to the Federal Government
Yes/No
Yes/No
Fusion center/process participants ensure that analysts understand the tailoring for the
different audiences to which they provide information/intelligence
Yes/No
Memorandums of understanding define processes and responsibilities for information
sharing and ensure de-confliction with other fusion centers/processes
Yes/No
Appropriate State and local entities provide personnel to the fusion center/process as
required
Yes/No
Analysts are granted appropriate clearances by the Department of Homeland Security (DHS) Yes/No
Job descriptions reflect the region’s applicable risks, threats, and critical infrastructure Yes/No
Federal standards to pre-qualify the fusion center/process in physical and clearance
requirements to receive, store, and control secret/secure information are in place
Yes/No
State and local entities adhere to Federal standards for the fusion center/process in physical
and clearance requirements to receive, store, and control secret/secure information
Yes/No
All State, local, and tribal law enforcement information/intelligence databases comply with
national standards and are completely compatible for data transmission between pertinent
agencies
Yes/No
A clearly defined process to establish threat at the management level, consistent with
established intelligence community standards, is in place
Yes/No
A clearly defined process for developing an unclassified briefing is in place Yes/No
Frequency with which a standardized classified-to-unclassified information review process
(including ratio) is conducted
Every 12 months
Unclassified briefings, reports, and alerts are used whenever possible to provide credible
information that allows public safety, private-sector, and non-law enforcement agencies to
develop intelligence- and information-driven prevention plans without compromising
sources or collection methods
Yes/No
Analysts are able to understand and identify links between terrorism-related intelligence and
information related to traditional criminal activity so they can identify activities that are
indicative of an imminent or potential threat
Yes/No
All personnel demonstrate necessary knowledge of the operating systems and intelligence
processes required to perform intelligence functions
Yes/No
Participating agencies have been provided a glossary of terms, updated every 12 months, to
the center/process
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Pre.A1c 2.1.1
Train permanent and assigned analytical staff on the intelligence cycle and developing analytic
products
Target Capabilities List 93
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Pre.A1c 2.1.2 Develop national standard for training fusion center/process staff
Preparedness Measures Metric
Each analyst has met a minimum standard for hours of training Yes/No
Training has met International Association Law Enforcement Analytic Standards from
Global Intelligence Working Group and International Association of Law Enforcement
Intelligence Analysts (GIWG/IALEIA) based standards (basic, intermediate, advanced)
Yes/No
Percent of personnel trained in the intelligence cycle 100%
Basic and advanced intelligence analysis training is provided for intelligence operations
personnel (e.g., commanders/supervisors, officers, analysts)
Yes/No
Percent of fusion center/process staff who receive annual awareness training on relevant
privacy and security rules, and regulations (28 CFR and any other relevant State statutes and
regulations)
100%
Analysts at relevant agencies and centers/processes are trained to identify precursors and
links between crime and terrorism
Yes/No
Analytic staff are properly trained and/or experienced in relevant analytical methods and
practices
Yes/No
Percent of analysts at relevant agencies and centers/processes who are trained in the use of
analytic methods and tools
100%
Participants have established procedures per the International Association of Law
Enforcement Analytic Standards (GIWG/IALEIA) to benchmark analysts’ capabilities
Yes/No
Percent of personnel who demonstrate necessary knowledge of the operating systems and
intelligence processes required to perform intelligence functions
100%
Analytic staff are knowledgeable in the region’s applicable risks, threats, and critical
infrastructure
Yes/No
Permanent and assigned analytical staff are trained to meet their responsibilities Yes/No
Performance Tasks and Measures/Metrics
Activity: Establish Fusion Center
Definition: Establish and operate a multidisciplinary, all-source information/intelligence fusion
center/process that undertakes an “all-hazards” and “all-crimes” approach
Critical Tasks
Pre.A1c 3.1
Establish and maintain a fusion center/process using the national guidelines and standards; co-
locate with an existing entity if practicable/desirable
Pre.A1c 3.2 Sustain technical and procedural connectivity with critical intelligence and information streams
Pre.A1c 3.2.1 Access intelligence and information repositories at all levels of classification as necessary
Pre.A1c 3.2.2 Ensure appropriate technological redundancy
Pre.A1c 3.5
Incorporate the fusion center/process principles of the Criminal Intelligence Model Policy
(International Association of Chiefs of Police [IACP])
Pre.A1c 3.3
Establish and maintain communications, including electronic connectivity with other region
fusion center/processes
94 Target Capabilities List
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Pre.A1c 3.4
Relay/pass terrorist-related information to the FBI Joint Terrorism Task Force (JTTF) and FBI
Field Intelligence Group (FIG)
Pre.A1c 3.6 Adhere to privacy and security rules in operating fusion center/process
Performance Measures Metrics
Key leaders have established and maintained a fusion center/process using the national
guidelines and standards per the Global Justice Information Sharing Initiative—Fusion
Center Guidelines and Homeland Security Advisory Council (HSAC) recommendations,
(Fusion Center Resource CD)
Yes/No
Percent of fusion center staff who have the requisite training and expertise to handle the
receipt, analysis, and dissemination of intelligence
100%
The fusion center is appropriately staffed during all operational hours Yes/No
Information is effectively shared and received using the fusion center technology Yes/No
The center makes use of the relevant networks, classified and unclassified (e.g., Regional
Information Sharing Systems/Law Enforcement Online (RISS/LEO), Homeland Security
Information Network (HSIN), and various public health networks)
Yes/No
Access to and from the fusion center/process by those responsible for gathering
information is done in accordance with established procedures
Yes/No
Efficient connectivity exists with the Joint Terrorism Task Force (JTTF) and Field
Intelligence Guide (FIG))
Yes/No
Staffing of analysts is conducted in accordance with national standards outlined in the
Law Enforcement Analytic Standards produced by the Global Intelligence Working
Group and International Association of Law Enforcement Intelligence Analysts
(GIWG/IALEIA)
Yes/No
The fusion center/process is assigned personnel with diverse subject matter expertise from
key departments, organizations, agencies or offices on a permanent, or liaison basis
Yes/No
The fusion center/process received, stored, and controlled secret/secure information Yes/No
The center/process uses an accessible repository for analytic methods/tools/techniques Yes/No
A clearly defined process or procedure is used to disseminate information and products Yes/No
Activity: Access Information
Definition: Obtain access to and receive collected information associated with the respective
territory of the fusion center
Critical Tasks
Pre.A1c 4.1
Receive, extract, or collect information from all available sources, including all relevant
databases and systems available to the State fusion center, on a continuous basis and with
appropriate technological redundancy
Pre.A1c 4.2
Ensure that unclassified briefings, reports and alerts are used whenever possible to provide
credible information that allows public safety, private sector and non-law enforcement agencies
to develop intelligence- and information-driven prevention plans without compromising source
or collection methods
Target Capabilities List 95
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Performance Measures Metrics
Secret/secure information is received, stored, and controlled in accordance with Federal
standards established to prequalify the fusion center/process in physical and clearance
requirements
Yes/No
Percent of State, tribal, and local law enforcement databases that are Global Justice XML
Data Model (JDXM)-compliant
100%
Unclassified briefings are established using the established process Yes/No
The standardized classified to unclassified information review process (including ratio) is
used
Yes/No
Feedback procedures are followed Yes/No
Activity: Analyze Information/Intelligence
Definition: Integrate and analyze relevant information/intelligence
Critical Tasks
Pre.A1c 5.1
Prioritize intelligence based on relevance of the information and the finished intelligence
products to potential threat elements
Pre.A1c 5.2.1
Blend, reconcile, and de-conflict data, information, and intelligence received from multiple
sources
Pre.A1c 5.2.2 Identify patterns and trends that may indicate emerging, immediate or long-term threat condition
Pre.A1c 5.2.3
Identify links between terrorism related intelligence and information related to traditional
criminal activity so as to identify activities indicative of an imminent or potential threat
Pre.A1c 5.2.4
Utilize any and all relevant and useful analytic methodologies, tools, and technology to provide a
more comprehensive and useful product
Performance Measures Metrics
Audit standards are used to review work products Yes/No
Analysts’ capabilities are assessed using procedures per the International Association of
Law Enforcement Analytic Standards (GIWG/IALEIA)
Yes/No
Percent of participants who have and use a national template for analytic products
provided by Federal authorities
100%
The volume of transactions using information networks are recorded Yes/No
Actions taken in light of transactions using information networks are tracked Yes/No
96 Target Capabilities List
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Activity: Develop Analytic Products
Definition: Develop analytic products that are consumer-tailored, clear, and objective and support
the development of performance-driven, risk-based prevention, protection, and response
programs at all levels
Critical Tasks
Pre.A1c 6.1
Provide briefings, reports and/or alerts tailored to recipients with detailed, specific information
on actions or activities that may be indicative of an emerging threat
Pre.A1c 6.2
Analyze information needs on a continuous basis for short- and long-term intelligence
requirements
Pre.A1c 6.3
Archive information and intelligence in a searchable repository to support future efforts by all
fusion analysts
Pre.A1c 6.4 Vet and review products prior to distribution
Performance Measures Metrics
Consumer satisfaction with the analytic product is monitored using an established
producer-to-consumer feedback cycle
Yes/No
Analysts tailor requirements for the different audiences to which they provide
information/intelligence
Yes/No
The fusion center/process consults the National Criminal Intelligence Sharing Plan and
other relevant Federal guidelines for guidance on use of tear-line reports
Yes/No
Percent of products vetted prior to distribution using center/process
procedures/mechanisms
100%
Intelligence files are maintained using the standards in the Fusion Center Guidelines Yes/No
The center/process has an information and intelligence archive Yes/No
The process used follows the national analytic template in the International Association of
Law Enforcement Analytic Standards (GIWG/IALEIA)
Yes/No
Target Capabilities List 97
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Linked Capabilities
Linked Capability Relationship to Capability
Information Gathering and
Recognition of Indicators and
Warnings
The data collected from Information Gathering and Recognition is further
analyzed and processed by Intelligence Analysis and Production
Counter-Terror Investigation and Law
Enforcement
Counter-Terror Investigation and Law Enforcement is one source of data
analyzed by the Intelligence Analysis and Production capability. The
products of the Intelligence Analysis and Production capability may further
inform Counter-Terror Investigation and Law Enforcement investigations.
CBRNE Detection CBRNE Detection is one source of data analyzed by Intelligence Analysis
and Production
Community Preparedness and
Participation
Citizen reports of suspicious activities is one source of data analyzed by
Intelligence Analysis and Production
Epidemiological Surveillance and
Investigation
Epidemiological Surveillance and Investigation contributes data for analysis
and is provided reports, as appropriate
Intelligence and Information Sharing
and Dissemination
The results of the analyses in Intelligence Analysis and Production are
disseminated using Intelligence and Information Sharing
Planning Products that result from Intelligence Analysis and Production are used to
ensure that plans adequately address terrorist threats
Risk Management Products from Intelligence Analysis and Production provide the threat,
vulnerability, and consequence data used in risk management
98 Target Capabilities List
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
End: Intelligence ready for
dissemination
Establish Fusion
Center
Fusion Center operational
Analyze
Information
Analyze
Information/
Intelligence
Information compiled
Develop Analytic
Products
Intelligence analyzed
Intelligence processed
Capability Activity Process Flow
Relationship
Linked
Capabilities
Intelligence Analysis and Production Capability
Information
Gathering and
Recognition of
Indicators and
Warnings
Intelligence/
Information
Sharing and
Dissemination
CBRNE
Detection
Risk
Management
Community
Preparedness and
Participation
Planning
Provide source of data
for analysis
Provide information
Epidemiological
Surveillance and
Investigation
Counter-Terror
Investigation and
Law Enforcement
Target Capabilities List 99
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Resource Element Description
Resource Elements Components and Description
Fusion Center/process A multidisciplinary, all-source information/intelligence fusion center/process
that undertakes an “all hazards” and “all crises” approach
Multi-discipline Analysts Analyst personnel for multiple disciplines (e.g., public health, HazMat, etc.) to
support intelligence analysis
Intelligence personnel Personnel involved in intelligence analysis at various levels within the
organization (e.g. analysts, supervisors, officers, etc.)
Administrative and support
personnel
Personnel who perform administrative and support functions (e.g., information
technology/communications, fusion center staff, security, etc.)
Public Health Analysts Federal, regional, State, local, tribal, and other appropriate agency public health
personnel involved in intelligence analysis
Cleared personnel Personnel possessing valid and current security clearances
Joint Terrorism Task Forces
(JTTFs)
Task forces formed at the local level and composed of persons from various
government and private elements (e.g., law enforcement, public health, local
businesses, key infrastructure representatives, emergency management and
other first responders)
Hardware, software, and
internet-based systems
Hardware, software, and internet-based systems that allow for information
exchange and dissemination
Terminals with access to
information sharing networks
and early detection/alert
programs and networks
Information sharing network architecture (e.g., Regional Information Sharing
System (RISS)/Law Enforcement Online (LEO), Joint Regional Exchange
System (JRIES), National Law Enforcement Telecommunication System
(NLETS), FBI Criminal Justice Information Services/National Crime
Information Center (CJIS/NCIC) networks).
Access to early detection/alert programs and networks and all-source
information (i.e., Public Health Information Network, Biosense, Homeland
Security Information Network, Information Sharing and Analysis Centers,
etc.). Relevant systems include: RSS/LEO, HSIN, etc.
Intelligence analysis and
maintenance tools
Software and equipment to include surveillance systems/equipment, recording
systems/equipment analyzing software/systems, data synthesis software, data
storage
Data synthesis software Hazard prediction, assessment, and threat modeling software
Planning Assumptions
Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions
against the United States and its interests. These activities decrease the perpetrators’ chance of
success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or
detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless
of a single type of threat, adversary capability, time or location of incident. Similarly, these
capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as
they conduct traditional all-hazards, all-crimes activities.
This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related
National Planning Scenarios. The analysis of national targets focused on bombing using improvised
explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device, and a
radiological dispersal.
100 Target Capabilities List
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Effective prevention depends on timely, accurate, and actionable information about the adversary,
their operations, their support, potential targets, and methods of attack. Homeland security
intelligence/information fusion is the overarching process of managing the development and flow of
information and intelligence across all levels and sectors of government and the private sector on a
continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to
emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal
entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes
issues.
The Planning Factors for A Single Incident section and the Approaches for Large-Scale Events
section do not apply because there is no incident or large-scale event that necessarily occurs before
these capabilities come in to play.
Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary
capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence
Analysis and Production; and Intelligence and Information Sharing and Dissemination.
All appropriate objectives and critical tasks will be exercised regularly at all levels in order to
measure performance and demonstrate capability.
Planning Factors for a Single Incident
Not Applicable
Approaches for Large-Scale Events
Not Applicable
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Fusion
Centers/process
Personnel
1 Per jurisdiction/
region
Federal, State,
Local
(Intrastate
region, City)
Establish Fusion
Center
Analyze
Information
Analyze
Information/
Intelligence
Develop Analytic
Products
Multi-discipline
Analysts
Personnel
As Needed Provided from
appropriate agencies
on a permanent or
liaison basis
Federal/State/
Local
All Activities
Intelligence
personnel
Personnel
As Needed Provided from law
enforcement
agencies on a
permanent or liaison
basis
Federal/State/
Local
All Activities
Target Capabilities List 101
PREVENT MISSION: INTELLIGENCE ANALYSIS AND PRODUCTION
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Administrative and
support personnel
Personnel
As Needed Provided from
appropriate agencies
on a permanent or
liaison basis
Federal/State/
Local
All Activities
Public Health
Analysts
Personnel
As Needed Provided from
public health
agencies on a
permanent or liaison
basis
Federal/State/
Local
All Activities
Cleared personnel Personnel
As Needed
Federal/State/
Local
All Activities
Joint Terrorism
Task Forces
(JTTFs)
Personnel
As Needed
Federal/State/
Local
All Activities
Hardware,
software, and
internet-based
systems that allow
for information
exchange and
dissemination
Systems
As Needed
Federal/State/
Local
All Activities
Terminals with
access to
information sharing
networks and early
detection/alert
programs and
networks
Equipment
As Needed Per fusion center
site
Federal/State/
Local
All Activities
Intelligence
analysis and
maintenance tools
Systems
As Needed Per fusion center
site
Federal/State/
Local
All Activities
Data synthesis
software
Equipment
As Needed
Federal/State/
Local
All Activities
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
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4. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S.
Department of Homeland Security, Office for Domestic Preparedness. June 2003.
http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf.
5. Information/Intelligence Sharing System Survey. Global Intelligence Working Group. 2001.
http://it.ojp.gov/documents/intell_sharing_system_survey.pdf.
6. Fusion Center Guidelines. Global Justice Information Sharing Initiative. July 2005.
7. The National Criminal Intelligence Sharing Plan. U.S. Department of Justice, Global Justice Information
Sharing Initiative. 2004. http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf.
8. Law Enforcement Analytic Standards. Global Justice Information Sharing Initiative and International
Association of Law Enforcement Intelligence Analysts, Inc. November 2004.
9. Applying Security Practices to Justice Information Sharing, Version 2. U.S. Department of Justice, Global
Justice Information Sharing Initiative, Security Working Group. March 2004.
http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf.
10. Central Intelligence Agency (CIA) Fact Book on Intelligence.
11. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO-03-
1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d03715t.pdf.
12. Doctrine for Intelligence Support to Joint Operations. Joint Publication 2-0. Joint Chiefs of Staff, Director of
Intelligence. March 2000. http://www.fas.org/irp/doddir/dod/jp2_0.pdf.
13. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July 2004.
http://www.9-11commission.gov/
14. Report on the U.S. Intelligence Community’s Prewar Intelligence Assessments on Iraq. Select Committee on
Intelligence, U.S. Senate, 108th Congress. July 2004. http://intelligence.senate.gov/iraqreport2.pdf.
15. The Homeland Security Advisory Council Prevention and Information Sharing Working Group. 2004.
16. Fusion Center Initiative. Homeland Security Advisory Council. April 2005.
17. State, Tribal and Local Intelligence and Information Sharing Initiative. Homeland Security Advisory Council.
December 2004.
18. Private Sector Information Sharing Initiative. Homeland Security Advisory Council. June 2005.
19. National Strategy for Homeland Security. Office of Homeland Security. July 2002.
http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf.
20. Presidential Directive–39: U.S. Policy on Counterterrorism. June 21, 1995.
http://www.ojp.usdoj.gov/odp/docs/pdd39.htm.
21. Presidential Directive–62/63: Protection Against Unconventional Threats to the Homeland and Americans
Overseas. Critical Infrastructure Protection, National Plan for Information Systems Protection. May 22, 1998.
http://www.fas.org/irp/offdocs/pdd-63.htm
Target Capabilities List 103
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
COUNTER-TERROR INVESTIGATION AND LAW
ENFORCEMENT
Capability Description
Counter-Terror Investigation and Law Enforcement is the capability that includes the broad range of
activities undertaken by law enforcement and related entities to detect, examine, probe, investigate, and
conduct operations related to potential terrorist activities. Current and emerging investigative techniques
are used with an emphasis on training, legal frameworks, recognition of indications and warnings, source
development, interdiction, and related issues specific to antiterrorism activities.
Outcome
Suspects involved in criminal activities related to homeland security are successfully deterred, detected,
disrupted, investigated, and apprehended. All counterterrorism-related cases are aggressively prosecuted.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports:
Terrorism Incident Law Enforcement and Investigation Annex
ESF #8: Public Health and Medical Services
ESF #9: Urban Search and Rescue
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
PreC1a 1.1
Establish an infrastructure by which States and local governments can exchange terrorism and
crime information
Pre.C1a 1.3
Develop, implement, and maintain an interagency or multi-jurisdictional training plan that
ensures commonality in terrorism investigation subject matter being presented to law
enforcement (State, local, tribal) and non-law enforcement (e.g., Department of Motor Vehicles,
public health and safety) personnel
Pre.C1a 1.6
Develop, implement, and maintain a plan for using Federal specialized units or personnel in
conjunction with an active investigation of a critical event
Pre.C1a 1.5
Develop a government-wide program to ensure that the armed services (e.g., maritime forces)
and appropriate law enforcement agencies have the capability to operate together in a mutually
supportive and complementary role
Pre.C1a 1.7
Develop procedures for conducting appropriate background investigations on personnel applying
for sensitive positions in government, law enforcement, and the private sector
104 Target Capabilities List
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Preparedness Measures Metrics
All Federal, State, local, and tribal law enforcement entities have established connections
with appropriate Joint Terrorism Task Force (JTTF) field offices to establish routine and
appropriate communications for all personnel
Yes/No
Larger jurisdictions or entities have identified a designated liaison with the JTTF Yes/No
Smaller jurisdictions have a procedure in place to communicate with the JTTF, as needed Yes/No
All Federal and tribal entities have established appropriate relationships (e.g., designated
liaison, part-time liaison) with all JTTF offices
Yes/No
State and local law enforcement know how to contact the JTTF for any potential terrorism
threat or activity
Yes/No
Processes and procedures for law enforcement at all levels to identify and respond to
suspicious activities and persons through the appropriate channels are in place
Yes/No
Processes and procedures for law enforcement at all levels to identify individuals planning
and coordinating terrorist-related activities are in place
Yes/No
Processes and procedures for law enforcement at all levels to apprehend and interdict
terrorist suspects are in place
Yes/No
Processes and procedures for law enforcement at all levels to gather, catalogue, and
preserve evidence for prosecutorial purposes and attribution are in place
Yes/No
Federal entities have established standard procedures and processes for conducting
terrorism-related investigations
Yes/No
Law enforcement at all levels use memoranda of understanding (MOU) to facilitate the
conduct of an ongoing investigation
Yes/No
Investigative policies, procedures, and processes are reviewed on a periodic basis Yes/No
The U.S. Department of Homeland Security (DHS) and Department of Justice/Federal
Bureau of Investigation (DOJ/FBI) provide a comprehensive list of Federal, State, local,
and tribal resources available to all law enforcement entities and provide updates as
appropriate
Yes/No
An investigative liaison or mechanism to communicate targeted information
needs/requirements to information collectors is in place
Yes/No
Notification processes and procedures to share information to/from Federal, State, local,
and tribal officials regarding an on-going investigation are in place
Yes/No
A mechanism for tracking leads from Federal, State, local, and tribal officials has been
developed and is maintained so that all entities can view where the information is being
taken for action
Yes/No
State, local, and tribal plans have been revised to include all required changes from the
National Incident Management System (NIMS) and National Response Plan (NRP)
Yes/No
Investigative personnel are familiar with the Terrorist Incident Annex to the NRP Yes/No
Plans and protocols for sharing incident-specific information from Federal partners with
State, local, and tribal authorities, Emergency Operations Centers (EOCs), and other
pertinent entities are in place
Yes/No
A mechanism for conveying among entities the prevention efforts taken by Federal, State,
local, and tribal officials is in place
Yes/No
Target Capabilities List 105
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
State, local, and tribal law enforcement either possess or have access to special operations
teams (e.g., SWAT teams)
Yes/No
Standard policies and procedures for deploying special operations teams are in place Yes/No
Sufficient specialized units or personnel exist within the State, local, and/or tribal
jurisdictions to ensure coverage of at least two simultaneous contingencies
Yes/No
State, local, and/or tribal jurisdictions develop and maintain formal MOUs, policies, or
procedures for accessing specialized units or personnel in an emergency
Yes/No
Formal MOUs, policies, or procedures that clearly define the duties and responsibilities of
Federal specialized units/personnel are in place
Yes/No
Appropriate agencies conduct background investigations on individuals applying for
sensitive positions in government, law enforcement, and the private sector
Yes/No
A mechanism for State, local, and tribal law enforcement entities to request/authorize that
specific Federal specialized units or personnel be assigned to conduct joint operations is
in place
Yes/No
DHS/DOJ/DOD develop and maintain a U.S. Government (USG) plan to attain and
maintain USG counterterrorism capabilities in a maritime environment
Yes/No
DHS/DOJ/DOD identify and implement common doctrine and equipment for the
maritime environment
Yes/No
Designated personnel have an identified source for and access to basic personal protection
equipment (e.g., Chem/Bio protective mask, protective over-garments)
Yes/No
Appropriate processes, procedures, and plans for notifying proper authorities in the event
of chemical, biological, radiological, nuclear, and explosive (CBRNE) hazards/threats are
in place
Yes/No
Procedures/protocols are in place for relaying CBRNE-related lab analysis (e.g., type,
quantity, lethality) to FBI laboratory entities are in place
Yes/No
Information flow plans/process for onsite personnel and detection capabilities are
developed for rapidly relaying investigative information
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Pre.C1a 2.1.1
Train appropriate investigative personnel in the proper use of personal protective equipment
(PPE)
Pre.C1a 2.1.2 Provide training in general safety procedures for a variety of potentially hazardous environments
Pre.C1a 2.1.3
Develop and implement interagency terrorism-investigation training plan that ensures
commonality in terrorism investigation
Pre.C1a 2.2.2
Design and conduct exercises to test Counter-Terror Investigation and Law Enforcement tasks
within a single unit and jointly with other jurisdictions and levels of government
Preparedness Measures Metric
Federal entities identify and/or develop training and education courses that they will make
available for all State, local, and tribal entities in the areas of interviewing techniques and
Yes/No
106 Target Capabilities List
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
cultural awareness training
Appropriate law enforcement personnel are trained in the FBI 12-step process of evidence
collection/preservation
Yes/No
State, local, and tribal personnel are trained and educated regarding the Federal assets that
are available to them
Yes/No
State, local, and tribal personnel are trained in appropriate Federal responsibilities in
prevention and investigation matters
Yes/No
Training is tailored to address regional trends/issues by State, local, and tribal officials Yes/No
Training is repeated/updated at least on a periodic basis Yes/No
Appropriate personnel are trained in cultural awareness as it relates to terrorism Yes/No
Appropriate personnel were trained to recognize criminal activity (e.g., money
laundering) that could be exploited by terrorists and/or related to terrorism investigations
Yes/No
Appropriate personnel are trained in source recruitment and development Yes/No
All law enforcement personnel are educated and trained to recognize terrorist techniques
and procedures, including suspicious criminal and non-criminal activity and indicators
Yes/No
Designated personnel are trained to recognize indicators of a hazardous or contaminated
environment
Yes/No
Designated personnel are trained in the proper use of personal protective equipment (PPE) Yes/No
All relevant personnel receive safety awareness training from appropriate agencies or
units (e.g., HazMat, bomb squad, military EOD unit)
Yes/No
Appropriate personnel are trained and educated on the NIMS Yes/No
Communication mechanisms are routinely tested via discussion-based and operations-
based exercises, tabletop exercises (TTX), and functional exercises (FX) to ensure they
are operating effectively
Yes/No
DHS/DOJ/DOD develop and test interoperability capabilities through joint training and
exercises
Yes/No
Training plans are developed independently or in cooperation with other jurisdictions, per
Federally defined guidelines
Yes/No
All jurisdictional training plans designate a centralized training facility and/or lead agency
responsible for joint training programs
Yes/No
All jurisdictional training plans establish a mechanism for notifying/updating participating
agencies of training opportunities and scheduling
Yes/No
Federally sponsored training programs utilize train-the-trainer methods as appropriate to
enable the broadest possible reach to all levels of government
Yes/No
Federally developed awareness training programs relating to legal responsibilities and
limitations, preservation of potential or suspected crime scenes, and control/custody of
evidence (videotapes, documents, etc.) are offered to non-law enforcement (public safety,
code enforcement, public health, and private sector security)
Yes/No
Agencies adhere to established policies regarding training intervals and requirements Yes/No
All State, local, and tribal jurisdictions provide DHS with a list of their cultural awareness
training needs, in order of priority
Yes/No
Target Capabilities List 107
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Performance Tasks and Measures/Metrics
Activity: Conduct Investigations
Definition: Carry out effective investigations of criminal/suspicious activities potentially related to
terrorism
Critical Tasks
Pre.C1a 3.5
Recognize terrorism indications and warnings that arise during the course of investigations
Pre.C1a 3.6
Conduct targeted outreach with private businesses related to an investigation
Pre.C1a 3.7
Engage in effective source development activities, including maintaining source confidentiality
Pre.C1a 3.9
Implement proper procedures and processes when conducting terrorism-related investigations
Pre.C1a 3.9.1
Follow standard crime-scene procedures
Pre.C1a 3.5.2
Maintain ability to address CBRNE hazards that may be encountered during the course of an
investigation
Pre.C1a 3.9.2
Gather, catalogue, and preserve evidence for prosecutorial purposes and attribution
Pre.C1a 3.2.1.2
Coordinate with officials from critical infrastructure, key resources, and the private-sector to
facilitate an investigation
Pre.C1a 3.5.1
Recognize indicators and warnings of potential terrorist-related activity during criminal
investigations
Performance Measures Metrics
Intelligence related to high-risk infrastructure or an acute threat is prioritized and reported
as soon as it is observed during the course of an investigation
Yes/No
Percent of aw enforcement investigators who are able to recognize and address onsite
CBRNE hazards encountered during the course of an investigation
100%
FBI Hazardous Materials Response Unit (HMRU) collects evidence, processes
material/evidence, and identifies the source or precursors of CBRNE
Yes/No
Law enforcement notifies industry/facilities of the process to identify and report
suspicious material, activity, or personnel related to the ongoing investigation
Yes/No
Law enforcement personnel coordinate with critical resource infrastructure, key resource,
and private-sector officials to facilitate an investigation
Yes/No
Law enforcement personnel follow-up with a reporting organization if more information
is necessary
Yes/No
Law enforcement investigators receive timely threat and intelligence information Yes/No
Law enforcement contacts the local Joint Terrorism Task Force (JTTF) when a connection
to terrorism is discovered during a criminal investigation
Yes/No
Law enforcement uses investigative information to identify potential vulnerabilities/target
lists
Yes/No
Law enforcement notifies Federal, State, local, and tribal governments how to identify
and report suspicious material, activity, or personnel related to the ongoing investigation
Yes/No
All appropriate entities ensure that sources and methods remain confidential throughout
the investigative process
Yes/No
108 Target Capabilities List
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Activity: Share Information Related to Investigations
Definition: Receive, develop, and share information to aid in an investigation
Critical Tasks
Pre.C1a 4.1
Identify and maintain liaisons with appropriate lead Federal terrorism investigation entities. (i.e.,
JTTF)
Pre.C1a 4.2
Conduct targeted outreach with private businesses, industries, and facilities to assist an
investigation
Pre.C1a 4.2.1
Conduct targeted outreach with Federal, State, local, and tribal governments to assist an
investigation
Pre.C1a 4.3
Establish, use, and maintain clear lines of reporting for information related to ongoing
investigations
Pre.C1a 4.1.1
Contact JTTF in a timely fashion when any nexus to terrorism is discovered
Pre.C1a 4.3.1
Share investigation-related information across jurisdictions and among law enforcement and
other agencies as appropriate
Pre.C1a 4.3.2
Deliver investigation-related information through pre-established channels appropriate for the
originating source
Pre.C1a 4.3.3 Follow-up with reporting entity if more information is necessary
Pre.C1a 4.4 Provide investigators with timely threat and intelligence information
Pre.C1a 4.5
Follow legal protocols on handling and disseminating information related to an ongoing
investigation
Performance Measures Metrics
Information provided by all sources is delivered through pre-established channels
appropriate for the originating source
Yes/No
Information provided by all sources meets predefined standards for accuracy,
completeness, and consistency
Yes/No
All appropriate entities follow legal protocols on handling and disseminating information
related to an ongoing investigation
Yes/No
Activity: Deploy Specially Trained Personnel
Definition: Deploy and use specialized units/duly authorized and specially trained personnel for
search, seizure, and/or intervention/interdiction operations
Critical Tasks
Pre.C1a 5.1 Maintain access to special operations teams (e.g., SWAT teams)
Pre.C1a 5.1.2 Maintain access to personnel with specialized skills (e.g., foreign language fluency)
Pre.C1a 5.1.1 Dispatch special operations teams according to standard policies and procedures
Pre.C1a 5.2 Conduct tactical deployment
Target Capabilities List 109
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Pre.C1a 5.3 Conduct surveillance of suspects
Pre.C1a 5.4 Secure incident scene
Pre.C1a 5.5 Assess incident and develop action plan
Pre.C1a 5.6 Conduct hostage negotiations
Pre.C1a 5.7 Determine and don appropriate PPE
Pre.C1a 5.8
Conduct tactical entry to disarm, detain, or otherwise render harmless the suspects in accordance
with the use of force policy/rules of engagement
Pre.C1a 5.9 Execute search and seizure procedures
Pre.C1a 5.9.1 Apprehend suspects
Pre.C1a 5.11 Conduct mission debrief
Pre.C1a 5.9.2.1
Translate documents and discourse and conduct interviews in languages other than English when
appropriate
Pre.C1a 5.10
Immediately share intelligence information from an operation and archive all data in appropriate
formats to allow for quick retrieval for subsequent analysis and investigation
Performance Measures Metrics
Percent of personnel who demonstrate basic knowledge of minimum safe distances and
how to establish adequate perimeter, containment and decontamination procedures
100%
State, local, and tribal law enforcement deploy special operations teams Yes/No
Law enforcement agencies access personnel with advanced foreign language capabilities Yes/No
Linked Capabilities
Linked Capability Relationship to Capability
All Protect Capabilities
Counter-Terror Investigation and Law Enforcement and the Protect
Capabilities provide each other with investigative support dependent on the
nature of the investigation
All Prevent Capabilities
Counter-Terror Investigation and Law Enforcement and the remaining
Prevent Capabilities provide each other with investigative support
dependent on the nature of the investigation
On-Site Incident Management
Counter-Terror Investigation and Law Enforcement and On-Site Incident
Management provide each other with situation reports
Information Gathering and
Recognition of Indicators and
Warnings
Counter-Terror Investigation and Law Enforcement provides raw data to
Information Gathering and Recognition
Emergency Operations Center
Management
Counter-Terror Investigation and Law Enforcement requests resources from
Emergency Operations Center Management. Emergency Operations Center
Management provides Counter-Terror Investigation and Law Enforcement
with resources.
Intelligence Analysis and
Production
Counter-Terror Investigation and Law Enforcement provides information
for analysis
110 Target Capabilities List
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Linked Capability Relationship to Capability
Emergency Public Safety and
Security Response
Emergency Public Safety and Security Response provides Counter-Terror
Investigation and Law Enforcement s with crowd and traffic control
Explosive Device Response
Operations
Explosive Device Response Operations provides Counter-Terror
Investigation and Law Enforcement with investigation leads and evidence
Animal Disease Emergency Support
Animal Disease Emergency Support provides Counter-Terror Investigation
and Law Enforcement with investigation leads and evidence
Fire Incident Response Support
Fire Incident Response Support provides Counter-Terror Investigation and
Law Enforcement with investigation leads and evidence
WMD and Hazardous Materials
Response and Decontamination
WMD and Hazardous Materials Response and Decontamination provides
Counter-Terror Investigation and Law Enforcement with investigation leads
and evidence
Search and Rescue (Land-Based)
Search and Rescue (Land-Based) provides Counter-Terror Investigation
and Law Enforcement with investigation leads and evidence
Environmental Health
Environmental Health provides Counter-Terror Investigation and Law
Enforcement with investigation leads and evidence
CBRNE Detection
CBNRE Detection provides raw data for Counter-Terror Investigation and
Law Enforcement
Target Capabilities List 111
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
End: Investigation
Complete
Conduct
Investigations
Investigation requires
information sharing
Share Information
Related to
Investigations
Capability Activity Process Flow
Relationship
Linked
Capabilities
Counter-Terror Investigation and Law Enforcement
Capability
On-Site Incident
Management
CBRNE
Detection
All Protect
Capabilities
Emergency
Operations Center
Management
Information
Gathering and
Recognition of
Indicators and
Warnings
Intelligence
Analysis and
Production
Request resources
Deploy Specially
Trained Personnel
Provide investigation
support
Provide sitreps
Resources provided
Provide raw data
Provide data/information for
analysis
Emergency Public
Safety and
Security Response
P
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o
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o
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Explosive Device
Response
Operations
Fire Incident
Response Support
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d
WMD/Hazardous
Materials
Response and
Decontamination
Search and
Rescue (Land-
Based)
Environmental
Health
All Prevent
Capabilities
Provide investigation
support
Animal Disease
Emergency
Support
112 Target Capabilities List
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Resource Element Description
Resource Elements Components and Description
Investigative personnel Law enforcement personnel involved in the conduct of investigations of
criminal/suspicious activities
JTTFs Task forces formed at the local level and composed of persons from various
government and private elements (e.g., law enforcement, public health, local
businesses, key infrastructure representatives, emergency management and
other first responders)
Liaisons to JTTFs A government person, designated by larger jurisdictions, to liaise with the
community’s JTTF
Evidence collection personnel
and equipment
Law enforcement personnel trained in the FBI 12-step process of evidence
collection/preservation.
Forensic analysis personnel and
equipment
Personnel and equipment at all levels of government involved in the analysis of
evidence collected from a crime scene or elsewhere
“Train the trainer” programs Programs to train on Federal assets and roles and responsibilities, terrorism
indications and warning in criminal investigations, and recognition of
hazardous materials/threats
Planning Assumptions
Prevention consists of those activities that serve to detect, deter, and disrupt terrorist threats or actions
against the United States and its interests. These activities decrease the perpetrators’ chance of
success, mitigate attack impact, minimize attack visibility, increase the chance of apprehension or
detection, and obstruct perpetrators’ access to resources. Tasks in this area are important regardless
of a single type of threat, adversary capability, time, or location of incident. Similarly, these
capabilities reflect many tasks routinely undertaken by law enforcement and related organizations as
they conduct traditional all-hazards, all-crimes activities.
This capability applies to all potential terrorist incidents and is applicable to all 12 terrorism-related
National Planning Scenarios. Initial planning, however, has been focused on bombing using
improvised explosives device, chlorine tank explosion, aerosol anthrax, improvised nuclear device,
and a radiological dispersal.
Effective prevention depends on timely, accurate, and actionable information about the adversary,
their operations, their support, potential targets, and methods of attack. Homeland security
intelligence/information fusion is the overarching process of managing the development and flow of
information and intelligence across all levels and sectors of government and the private sector on a
continual basis. Although the primary emphasis of fusion is to identify, deter, and respond to
emerging terrorism-related threats and risks, a collateral benefit to Federal, State, local, and tribal
entities is that it will support ongoing efforts to address non-terrorism-related, all-hazards, all-crimes
issues.
Both the Planning Factors for a Single Incident section and the Approaches for Large-Scale Events
section have been omitted because there is no incident or large-scale event that necessarily occurs
before these capabilities come in to play.
Target Capabilities List 113
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Planning Factor Assumptions
Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary
capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence
Analysis and Production; and Intelligence and Information Sharing and Dissemination.
All appropriate objectives and critical tasks will be exercised regularly at all levels in order to
measure performance and demonstrate capability.
Planning Factors for a Single Incident
Not Applicable
Approaches for Large-Scale Events
Not Applicable
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number of
Units
Unit
Measure
(number
per x)
Lead Capability Activity
supported by
Element
Investigative
personnel
Personnel As Needed (to be
determined by
Agency)
Federal/State/
Local
Conduct
investigation
Share Information
Related to
Investigations
JTTFs Personnel As Needed (to be
determined by
Agency)
Federal (DOJ/
FBI)
Conduct
investigation
Share Information
Related to
Investigations
Deploy Specially
Trained Personnel
Liaisons to JTTFs Personnel As Needed (to be
determined by
Agency)
Federal/State/
Local
Conduct
investigation
Share Information
Related to
Investigations
Deploy Specially
Trained Personnel
Evidence
collection
personnel
Personnel As Needed (to be
determined by
Agency)
Federal/State/
Local
Conduct
Investigation
Forensic analysis
personnel
Personnel As Needed (to be
determined by
Agency)
Federal/State/
Local
Conduct
investigation
114 Target Capabilities List
PREVENT MISSION: COUNTER-TERROR INVESTIGATION AND LAW ENFORCEMENT
Resource
Element Unit
Type of
Element
Number of
Units
Unit
Measure
(number
per x)
Lead Capability Activity
supported by
Element
“Train the trainer”
programs
Training As Needed Federal Conduct
investigation
Share Information
Related to
Investigations
Deploy Specially
Trained Personnel
References
1. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S.
Department of Homeland Security, Office for Domestic Preparedness. June 2003.
http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf.
2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
3. National Response Plan. U.S. Department of Homeland Security. December 2004.
4. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
5. Crime Scene Investigation: A Guide for Law Enforcement. U.S. Department of Justice, Office of Justice
Programs. 1999. http://www.ncjrs.org/pdffiles1/nij/178280.pdf.
6. Handbook of Forensic Services. U.S. Department of Justice, Federal Bureau of Investigations Laboratory
Division. 2003. http://www.fbi.gov/hq/lab/handbook/forensics.pdf.
7. ODP WMD Training Program: Enhancing State and Local Capabilities to Respond to Incidents of Terrorism.
U.S. Department of Homeland Security, Office for Domestic Preparedness. 2001.
http://www.ojp.usdoj.gov/odp/docs/coursecatalog.pdf.
8. NFPA 921: Guide for Fire and Explosion Investigations. National Fire Protection Association. 2004.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=921
9. NFPA 1033: Standard for Professional Qualifications for Fire Investigator. National Fire Protection
Association. 2003. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1033
Target Capabilities List 115
PREVENT MISSION: CBRNE DETECTION
CBRNE DETECTION
Capability Definition
The preventative Chemical, Biological, Radiological, Nuclear, and Explosives (CBRNE) Detection
capability provides the ability to detect CBRNE materials at points of manufacture, transportation, and
use. It is important to note that the activities and tasks described in this capability will be carried out
individually for each specific agent, rather than for all agents at the same time. Therefore, when
considering critical tasks and preparedness measures, each task and measure should be applied separately
to each CBRNE agent. For example, in considering whether technical support (or “reachback”) is
available, rad/nuc “reachback” is considerably different from chemical, biological, or explosive
“reachback”. Preparedness in one or more of the CBRNE areas does not equate to preparedness across
the entire CBRNE detection spectrum.
This capability includes the detection of CBRNE material through area monitoring, but does not include
detection by their effects (i.e., signs or symptoms) on humans and animals. Such population level
monitoring is addressed, respectively, in the Epidemiological Surveillance and Investigation and Animal
Disease Emergency Support capabilities. The CBRNE Detection capability includes the identification and
communication of CBRNE threats, but does not include actions taken to prevent an incident or respond to
the consequences of a CBRNE incident, which are also addressed in other capabilities.
The CBRNE Detection capability includes technology, as well as the capacity to recognize potential
CBRNE threats through equipment, education, and effective protocols. Training, communication, close
coordination with key partners, including intelligence, law enforcement, public safety, public health, and
international partners, and public and private sector awareness of CBRNE threats are all recognized as
critical enablers for this capability. However, only CBRNE detection-specific tasks within these cross-
cutting elements have been identified in the discussion of this capability.
Definitions are as follows:
• Manufacture: The illegal production of CBRNE material within the borders of the U.S. and its
territories.
• Transport: The movement of CBRNE material outside, across, and within the borders of the U.S. and
its territories.
• Use: The deployment, emplacement, or employment of CBRNE material within the U.S. and its
territories.
Outcome
Chemical, biological, radiological, nuclear, and/or explosive (CBRNE) materials are rapidly detected and
characterized at borders and ports of entry, critical locations, events, and incidents
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs) and Annex:
ESF #8: Public Health and Medical Services
ESF #13: Public Safety and Security
Terrorism Incident Law Enforcement and Investigation Annex
116 Target Capabilities List
PREVENT MISSION: CBRNE DETECTION
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Pre.A1a 1.1 Develop and maintain plans and processes for CBRNE detection and communication operations
Pre.A1a 1.1.1
Develop regional CBRNE coordination plans or activities involving all Federal, State, local,
tribal, and private stakeholders
Pre.A1a 1.1.2
Develop policies and protocols for determining appropriate locations for detection operations
(“interdiction points”) for each CBRNE agent
Pre.A1a 1.1.3
Develop processes to identify, acquire, and integrate appropriate detection technology in
operational environments for each CBRNE agent
Pre.A1a 1.1.4 Develop protocols for resolving CBRNE alarms
Pre.A1.a 1.1.5
Develop procedures on how to receive threat information from law enforcement/ intelligence
agencies regarding CBRNE agents
Pre.A.1.a 1.1 6 Develop procedures on how to notify appropriate officials of CBRNE detection results
Pre.A1a 1.2
Develop standards for detection technologies for each CBRNE agent, including sensitivity and
selectivity standards
Pre.A1a 1.2.1
Develop and implement global standards for cargo screening ) for each CBRNE agent in
coordination with Transportation Screening
Pre.A1a 1.2.2
Develop and implement equipment acquisition and certification standards for each CBRNE
agent
Pre.A1a 1.2.3
Develop technology standards for existing detection technologies used by the government and
private sector for each CBRNE agent
Pre.A1a 1.2.3.1 Develop technology standards for emerging detection technologies for each CBRNE agent
Pre.A1a 1.2.4
Validate analytical methods to detect chemical, biological, radiological, nuclear, and explosive
material
Pre.A1a 1.3
Establish policies and agreements to enhance and maintain adequate resources and technologies
for detection operations for each CBRNE agent
Pre.A1a 1.3.1
Establish coordination and/or mutual aid agreements with external CBRNE detection and alarm
resolution capabilities
Pre.A1a 1.3.2
Establish protocols to ensure that technical support (either on-site or “reach back”) is available
during detection operations for each CBRNE agent
Pre.A1a 1.3.3 Identify financial and technological gaps in detection resources for each CBRNE agent
Pre.A1a 1.3.4
Acquire and allocate resources to address identified financial gaps in detection for each CBRNE
agent
Pre.A1a 1.3.5
Establish a research and development program to address shortfalls in technologies for detecting
chemical, biological, radiological, nuclear and explosive material
Pre.A1a 1.4
Establish policies and agreements to facilitate the sharing and dissemination of information on
CBNRE detection across stakeholders
Pre.A1a 1.4.1
Develop processes for obtaining data regarding evolving CBRNE threats in coordination with
the Information Sharing and Dissemination Capability
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PREVENT MISSION: CBRNE DETECTION
Pre.A1a 1.4.2
Develop procedures to facilitate the exchange of CBRNE detection-related information and data
among Federal, State, local and tribal agencies
Pre.A1a 1.4.3
Establish policies and procedures for detection of each CBRNE agent and the communication of
CBRNE detection results and warnings
Pre.A1a 1.4.4 Establish and maintain an interoperable information network for detection of each CBRNE agent
Pre.A1a 1.5
Develop and implement a program to conduct detection of each CBRNE agent at critical
infrastructure/key resources (CI/KR) in coordination with the Critical Infrastructure Protection
Capability
Pre.A1a 1.5.1 Conduct a CBRNE threat assessment to CI/KR
Pre.A1a 1.5.2 Conduct detection requirements analysis for each CBRNE agent for CI/KR
Pre.A1a 1.5.3 Identify locations to place detection devices at CI/KR for each CBRNE agent
Pre.A1a 1.5.4
Prioritize and allocate CBRNE detection resources to CI/KR in coordination with Critical
Infrastructure Protection capability
Pre.A1a 1.5.5 Deploy fixed and mobile detection resources to CI/KR for each CBRNE agent
Preparedness Measures Metrics
Technological shortfalls in detection for each CBRNE agent have been identified Yes/No
A research and development program to address the detection technological shortfalls for
each CBRNE agent is in place
Yes/No
A program for the timely development of standards for emerging technology is in place Yes/No
A process to identify, acquire, and integrate appropriate technology in operational
environments is in place
Yes/No
Technical support for each CBRNE agent is available (on-site or through “reach back”) Yes/No
A standard list of threats of concern for each CBRNE agent is in place Yes/No
Appropriate levels of detection sensitivity for each CBRNE agent have been selected for
the identified threats of concern
Yes/No
Detection sensitivity thresholds for each CBRNE agent comply with appropriate
international, national, State, and local standards
Yes/No
A regional detection plan for each CBRNE agent has been developed and coordinated Yes/No
Protocols have been developed and incorporated in plans to communicate CBRNE
detection activities, locations, anomalies and their resolution to appropriate personnel
(e.g., intelligence, law enforcement, hazardous materials (HazMat), and public health
personnel)
Yes/No
Protocols for notifying officials include agency specific call-down lists Yes/No
Frequency with which CBRNE detection plans are updated to reflect current critical
infrastructure/key resources (CI/KR) assessments
Every 12 months
Appropriate procedures exist for CBRNE detection at critical infrastructure/key resources
(CI/KR) for specific threat conditions
Yes/No
Integrated detection architectures for each of the CBRNE agents exist for all levels of
government (Federal, State, local, tribal)
Yes/No
Gaps in detection capability for each of the CBRNE agents are identified Yes/No
118 Target Capabilities List
PREVENT MISSION: CBRNE DETECTION
A process to acquire and allocate resources and fill CBRNE detection gaps is in place Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Pre.A1a 2.1
Develop and maintain training programs to support CBRNE detection and communication
operations
Pre.A1a 2.1.1 Identify personnel for CBNRE detection training
Pre.A1a 2.1.2
Develop and implement training to enable personnel (e.g., first responders, law enforcement,
intelligence, and medical community) to recognize the presence of CBRNE material
Pre.A1a 2.1.3 Establish key personnel training standards for CBRNE detection
Pre.A1a 2.1.4
Provide CBRNE support equipment and threat device handling training to operations and
investigation personnel
Pre.A1a 2.1.5 Develop and implement public education campaigns/ trainings for CBRNE awareness
Pre.A1a 2.1.5.1 Publish and distribute CBRNE detection awareness material
Pre.A1a 2.2 Test and exercise CBRNE detection and communication protocols regularly
Pre.A1a 2.2.1
Conduct after action reports (AARs) and update CBRNE detection and communication
protocols, as necessary, based on lessons learned during exercises
Preparedness Measures Metric
First responders and CI/KR personnel have received awareness level training for each of
the CBRNE agents
Yes/No
Appropriate personnel have been identified for CBRNE detection training (e.g., law
enforcement, transit police and security, fire department, hazardous materials (HazMat),
public health, private sector security, and critical infrastructure personnel)
Yes/No
Frequency with which detection protocols for each of the CBRNE agents are exercised
and evaluated
Every 12 months
Training for detection operators, laboratory staff, and critical infrastructure personnel has
been conducted
Yes/No
A program to test and evaluate new CBRNE technology in the appropriate operational
environment is in place
Yes/No
Detection training materials have been developed and validated for each CBRNE agent Yes/No
Percent of required personnel trained to meet jurisdictional CBRNE detection
requirements
100%
Public education campaigns exist for CBRNE detection Yes/No
The CBRNE detection exercise program is in compliance with Homeland Security
Exercise and Evaluation Program (HSEEP) guidance
Yes/No
Frequency with which CBRNE detection notification plan is exercised Every 3 months
A process for analyzing exercise results and incorporating lessons learned is in place Yes/ No
Target Capabilities List 119
PREVENT MISSION: CBRNE DETECTION
Performance Tasks and Measures/Metrics
Activity: Detect CBRNE
Definition: Operate primary and secondary CBRNE detection technologies at points of illegal
manufacture, transportation, or use within and across the borders of the U.S. and its Territories
Critical Tasks
Pre.A1a 3.1 Conduct CBRNE detection operations in communities for illegal manufacture and/or use
Pre.A1a 3.1.1 Investigate a venue for the possible placement of a CBRNE device
Pre.A1a 3.1.2 Detect the use of CBRNE material in a community and/or venue
Pre.A1a 3.1.3 Conduct continuous and ad hoc CBRNE material detection in a community and/or venue
Pre.A1a 3.1.4 Detect illegal manufacturing of CBRNE material at potential manufacturing sites
Pre.A1a 3.2 Conduct CBRNE detection operations at key transportation points
Pre.A1a 3.2.1
Detect CBRNE material on people or items entering/boarding events, aircraft, mass transit, or
other high impact targets
Pre.A1a 3.2.2 Inspect and monitor cargo at key interdiction points for potential CBRNE material
Pre.A1a 3.2.3 Identify potential CBRNE material at key interdiction points requiring further inspection
Pre.A1a 3.2.4
Detect the ground, air, and sea transport and/or deployment of CBRNE material into and within
the U.S. and its Territories
Pre.A1a 3.2.5 Screen people to detect CBRNE material at all ports of entry
Pre.A1a 3.2.5.1
Screen material (e.g., baggage, mail, etc.) to detect CBRNE material at all ports of entry (e.g.,
sea and airports, border crossing points, etc.)
Pre.A1a 3.2.6 Provide point and stand-off detection resources
Pre.A1a 3.3 Conduct CBRNE detection operations at CI/KR locations
Pre.A1a 3.3.1 Screen people to detect CBRNE material at all CI/KR locations
Pre.A1a 3.3.2 Screen material (e.g., baggage, mail, etc.) to detect CBRNE material at all CI/KR
Pre.A1a 3.4 Use intelligence information to focus CBRNE material searches and surveillance activities
Pre.A1a 3.4.1 Use intelligence information to target suspect containers or shipments
Pre.A1a 3.4.2 Detect the theft or diversion of CBRNE materials
Pre.A1a 3.4.3
Coordinate with Animal Health and Epidemiological Surveillance to focus CBRNE detection on
public health and medical information (e.g., syndromic surveillance and medical diagnostic tests)
Pre.A1a 3.5 Implement protocols for resolving CBRNE alarms and the detection of suspect material
Pre.A1a 3.5.1 Document and maintain results from detection alarms and responses
Performance Measures Metrics
Illicit chemical, biological, radiological, or explosive material are detected at borders,
inspection points, or during routine law enforcement investigations
Yes/No
Surveillance systems provide early detection of a chemical, biological, or radiological
release that would facilitate limiting the spread and effect of that release
Yes/No
120 Target Capabilities List
PREVENT MISSION: CBRNE DETECTION
Checked baggage and cargo entering/boarding events, aircraft, mass transit, or other
potential targets are screened for CBRNE materials
Yes/No
Passengers and event attendees entering/boarding events, aircraft, mass transit, or other
potential targets are screened for CBRNE materials
Yes/No
CBRNE detection efforts are informed by intelligence, public safety, and public health
information
Yes/No
Venues are inspected for potential CBRNE threats prior to major events Yes/No
Ad hoc CBRNE surveillance capabilities are deployed in response to potential threats Yes/No
Accurate records are kept of all suspect issues or alarms and their resolution Yes/No
Activity: Identify and/or Characterize CBRNE material
Definition: Describe or portray the qualities of detected CBRNE material
Critical Tasks
Pre.A1a 4.1 Conduct additional screenings to confirm the presence of CBRNE materials
Pre.A1a 4.1.1
Provide samples to relevant entities (e.g., public health or animal health laboratories, law
enforcement, forensic laboratories, etc.) for additional assessments, as necessary
Pre.A1a 4.1.2 Conduct appropriate tests and assessments to characterize and identify detected CBRNE material
Pre.A1a 4.2 Determine whether detected CBRNE material is a threat
Pre.A1a 4.3
Gather CBRNE material detection information that can be used in attribution efforts to
appropriate personnel, including law enforcement and intelligence community personnel
Performance Measures Metrics
Suspicious material is analyzed (either on-site or via laboratory support) Yes/No
Percent of CBRNE alarms, or suspect material discoveries, at interdiction points that are
resolved
100%
Percent of CBRNE materials that are correctly identified as either a threat or not a threat 100%
Percent of detected CBRNE materials that are properly identified 100%
Activity: Communicate CBRNE Detection Incidents
Definition: Provide CBRNE detection and warning information to appropriate entities and
authorities
Critical Tasks
Pre.A1a 5.1
Coordinate CBRNE material threat and discovery information with intelligence, public safety,
public health and other appropriate agencies
Pre.A1a 5.2
Notify appropriate personnel (e.g., intelligence community, law enforcement personnel, first
responders, and the general public) of CBRNE detection data and results
Pre.A1a 5.3 Communicate data and observations using appropriate formats and standards
Target Capabilities List 121
PREVENT MISSION: CBRNE DETECTION
Performance Measures Metrics
Disseminated information in event of CBRNE detection follows established protocol Yes/No
CBRNE detection notification is completed in accordance with relevant plans and
protocols
Yes/No
Linked Capabilities
Linked Capability Relationship to Capability
Critical Infrastructure Protection CBRNE Detection provides Critical Infrastructure Protection with
detection and characterization information.
Environmental Health CBRNE Detection provides material characterization to Environmental
Health. Environmental Health data may signal the need for CBRNE
detection.
Explosive Device Response
Operations
CBRNE Detection provides material characterization to Explosive Device
Response Operations.
Intelligence and Information Sharing
and Dissemination
Intelligence/ Information Sharing and Dissemination provides CBRNE
Detection with all relevant intelligence.
Counter-Terror Investigation and Law
Enforcement
Detection of CBRNE materials may trigger the need for a law enforcement
investigation, and may affect how law enforcement operations are
conducted
Laboratory Testing Laboratory Testing results may indicate potential CBRNE threats. CBRNE
Detection may receive assistance in characterizing the detected material
from Laboratory Testing.
Emergency Public Safety and Security
Response
CBRNE Detection may require Emergency Public Safety and Security
Response for perimeter and crowd control.
WMD and Hazardous Materials
Response and Decontamination
CBRNE Detection informs WMD and Hazardous Materials Response and
Decontamination of CBRNE materials.
122 Target Capabilities List
PREVENT MISSION: CBRNE DETECTION
Detect CBRNE
Material detected
Identify and/or
Characterize
CBRNE Material
Communicate
CBRNE Detection
Incidents
CBRNE characterized
Capability Activity Process Flow
Relationship
Linked
Capabilities
CBRNE Detection Capability
End: Stakeholders informed of
detected material
Intelligence/
Information
Sharing and
Dissemination
Explosive Device
Response
Operations
WMD/Hazardous
Materials
Response and
Decontamination
Counter-Terror
Investigation and
Law Enforcement
Animal Disease
Emergency
Support
Critical
Infrastructure
Protection
Food and
Agriculture Safety
and Defense
Epidemiological
Surveillance and
Investigation
Laboratory Testing
Emergency Public
Safety and Security
Response
CBRNE detection requested
Perimeter/crowd
control provided
Provide CBRNE detection
and characterization
information
Relevant intelligence provided
Provide detection information
Environmental
Health
P
r
o
v
i
d
e
d
e
t
e
c
t
i
o
n
i
n
f
o
r
m
a
t
i
o
n
Target Capabilities List 123
PREVENT MISSION: CBRNE DETECTION
Resource Element Description
Resource Elements Components and Description
CBRNE Detection operator/
personnel
Specially trained and equipped personnel with the ability to recognize
potential Chemical, Biological, Radiological/Nuclear, or explosive threats
through equipment, education, and effective protocols. Personnel must be
trained and capable of operating primary and secondary detection systems.
Explosive Detection Dog (EDD)
Teams
A canine and handler, working as a team to perform explosive detection
searches of building and office areas, vehicles, packages, materials and
persons
Laboratory staff and equipment
for agent identification
Personnel specially trained and equipped to analyze suspicious materials in
support of characterization and confirmation. This may involve laboratory
networks (e.g., Laboratory Response Network (LRN), FERN, Animal and
Plant Health Inspection Service (APHIS), and National Animal Health
Laboratory Network (NAHLN))
Border control and other targeted
‘defense layers’ personnel
Personnel involved in screening materials (e.g., baggage, mail, etc.) to detect
CBRNE material at all ports of entry (e.g., sea and airports, border crossing
points, etc.)
Appropriate critical infrastructure
personnel
Critical infrastructure personnel who are trained in CBRNE screening and
detection of CBRNE materials
Automated Information System Resources that provide the infrastructure for the dissemination of information
amongst the various command/control and support nodes
CBRNE detection Research and
Design
Programs for the development of technologies to improve CBRNE detection
CBRNE monitoring and
detection equipment
Appropriate fixed or mobile equipment for detection of CBRNE threats
based on risk assessments for priority communities or venues.
CBRNE equipment support
systems
Systems to ensure that equipment remains operational and accurate. Systems
to provide expert analytical assessments of detector data
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, capability planning factors
were developed from an in-depth analysis of the scenarios featuring an improvised explosives device,
a chlorine tank explosion, aerosol anthrax, an improvised nuclear device, and a radiological dispersal.
Other scenarios were reviewed to identify required adjustments or additions to the planning factors
and national targets.
CBRNE detection activities apply to the U.S. and its territories.
The CBRNE Detection capability addresses biological agents outside of the body (human and
animal), and does not include medical or plant samples (i.e., blood and medical tests). Medical and
syndromic surveillance detection of biological agents is addressed in Epidemiological Surveillance
and Investigation, as well as Food and Agriculture Safety. Close integration of these capabilities
must occur with the CBRNE Detection capability.
Both the Planning Factors from an In-Depth Analysis of a Scenario with Significant Demand for the
Capability section and the Approaches to Large-Scale Events section have been omitted because there
is no incident or large-scale event that necessarily occurs before these capabilities come in to play.
124 Target Capabilities List
PREVENT MISSION: CBRNE DETECTION
Intelligence/information fusion is an ongoing, cyclical process that incorporates three primary
capabilities: Information Gathering and Recognition of Indicators and Warnings; Intelligence
Analysis and Production; and Intelligence and Information Sharing and Dissemination. The CBRNE
Detection capability relates closely to all three stages of this process.
All appropriate objectives and critical tasks will be exercised regularly at all levels in order to
measure performance and demonstrate capability.
Planning factors are not based on major events, but on an assessment of the risks and vulnerabilities
that pertain to the locality conducting that assessment. CBRNE detection is needed continuously and
not just during discrete events.
Resource
Element
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources
Needed
CBRNE
detection/operating
personnel
Nationwide, organized regionally
Nationwide,
organized regionally
Automated
Information System
One integrated system will provide the
infrastructure for dissemination of information
amongst the various command/control and
support nodes.
Nationwide, nested
regionally
Automated
Information System
One integrated system will provide the
infrastructure for dissemination of information
amongst the various command/control and
support nodes.
Nationwide, nested
regionally
CBRNE equipment
support systems
Nationwide,
organized regionally
Approaches for Large-Scale Events
The main strategy is to use detection technologies and screening processes to interdict the CBRNE
materials before they are used. The alternative is to rely on existing detection technology; law
enforcement investigations and alternate technologies will determine the presence of threat devices.
Develop the national capability through design and deployment of the Global Nuclear Detection
Architecture and other similar programs.
Encourage states and local jurisdiction to develop and implement detection capabilities through use of
DHS grants and guidance.
Develop equipment, training and communications standards to facilitate and validate the deployment
and use of detection technologies.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
CBRNE detection
operator/ personnel
Personnel Varies by
Region
Varies by Region Federal/State/
Local
All Activities
Target Capabilities List 125
PREVENT MISSION: CBRNE DETECTION
Resource
Element Unit
Type of
Element
Number of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Explosive
Detection Dog
(EDD) Teams
Personnel and
Canine
Varies by
Region
Varies by Region Federal Detect
Identify and/or
Characterize
Laboratory staff
and equipment for
agent identification
Personnel and
Equipment
Varies by
Region
Varies by Region Federal/State
Local
Identify and/or
Characterize
Border control and
other targeted
‘defense layers’
personnel
Personnel Varies by
Region
Varies by Region Federal/State Detect
Appropriate critical
infrastructure
personnel
Personnel Varies by
Region
Varies by Region Private Sector Detect
Automated
information system
Equipment Varies by
Region
Varies by Region Federal/State/
Local
Communicate
CBRNE detection
technology
Research and
Development
Organization
and Leadership
Varies by
Region
Varies by Region Federal All Activities
CBRNE
monitoring and
detection
equipment
Equipment Varies by
Region
Varies by Region Federal/State/
Local
Detect
Identify and/or
Characterize
CBRNE
Equipment Support
Systems
Equipment Varies by
Region
Varies by Region Federal/State/
Local
Detect
Identify and/or
Characterize
References
1. National Response Plan. U.S. Department of Homeland Security. December 2004.
2. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
3. Homeland Security Presidential Directive/HSPD–8: National Preparedness. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
4. Homeland Security Presidential Directive/HSPD–7: Critical Infrastructure Identification, Prioritization and
Protection.
5. Hazardous Materials Emergency Planning Guide. National Response Team.
2001.http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
6. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
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Protect Mission Area
Target Capabilities
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Target Capabilities List 129
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
CRITICAL INFRASTRUCTURE PROTECTION
Capability Definition
The Critical Infrastructure Protection (CIP) capability enables public and private entities to identify,
assess, prioritize, and protect critical infrastructure and key resources so they can detect, prevent, deter,
devalue, and mitigate deliberate efforts to destroy, incapacitate, or exploit the Nation’s critical
infrastructure and key resources.
Outcome
The risk to, vulnerability of, and consequence of an attack on critical infrastructure are reduced through
the identification of critical infrastructure; conduct, documentation, and standardization of risk
assessments; prioritization of assets; decisions regarding protective and preventative programs; and
implementation of protective and preventative plans.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs)/Annexes:
ESF #1: Transportation
ESF #2: Communications
ESF #3: Public Works and Engineering
ESF #4: Firefighting
ESF #5: Emergency Management
ESF #8: Public Health and Medical Services
ESF #10: Oil and Hazardous Materials Response
ESF #11: Agriculture and Natural Resources
ESF #12: Energy
ESF #13: Public Safety and Security
ESF #14: Long-Term Community Recovery and Mitigation
Cyber Incident Annex
Terrorism Incident Law Enforcement and Investigation Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Pro.A1a 1.1.1 Develop National Infrastructure Protection Plan (NIPP)
Pro.A1a 1.5 Establish a national CIP research and development program
Pro.A1a 1.1.2 Develop Sector-Specific Plans (SSPs)
Pro.A1a 1.1.3 Develop State and/or regional CIP Plans
130 Target Capabilities List
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Pro.A1a 1.4
Develop a national risk assessment methodology and standards for Critical Infrastructure/Key
Resources (CI/KR)
Pro.A1a 1.4.1 Develop risk assessment tools
Pro.A1a 1.3.1 Establish Government Coordinating Councils (GCCs) for each sector
Pro.A1a 1.3.2 Establish Sector Coordinating Councils (SCCs) for each sector
Pro.A2a 1.1.2 Coordinate development of standard guidelines for physical security programs
Pro.A3a 1.3 Develop strategies and guidelines for cyber infrastructure protection
Pro.A2a 1.6 Develop strategies and guidelines for protection of infrastructure personnel
Pro.A1a 4.1 Define a sector-specific universe of infrastructure assets, systems, networks, and functions
Pro.A1a 3.1 Develop sector-specific security goals
Pro.A1a 1.2.1
Develop national metrics to measure progress and to assess effectiveness of the national CI/KR
protection program
Pro.A1a 1.2.2
Develop sector-specific metrics to measure progress and to assess effectiveness of the sector-
specific CI/KR protection programs
Preparedness Measures Metrics
NIPP and SSPs are in place Yes/No
State and/or regional CIP Plans are developed and in place Yes/No
Appropriate risk methodology (i.e. one that takes into account the threats, consequences,
and vulnerabilities) has been developed and approved by the Federal Government for
CI/KR protection
Yes/No
Vulnerability assessment tool has been developed Yes/No
GCCs have been established for each sector Yes/No
SSPs have been reviewed by appropriate GCC Yes/No
SCCs have been established for each sector Yes/No
SSPs have been reviewed by appropriate SCC Yes/No
A mechanism for coordinating CIP efforts has been established for Federal and State
authorities (e.g. State, Local, and Tribal Government Coordinating Council)
Yes/No
National CIP Research and Development Plan has been established Yes/No
CIP information-sharing mechanism has been established Yes/No
Sector security goals have been established for each sector in partnership with security
partners
Yes/No
Sector security goals support the goal of the NIPP Yes/No
Sector security goals yield specific, measurable outcomes that allow security partners to
allocate security resources and to track progress
Yes/No
Target Capabilities List 131
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Performance Tasks and Measures/Metrics
Activity: Coordinate and Manage Critical Infrastructure Protection
Definition: Partner/coordinate with Federal, State, local, and tribal entities, the private sector, and
the international community.
Critical Tasks
Pro.A1a 3.3.1 Operate public-private partnerships for Critical Infrastructure Protection (CIP) activities
Pro.A1a 3.3.2 Operate sector-specific GCCs
Pro.A1a 3.3.3 Operate sector-specific SCCs
Performance Measures Metrics
Time in which GCC concurrence with respect to CIP is signed by all relevant
parties
Within 12 months from official
TCL publication
GCC concurrence includes coordination/cooperation with SCCs Yes/No
Activity: Identify CI/KR
Definition: Develop an inventory of the individual assets, systems, networks, and functions that
make up the Nation’s CI/KR, some of which may be located outside the U.S., and collect
information on them, including dependencies, interdependencies, and reliance on cyber systems.
Critical Tasks
Pro.A1a 4.1.1 Develop selection criteria to identify CI/KR
Pro.A1a 4 Identify CI/KR within the Nation, region, State, or local area
Pro.A1a 2.1.1 Develop and implement risk and vulnerability assessment training
Pro.A1a 2.2.1 Develop a system to “Red Team” CIP measures and technology
Pro.A2a 2.2 Develop and conduct exercise programs to test CI/KR protection plans
Preparedness Measures Metrics
Frequency with which exercises are conducted to test the effectiveness of protective
measures
Every 12 months
Vulnerability assessment training program is developed and implemented Yes/No
Risk assessment training program is developed and implemented Yes/No
System to “Red Team” CIP measures and technology is in place Yes/No
132 Target Capabilities List
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Performance Measures Metrics
Sector-specific agencies have identified assets of potential national-, regional-, or sector-
level importance
Yes/No
Data have been collected on assets, systems, networks, and functions and are relevant to
risk assessment efforts
Yes/No
Data have been collected on assets, systems, networks, and functions and address
dependencies and interdependencies that affect functionality and performance
Yes/No
Data have been verified for accuracy Yes/No
Frequency with which data are updated and provided to DHS Every 12 months
Activity: Assess Risks
Definition: Determine which assets, systems, networks, and functions are critical by calculating
risk and combining potential direct and indirect consequences of an attack (including
dependencies and interdependencies associated with each identified asset), known vulnerabilities
to various potential attack vectors, and general or specific threat information
Critical Tasks
Pro.A1a 5.1
Conduct a “top-screen” consequence analysis to determine which assets, systems, networks, and
functions are high consequence and therefore require risk assessment
Pro.A1a 5.3 Conduct vulnerability assessments on high-consequence assets, systems, networks, and functions
Pro.A1a 5.4
Conduct detailed threat assessments on high-consequence assets, systems, networks, and
functions
Pro.A1a 5.5 Determine risk profiles of high-consequence assets, systems, networks, and functions
Pro.A1a 5.6
Conduct an interdependency analysis to determine the relationship of risks within and across
sectors
Pro.A1a 5.7
Share the assessment of sector-specific infrastructure risk with interdependent entities within
appropriate sectors
Performance Measures Metrics
Procedures for analyzing threats, vulnerabilities, consequences, and risks were
implemented
Yes/No
Consequence or “top-screen” analysis was performed Yes/No
Potential threats to assets, systems, networks, and functions were identified Yes/No
Potential threats to high-consequence assets, systems, networks, and functions were
identified
Yes/No
Percent of high-consequence assets, systems, networks, and functions that have completed
vulnerability assessments
100%
Percent of high-consequence assets, systems, networks, and functions that have completed
a risk assessment
100%
Risk analysis results were disseminated to the proper authorities Yes/No
Target Capabilities List 133
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Activity: Prioritize
Definition: Aggregate and order assessment results to present a comprehensive picture of
national CI/KR risk in order to establish protection priorities and to provide the basis for planning
and the informed allocation of resources
Critical Tasks
Pro.A1a 6.1 Prioritize high-risk CI/KR for consideration of protective measures
Performance Measures
CI/KR and high-consequence assets, systems, networks, and functions were normalized
and prioritized for consideration of protective programs
Yes/No
Activity: Protect
Definition: Select appropriate protective measures or programs and allocate resources to
address targeted priorities
Critical Tasks
Pro.A2a 1.1.4 Develop and implement surge capacity plans to increase CIP capacity during a crisis
Pro.A2a 2.3 Implement surge capacity plans to increase CIP protection during a crisis
Pro.A2a 1.1
Develop protective programs and plans to reduce the general level of risk for the highest risk
CI/KR
Pro.A2a 1.2
Develop protective programs and plans to respond to and recover from specific threat-initiated
actions
Pro.A2a 5 Implement programs to defend and devalue physical CI/KR
Pro.A3a 5
Implement programs to defend and devalue critical cyber assets, systems, networks, and
functions
Pro.A3a 4.1.1
Implement detection measures such as inspection surveillance, employee monitoring, and
security counterintelligence
Performance Measures Metrics
Percent of high-risk assets, systems, networks, and functions for which protective
programs and/or mitigation strategies have been developed
100%
Percent of high-risk assets, systems, networks, and functions for which protective
programs and/or mitigation strategies have been implemented
100%
Percent of high-risk assets, systems, networks, and functions that have active protective
programs to measurably reduce risk
100%
Percent of high-risk assets, systems, networks, and functions for which risk has been
measurably reduced
100%
Percent of high-risk assets, systems, networks, and functions for which plans for surge
capacity during a crisis have been developed
100%
Percent of high-risk assets, systems, networks, and functions for which continuity of
operations plans have been developed
100%
134 Target Capabilities List
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Activity: Measure Effectiveness
Definition: Incorporate metrics and other evaluation procedures at the national and sector levels
to measure progress and to assess effectiveness of the national CI/KR protection program
Critical Tasks
Pro.A1a 7.1 Collect national metrics data
Pro.A1a 7.1.1 Analyze national metrics data
Pro.A1a 7.2 Collect sector-specific metrics data
Pro.A1a 7.2.1 Analyze sector-specific metrics data
Performance Measures Metrics
Frequency with which national metrics data are collected and reported Every 12 months
Frequency with which sector-specific metrics data are collected and reported Every 12 months
Linked Capabilities
Linked Capability Relationship to Capability
Planning Emergency plans developed under this capability will be coordinated with
sector-specific CIP plans.
Food and Agriculture Safety and
Defense
Because Food and Agriculture is one of the 17 critical infrastructure sectors,
CIP provides the initial line of protection for this industry.
Risk Management Risk Management involves the processes used to prioritize CI/KR for
protection.
Intelligence and Information
Sharing and Dissemination
Intelligence/information sharing mechanisms support the coordination among
security partners in CIP
Information Gathering and
Recognition of Indicators and
Warnings
Locally generated threat and other criminal and/or terrorism-related
information that results from this capability is used to establish the threat
picture that forms the basis for risk in CIP
Counter-Terror Investigation and
Law Enforcement
Counter-Terror Investigation and Law Enforcement are one method of
deterring and thus preventing attacks on critical infrastructure.
Emergency Public Safety and
Security Response
Use of law enforcement for emergency public safety and security is one form
of protection for critical infrastructure assets.
Intelligence Analysis and
Production
The actionable intelligence/information products produced by this capability
can indicate the need for specific protective measures in CIP
Explosive Device Response
Operations
Explosive Device Response Operations may involve the prevention of an
explosive device at a critical asset location.
CBRNE Detection CBRNE Detection may deter attacks on critical infrastructure or may result in
the need for specific protective actions.
Target Capabilities List 135
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Linked Capability Relationship to Capability
Restoration of Lifelines Restoration of Lifelines addresses the immediate restoration of critical
infrastructure (e.g., water, power, etc).
Economic and Community
Recovery
Economic and Community Recovery includes recovery and re-building of
critical infrastructure, to include greater protection.
Structural Damage Assessment Structural Damage Assessment addresses the structural inspection of critical
infrastructure to inform and prioritize mitigation resources.
136 Target Capabilities List
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Coordinate and
Manage Critical
Infrastructure
Protection
Operations
End: Progress and
effectiveness evaluated
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Need for inventory of CI/KR
Identify Critical
Infrastructure/Key
Resources
Infrastructure/resources
identified
Assess Risks
Prioritize
Planning
Measure
Effectiveness
Risk calculated
Provide assessment report
Protect
Protection priorities established
Priorities funded and implemented
Recommended protection
measures provided
Capability Activity Process Flow
Relationship
Linked
Capabilities
Critical Infrastructure Protection Capability
Provide comprehensive CI/KR
priorities
Authority to implement protection
measures provided
Evaluation reports provided
Risk
Management
CBRNE
Detection
Explosive Device
Response
Operations
Food and
Agriculture Safety
and Defense
Economic and
Community
Recovery
Restoration of
Lifelines
Structural
Damage
Assessment
Identify CI relative to
capability
Information
Gathering and
Recognition of
Indicators and
Warnings
Input on comprehensive
CI/KR priorities provided
Intelligence
Analysis and
Production
Protective measure needs
identified
Intelligence/
Information
Sharing and
Dissemination
Intelligence information on
CI/KR provided
Explosive device
protection provided
Post-incident assessment
provided
Immediate post-incident
restoration provided
Assists recovery efforts
with monetary and non-
monetary relief
Assist with plan
development
A
s
s
i
s
t
w
i
t
h
p
r
i
o
r
i
t
i
z
a
t
i
o
n
o
f
C
I
/
K
R
Assist with
implementation of
protection measures
A
s
s
i
s
t
s
w
i
t
h
i
m
p
l
e
m
e
n
t
a
t
i
o
n
o
f
p
r
o
t
e
c
t
i
o
n
m
e
a
s
u
r
e
s
Counter-Terror
Investigation and
Law Enforcement
Emergency Public
Safety and
Security Response
Target Capabilities List 137
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Resource Element Description
Resource Elements Components and Description
Critical Infrastructure Protection (CIP)
planning personnel
Public and private sector coordinators
Personnel to complete vulnerability
assessments
Risk analysis personnel
Infrastructure Security Specialists
Infrastructure Intelligence Analysts
National Infrastructure Protection Plan
Per Homeland Security Presidential Directive (HSPD) 7
CIP Research and Development Plan
Per HSPD 7
Sector Specific Plans
Per HSPD 7
Equipment for detection
Equipment for protection
Equipment for mitigation
System to “red team” critical infrastructure
protective measures and technology
Planning Assumptions
Critical Infrastructure Protection (CIP) may be applicable to any of the 15 National Planning
Scenarios as any terrorism-related, accidental, or natural catastrophic event could disrupt or destroy
CI/KR in one or more sectors. However, for purposes of determining National Targets, no scenarios
were specifically considered because much of the CIP activities take place on an ongoing basis
between incidents. Although protective activities are also implemented in response to particular
threats or events, information regarding whether an affected asset is considered “critical” needs to be
provided before any implementation can occur.
Under the CIP process as defined in the NIPP, protection of CI/KR requires an initial determination
of whether the asset/system in question and the risks being posed are “critical.” Therefore, protection
activities are conducted on a case-by-case basis.
Resource needs at the State and local level may be determined through the development of a model
that takes into account the presence and density of CI/KR assets in various geographic areas.
The understanding of criticality as related to interdependent systems continues to evolve. Additional
guidance will be provided as it is developed.
State and local law enforcement is available to support CI/KR protection efforts, as required.
Critical infrastructure information is able to be shared between Federal and State authorities and the
private sector in a protected and secure way.
138 Target Capabilities List
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Target Capability Preparedness Level
Element
Resource Unit
Type of
Element
Number
of Units
Unit Measure
(number per
x)
Lead Capability
Activity
Supported by
Element
CIP planning
personnel
Personnel As needed Per agency Federal (DHS,
Sector Specific
Agencies)/ State
Develop and
Maintain Plans,
Measure
Effectiveness
Public and private
sector coordinators
Personnel As needed Per agency Federal (DHS) Coordinate
Public and private
sector coordinators
Personnel As needed Per agency Federal (Sector-
Specific Agencies)/
State
Coordinate
Personnel for
vulnerability
assessments
Personnel As needed Per agency Federal (DHS,
Sector Specific
Agencies)/ State
Assess Risk
Prioritize
Risk analysis
personnel
Personnel As needed Per agency Federal (DHS,
Sector Specific
Agencies)/ State
Assess Risk
Prioritize
Infrastructure
Security Specialists
Personnel As needed Per agency Federal (DHS,
Sector Specific
Agencies)/ State
Protect
Infrastructure
Intelligence
Analysts
Personnel As needed Per agency Federal (DHS,
Sector Specific
Agencies)/ State
Assess Risk
National
Infrastructure
Protection Plan
Planning 1 Nationally Federal (DHS) All activities
CIP Research and
Development Plan
Planning 1 Nationally Federal (DHS) All activities
Sector-Specific
Plans
Planning 1 Per Sector-
Specific Agency
Federal (Sector
Specific Agencies)
All activities
Equipment for
detection
Equipment As needed Per asset Federal/State/
Local
Protect
Equipment for
protection
Equipment As needed Per asset Federal/State/
Local
Protect
Equipment for
mitigation
Equipment As needed Per asset Federal/State/
Local
Protect
System to Red
Team critical
infrastructure
protective
measures and
Exercises Federal All Activities
Target Capabilities List 139
PROTECT MISSION: CRITICAL INFRASTRUCTURE PROTECTION
Element
Resource Unit
Type of
Element
Number
of Units
Unit Measure
(number per
x)
Lead Capability
Activity
Supported by
Element
technology
References
1. National Infrastructure Protection Plan. Department of Homeland Security. June 2006.
2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
3. Homeland Security Presidential Directive /HSPD–7: Critical Infrastructure Identification, Prioritization, and
Protection. The White House, Office of the Press Secretary. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-5.html.
4. National Response Plan. U.S. Department of Homeland Security. December 2004.
5. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
6. Department of Homeland Security Sector-Specific Intelligence Sharing Analysis Center (ISAC) Information.
Executive Order 13356, State and Local Tiger Team. U.S. Department of Homeland Security. 2004.
http://a257.g.akamaitech.net/7/257/2422/06jun20041800/edocket.access.gpo.gov/2004/pdf/04-20052.pdf.
7. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S.
Department of Homeland Security, Office for Domestic Preparedness. June 2003.
http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf.
8. Applying Security Practices to Justice Information Sharing. U.S. Department of Justice, Global Justice
Information Sharing Initiative, Security Working Group. March 2004.
http://it.ojp.gov/documents/200404_ApplyingSecurityPractices_v_2.0.pdf.
9. The National Criminal Intelligence Sharing Plan. U.S. Department of Justice, Global Justice Information
Sharing Initiative. Revised June 2005.
http://it.ojp.gov/documents/National_Criminal_Intelligence_Sharing_Plan.pdf.
10. Homeland Security Information Network. U.S. Department of Homeland Security.
http://www.dhs.gov/dhspublic/display?theme=43&content=3747&print=true.
11. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO–03–
1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d031165t.pdf.
12. Information/Intelligence Sharing System Survey. U.S. Department of Justice, Global Justice Information
Sharing Initiative, Global Intelligence Working Group. 2003.
http://it.ojp.gov/documents/intell_sharing_system_survey.pdf.
13. National Strategy for Homeland Security. Office of Homeland Security, The White House. July 2002.
http://www.dhs.gov/interweb/assetlibrary/nat_strat_hls.pdf.
14. Risk Management: An Essential Guide to Protecting Critical Assets. National Infrastructure Protection Center.
November 2002.
15. The 9/11 Commission Report. National Commission on Terrorist Attacks upon the United States. July 2004.
http://www.9-11commission.gov/report/911Report.pdf.
16. National Strategy for Transportation Security. U.S. Department of Homeland Security.
17. National Fire Protection Association Codes and Standards.
http://www.nfpa.org/aboutthecodes/list_of_codes_and_standards.asp
140 Target Capabilities List
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Target Capabilities List 141
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
FOOD AND AGRICULTURE SAFETY AND
DEFENSE
Capability Definition
Food and Agriculture Safety and Defense is the capability to prevent, protect against, respond to, and
recover from chemical, biological and radiological contaminants, and other hazards that affect the safety
of food and agricultural products. This includes the timely eradication of outbreaks of crop
diseases/pests, assessments of the integrity of the food producing industry, the removal and disposal of
potentially compromised materials from the U.S. food supply, and decontamination of affected food
manufacturing facilities or retail points of purchase or service. This also includes appropriate laboratory
surveillance to detect human foodborne illness or food product contamination. It is accomplished
concurrent to protecting public health and maintaining domestic and international confidence in the U.S.
commercial food supply. Additionally, the public is provided with accurate and timely notification and
instructions related to an event and appropriate steps to follow with regard to disposal of affected food or
agricultural products and appropriate decontamination procedures.
Outcome
Threats to food and agriculture safety are prevented, mitigated, and eradicated; trade in agricultural
products is restored; affected products are disposed of; affected facilities are decontaminated; public and
plant health are protected, notification of the event and instructions of appropriate actions are effectively
communicated with all stakeholders; and confidence in the U.S. food supply is maintained.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESF)s/Annexes:
ESF #8: Public Health and Medical Services
ESF #11: Agriculture and Natural Resources
Biological Incident Annex
Interim Draft Food and Agriculture Incident Annex
Terrorism Incident Law Enforcement and Investigation Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Pro.A1a 5.2 Conduct vulnerability assessments of sector-specific critical infrastructure and key resources
Pro.B1b 1.1.2
Develop methods for emergency assessment of firms that manufacture, prepare, and hold U.S.
Department of Agriculture (USDA) regulated commodities
Pro.B1b 1.1.3
Develop methods for emergency assessment of firms that manufacture, prepare, and hold U.S.
Food and Drug Administration (FDA)-regulated commodities
Pro.B1b 1.2.3
Create emergency response plan for response to all food operations for retail, food service, mass
142 Target Capabilities List
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
feeding, and food processing facilities
Pro.B1b 1.2.2
Develop emergency guidelines and operation criteria for retail food, wholesale, and processing
during disasters
Pro.B1b 1.3 Develop communications plan for food safety for regulated facilities and the general public
Pro.B1b 1.4.1
Develop guidelines or procedures for properly conducting a coordinated outbreak investigation
of food and agricultural events
Pro.B1b 1.4.2
Develop plans or guidelines for properly disposing of contaminated food products or diseased
crops
Pro.B1b 1.5
Develop, adapt, or implement plans to support incident command (IC), unified command (UC),
or other agencies as needed for food and agricultural safety response
Pro.B1b 1.5.1 Develop procedures for providing surge staff to support IC and EOCs during a food event
Pro.B1b 1.4
Develop plans, procedures, and programs for responding to a food safety or agricultural disease
event
Pro.B1b 1.3.1 Prepare food and agriculture emergency public information plans
Pro.B1b 1.3.2 Develop a food and agriculture crisis communications plan
Res.B1b 1 Develop plans, policies, procedures, and systems for responder safety and health
Pro.B1b 1.3.3
Develop plans, procedures, and policies for coordinating, managing, and disseminating public
information regarding food and agricultural safety
Res.B1f 1.3.3 Plan and provide for external media support and operations
Res.B1f 1.1.5 Develop and maintain emergency declaration protocols and template
Res.B1f 1.2.4 Develop a communications network with State homeland security departments
Preparedness Measures Metrics
Procedures are in place for:
Food and agriculture surveillance activities (e.g., active searches, interviews,
medical record review, compilation of data)Sample collection
Maintaining chain of custody of laboratory samples
After hours receipt of samples
Triaging samples dependent on priority
Traceback/trace forward investigations
Rapidly informing the public once the contaminated food has been identified
Coordinating public communications between government, academia, and the
private sector
Controlling contaminated products (i.e., seizure, product quarantine, recall,
embargo, condemnation, administrative detention)
Appropriate disposal of affected food and/or agricultural products
Appropriate decontamination of affected food facilities
Quick recall of affected food or agricultural products from the marketplace
Verifying effectiveness and timeliness of food and agricultural product recalls
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Yes/No
Plans and procedures for responding to a food /agricultural event identify the proper food
and agricultural authorities
Yes/No
Communication plans and procedures for responding to a food/agricultural event provide
for dissemination of accurate, timely, and accessible information to the public, media, and
support agencies
Yes/No
Target Capabilities List 143
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Emergency response plans include all food operations (e.g., retail, food service, mass
feeding, food processing facilities)
Yes/No
Memoranda of agreements (MOAs) to facilitate response are in place Yes/No
Field staff or other designated first responders are appropriately qualified Yes/No
Redundant emergency communication capabilities are in place Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Pro.B1b 2.1.1
Develop and conduct emergency food safety response training to field staff and managers of
State/local food programs having responsibility for food safety response (training should include
appropriate job safety training)
Pro.B1b 2.1.2 Provide food safety training to responders and volunteers
Pro.B1b. 2.2 Develop and implement exercise programs for food and agricultural safety and defense
Preparedness Measures Metric
Field staff or other designated first responders have:
Hazard awareness training
NIMS Training
Yes/No
Yes/No
HSEEP-compliant exercises to evaluate food and agricultural safety and defense are
routinely conducted
Yes/No
Performance Tasks and Measures/Metrics
Activity: Direct Food and Agriculture Safety and Defense Operations
Definition: In response to a notification of an existing threat of food contamination or crop
disease, provide the management and coordination of the epidemiological and food establishment
investigations as well as appropriate food and crop control measures to stop further cases of
illness or disease.
Critical Tasks
Pro.B1b 3.3.2 Dispatch food and agriculture personnel to location of suspected contamination
Res.B1a 4 Activate the on-site incident command system (ICS)
Pro.B1b 3.4.4 Request food and agriculture resources needed for response to field operations
Pro.B1b 3.1.2
Coordinate with Federal, State, and local agencies to ensure the safety and security of meat,
poultry, and egg products in retail groceries and food service establishments and institutions
Pro.B1b 3.1.3
Coordinate with Federal, State, and local agencies to ensure the safety and security of products in
retail and food service establishments and institutions
Pro.B1b 3.4.1
Coordinate food and agriculture emergency management plans at the local, State, and national
levels
144 Target Capabilities List
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Res.B1f 5.1.1
Coordinate the provision of timely and accurate emergency public information through the Joint
Information System (JIS)
Res.B1c 8.1.1
Provide direction, information, and support as appropriate to IC or unified command UC and
joint field offices
Res.B1c 4 Activate the Emergency Operations Center (EOC)
Res.B1c 3 Direct and coordinate EOC operations
Pro.B1b 3.4.5 Establish and maintain food and agricultural safety response communication systems
Pro.B1b 3.4 Coordinate food and agricultural safety response operations and support
Pro.B1b 3.2 Manage surveillance activities for agriculture and natural resources
Pro.B1b 3.3 Coordinate food and agriculture investigation activities
Pro.B1b 3.3.4 Coordinate food and agriculture evidence preservation procedures
Pro.B1b 3.5.1 Coordinate food recovery programs
Pro.B1b 3.5.2 Coordinate food facility decontamination
Pro.B1b 3.5.2.1 Coordinate cleaning and decontamination of affected food facilities
Pro.B1b 3.5.3 Coordinate the disposal of contaminated food
Pro.B1b 3.5.4 Coordinate agricultural recovery programs
Pro.B1b 3.1.6
Ensure the safety, efficacy, and security of regulated foods, the blood supply, drugs, medical
devices, and other U.S. Department of Health and Human Services (HHS)-regulated products
Pro.B1b 3.1
Ensure the Nation’s commercial supply of food is safe and secure following a catastrophic
incident
Pro.B1b 3.3.1
Implement guidelines or procedures for properly conducting a coordinated outbreak investigation
of food and agricultural events
Pro.B1b 3.3.4.1
Ensure close coordination and cooperation among regional, State, Federal, and international
agencies and with the private sector and nongovernmental associations to facilitate food and
agriculture response efforts
Pro.B1b 3.2.1
Direct agricultural processes for surveillance and testing and isolation or quarantine for threats to
agricultural assets and the food supply
Pro.B1b 3.3.3
Provide food and agriculture laboratory and diagnostic support, subject matter expertise, and
technical assistance
Pro.B1b 3.4.3 Ensure the adequacy of food and agriculture resources
Pro.B1b 3.4.3.2
Request subject matter expertise from supporting agencies to assist in the response and recovery
effort
Pro.B1b 3.4.3.3
Establish regional and State plans and protocols for food and agricultural safety response and
requests for assistance
Pro.B1b 3.4.2 Activate food and agriculture safety and defense personnel
Performance Measures Metric
Appropriate numbers of trained personnel have been identified to respond to
the State or local EOC and possibly the Joint Operations Center
Yes/No
Boilerplate consumer messages have been developed Yes/No
Target Capabilities List 145
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Assets for decontamination procedures have been identified Yes/No
Decontamination is conducted in accordance with local protocol for all
contaminated personnel, equipment, and animals
Yes/No
Return of food products is monitored Yes/No
Protective gear is available for field staff or other designated first responders Yes/No
Activity: Conduct Surveillance
Definition: In response to a notification that food products are contaminated or that crops are
diseased, establish and implement a plan to expand on-going surveillance activities to focus on
additional food products, crops, and facilities that might be affected.
Critical Tasks
Res.B2d 5.1
Conduct epidemiological investigations as surveillance reports warrants, and coordinate Federal,
State, and local veterinary assistance assets/services
Pro.B1b 4.2 Search actively for food and agriculture cases
Pro.B1b 4.2.2.2 Initiate food and agriculture database and data management
Pro.B1a 4.3.1 Develop basic case descriptions by conducting interviews and reviewing medical records
Pro.B1b 4.3 Conduct food and agriculture laboratory detection and confirmation
Pro.B1b 4.3.3 Disseminate food and agriculture laboratory testing results to appropriate stakeholders/partners
Pro.B1b 4.3.2 Maintain chain-of-custody of all food and agriculture evidence
Pro.B1b 4.2.2.1 Integrate surveillance findings related to food and agriculture
Pro.B1b 4.2.2 Compile information about threats to food
Pro.B1b 4.3.1 Use the results from a food sample analysis to determine the breadth of contamination
Performance Measures Metric
Time in which a surveillance plan is implemented upon determination of a specific
food product associated with illness or the presence of a diseased crop
Within 24 hours from
confirmed food product
association or crop disease
Time in which individual or joint USDA/FDA/DOJ investigation into source of
contamination of identified food product or diseased crop is initiated
Within 24 hours from
confirmed food product
association or crop disease
Frequency and quality of inspection for surveillance of food products at
manufacturing, distribution, retail, or food service facilities is conducted in
accordance with Federal and State protocol
Yes/No
Federal/State authorities had access to laboratories with validated methods for
detection/identification of pathogens, chemical, biological, and radiological
contaminants
Yes/No
146 Target Capabilities List
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Activity: Trace Suspect Products
Definition: Conduct investigations to determine the source(s) of contamination and identify other
products, crops, and facilities that could be contaminated.
Critical Tasks
Pro.B1b 5.1.1 Collect and preserve contaminated food and agriculture evidence
Pro.B1b 5.1.2 Collect and preserve non-contaminated food and agriculture evidence
Pro.B1b 5.2 Inspect the safety and security of the food infrastructure in the affected area
Pro.B1b 5.3 Inspect the safety and security of the agricultural infrastructure in the affected area
Pro.B1b 5.2.3
Inspect and monitor meat, poultry, and egg establishments that can continue to operate in the
affected area
Pro.B1b 5.2.2 Inspect food facilities that can continue to operate in the affected area
Pro.B1b 5.2.4
Use laboratory testing and field investigations to identify products that are safe and fit for human
consumption
Pro.B1b 5.1.4
Conduct product tracing to determine the source, destination, and disposition of adulterated or
contaminated products
Pro.B1b 5.2.1 Conduct inspection and monitoring of food products and establishments in affected areas
Pro.B1b 5.3.1 Conduct inspection and monitoring of agriculture products and establishments in affected areas
Pro.B1b 5.1.3
Generate possible associations of transmission, exposure, and source of food and agriculture
events
Pro.B1b 5.1.5 Identify possible sources of food and agricultural safety event
Pro.B1b 5.4 Identify populations and locations at risk from food and/or agricultural safety event
Performance Measures Metric
Time in which trace back investigation is initiated following notification of contaminated
food product involvement
Within 1 hour from
notification
Time in which trace forward investigation was initiated following notification of
contaminated food product involvement
Within 1 hour from
notification
Time in which epidemiological investigation was initiated following report to health
department
Within 3 hours from
report
Time in which epidemiological investigation was completed following report to health
department
Within 36 hours from
report
Time in which analysis of samples was conducted after samples reach the lab Within 1 hour from
receipt at lab
Laboratory samples were analyzed within time period appropriate for type of contaminant
and whether screening and/or confirmatory analysis was conducted
Yes/No
Percent of potentially affected food facilities identified 100%
Time in which FBI was notified for an event that appeared to be due to intentional
contamination
Within 6 to 12 hours
after determination
Target Capabilities List 147
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Activity: Implement Control Measures for Contaminated Food Products or Diseased
Crops
Definition: Implement product recalls/embargoes, alert the public about the situation, and take
control of contaminated facilities and products or diseased crops to ensure contaminated
products do not enter the food supply and diseased crops are not further distributed.
Critical Tasks
Pro.B1b 6.3 Secure the contamination source and affected areas during a food and agriculture event
Pro.B1b 6.4.7
Provide appropriate information to the public regarding disposal of potentially contaminated
food
Pro.B1b 6.2.1 Determine the need for a food embargo or detention
Pro.B1b 6.2.2 Determine the need for food condemnation, retention, or seizure
Pro.B1b 6.2.3 Determine the need to stop the movement of food
Pro.B1b 6.4.2
Control all identified food safety and inspection service-inspected products at inspected
establishments that are suspected of being contaminated through product recall, administrative
detention, and plant closures
Pro.B1b 6.4.3
Control any foodstuffs or other HHS-regulated products suspected of being contaminated
following an establishment’s inspections through product recall, administrative detention, and
plant closures
Pro.B1b 6.4.4
Control all identified products at inspected facilities suspected of being contaminated through
product recall and administrative detention
Pro.B1b 6.4.5 Stop all interstate movement of regulated plant articles and means of conveyance as needed
Pro.B1b 6.4.6 Provide for embargoed food storage
Performance Measures Metric
Food recall was issued Yes/No
Recalls were announced to the public Yes/No
Percent of potentially affected locations secured to prevent spread of contamination 100%
Activity: Conduct Product Disposal and Surface and Food Facility Decontamination
Definition: Dispose of contaminated food products or diseased crops in an environmentally safe
manner that prevents its use as a food or food product as well as utilize appropriate procedures
for surface and facility decontamination.
Critical Tasks
Pro.B1b 7.1.1 Identify assets for food and agriculture decontamination activities
Pro.B1b 7.1 Implement food and agriculture hazardous material disposal plan
Pro.B1b 7.1.2 Conduct surface and facility decontamination
Pro.B1b 7.1.3 Perform food and agriculture clean-up operations
Pro.B1b 7.1.4 Dispose of contaminated food
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PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Performance Measures Metric
Hazardous Material Disposal Plan was implemented
Yes/No
Linked Capabilities
Linked Capability Relationship
Laboratory Testing Food and Agriculture Safety and Defense provides samples to Laboratory Testing for
testing
WMD and Hazardous
Materials Response and
Decontamination
Food and Agriculture Safety and Defense receives technical decontamination from
WMD and Hazardous Materials Response and Decontamination
Emergency Public
Information and Warning
Food and Agriculture Safety and Defense develops control measures for Emergency
Public Information and Warning, which will be released to the public
Epidemiological
Surveillance and
Investigation
Epidemiological Surveillance and Investigation provides information to Food and
Agriculture Safety and Defense on the food product associated with illness
Animal Disease
Emergency Support
Animal Disease Emergency Support will provide information to Food and Agriculture
Safety and Defense if contaminated animals are associated with human illness
Economic and
Community Recovery
Food and Agriculture Safety and Defense conducts damage assessments for Economic
and Community Recovery
Emergency Operations
Center Management
Food and Agriculture Safety and Defense requests resources from Emergency
Operations Center Management, who then in turn provides the requested resources.
Emergency Operations Center Management and Food and Agriculture Safety and
Defense both provide situational reports to each other
Target Capabilities List 149
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Direct Food and
Agriculture
Safety and
Defense
Operations
Conduct
Surveillance
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
WMD/Hazardous
Materials
Response and
Decontamination
Emergency
Public
Information and
Warning
Epidemiological
Surveillance and
Investigation
Economic and
Community
Recovery
Provide surveillance priorities
Report detection of possible food
and/or agricultural incident
Trace Suspect
Products
Implement Control
Measures for
Contaminated
Food Products or
Diseased Crops
Conduct Product
Disposal and
Surface and Food
Facility
Decontamination
Report identification of infected
and/or contaminated products
Provide control measure decisions
Provide decontamination
All infected and/or
contaminated product disposed
All infected and/or contaminated
product contained
Emergency
Operations
Center
Management
Provide samples
Testing results provided
Decontamination provided
Notify public of control
measures
Conduct damage
assessments
Provide sitreps
Contamination found
Indication of
food and/or
agricultural
event?
Determine source and extent
of infection/contamination
Yes
No
No contamination
detected; continue
routine surveillance
Provide results of
traceback/trace forward
Request resources
Resources provided
End: Return to pre-event
operational level
Capability Activity Process Flow
Food and Agriculture Safety and
Defense Capability
Linked
Capabilities
Relationship
Provide information on
food products analysis
Laboratory
Testing
Animal Disease
Emergency
Support
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Resource Element Description
Resource Elements Components and Description
Incident Command System
A fully expanded incident command system (ICS) includes subject matter
experts (SMEs) and policy staff. Subject matter experts include
microbiologists, toxicologists, food technologists, veterinarians,
epidemiologists, etc. For large incidents, assume 4 – 6 SMEs and 4 - 6 policy
staff per 24 hour period above normal staffing levels.
FDA Emergency Operations
Center
This resource manages the FDA Emergency Operations Center facility 24
hours per day. In addition to normal staffing levels, it requires 24 – 30 support
staff & SMEs (or 8 – 10 per 8 hour shift).
USDA Emergency Operations
Center
This resource manages the USDA Emergency Operations Center facility 24
hours per day. In addition to normal staffing levels, it requires 21 additional
staff (including SMEs) or 7 per 8-hour shift.
USDA/FSIS Emergency
Management Committee (EMC)
The EMC manages large-scale food emergencies and non-routine incidents in
an established Situation Room. It is composed of the most senior managers
from all program areas. Operations of EMC managed by the Biosurveillance
and Emergency Response Staff (9 staff members)
State Emergency Operations
Centers
The State EOC manages the response within each State. The normal staffing
level is 60 staff; in addition, it would require 18 to 24 SMEs and policy staff
per 24 hour period (or 6 – 8 per 8 hour shift).
Local Emergency Operations
Center
The Local EOC manages the response within each locality. Typically includes
5 to 20 staff, but this is entirely dependent on the size of the locality.
Human Disease Surveillance
Team
Team of experts to track all reportable disease and specified syndromes within
a defined area. Each team includes 1 supervisor (MD, PhD, or Doctor of
Veterinary Medicine (DVM)), 2 epidemiologists, 1 IT staff per, and 1
statistician per 8 hour shift.
Food Investigation Team
Field teams of 4 people to collect product samples and food samples, collect
traceback and trace forward information, conduct investigations, and
coordinate responses at food facilities.
Food Facility Decontamination
Team
Field teams of 4 people to decontaminate affected food facilities.
Food Facility Decontamination
Team Supervisors
Supervisors to manage Food Facility Decontamination Teams. One supervisor
can manage 10 team staff.
Food Facility Decontamination
Team SMEs
Subject Matter Experts to assist Food Facility Decontamination Teams. One
SME can assist at every 20 facilities.
Disposal Team
Field teams of 4 people to dispose of affected food products.
Semi-tractor trailers
Equipment used for disposal of affected food products.
Disposal Team Supervisors Supervisors to manage food facility Disposal Teams. One supervisor can
manage 10 team staff.
Disposal Team SMEs Subject Matter Experts to assist food facility Disposal. One SME can assist at
every 20 facilities.
Target Capabilities List 151
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Resource Elements Components and Description
Sample Analysis Laboratory
Analysts
Analysts in a state laboratory capable of analyzing samples. Assume
laboratory participates in Food Emergency Response Network
Sample Analysis Laboratory
Supervisors
One supervisor for every 10 laboratory analysts.
Confirmatory Testing
Laboratory Analysts
Analysts in a state laboratory capable of analyzing confirmatory samples
Confirmatory Testing
Laboratory Supervisors
One supervisor for every 10 laboratory analysts
Federal Risk Communication
Staff
Risk communication personnel from Federal agencies involved in response.
State Risk Communication Staff
Risk communication personnel from state agencies involved in response.
Federal Embargo/Recall Team
Team of recall staff and compliance officers from Federal agencies
participating in response at one state. Personnel: 5 Federal recall staff and 6 –
10 compliance officers per team.
State Embargo/Recall Team
Team of recall staff and compliance officers from state agencies. Personnel: 5
recall staff and 10 compliance officers per team.
Federal Public information staff
Public information personnel from Federal agencies involved in response.
State Public information staff
Public information personnel from state agencies involved in response.
Law enforcement – secure scene
Coordinated Federal/State/local response
Law enforcement – investigate
event
Coordinated Federal/State/local response
IT support personnel
Personnel to provide technical support for IT equipment provided to persons
deployed
IT support equipment cache
One Blackberry, one cell phone, one laptop, and one portable printer for each
person deployed
Additional transportation
Vehicles to transport personnel
Planning Assumptions
Scenario-Specific
Although applicable to several of the 15 National Planning Scenarios except for blister agents and
nerve agents, the capability planning factors were developed from an in-depth analysis of the Food
Contamination scenario. Other scenarios were reviewed to identify required adjustments or additions
to the planning factors and national targets.
The capability applies to a wide range of incidents and emergencies including accidental or deliberate
disease outbreaks, natural disasters, nuclear and conventional events with potential for contamination
of the food supply.
The identification of an intentional contamination incident involving a food product in the U.S. would
have national implications. Because of the movement of food products around the US, it is highly
probable that multiple food facilities in multiple States would be contaminated. Even States that
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PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
eventually are found to have no contaminated product will initially require a stepped up effort to
ensure that no contaminated product is in their State.
If terrorists were to introduce a chemical or biological agent into a food product at multiple sites
simultaneously, the requirements for resources would increase proportionately and exist in many
States simultaneously. The requirements for tactical (incident command) resources will increase
proportionately with the amount of product/products contaminated.
It is likely that States would share resources, yet States would have to balance the sharing of
resources with their need to protect public health within their State. The amount of tactical resource
requirements would vary depending on the concentration of food facilities.
In high concentration areas, the spread may be rapid and many food facilities that purchased
contaminated food may be affected. In areas with low concentration of food facilities/people,
logistical obstacles such as driving time or distance between involved locations may present
additional challenges.
The multiplication factors used to gear up from a single point introduction incident to a multiple
(national) site introduction assumes resource requirements to increase proportionately with the
number of introductions. In estimating national resource requirements, it was assumed the scenario
would affect 25 States directly, but all 50 States would have increased workload. The time to resolve
the scenario would vary depending on number of site introductions and multiple different food items
contaminated.
This scenario is very limited in scope and only lists a food commodity regulated by the U.S.
Department of Agriculture (ground beef). The Food and Drug Administration regulates 80 percent of
the nation’s food supply – everything except meat, poultry, and egg products which are regulated by
USDA. Other scenarios could have potentially more far reaching effects. This is based on
vulnerability assessments conducted by FDA and USDA.
Assume all response personnel in key positions are able to respond to their respective response
positions after the contaminant has been introduced and they respond as expected.
Assume that sector partners are connected to an information sharing and analysis or fusion system
concept where preventative and protective measure information is proactively being shared.
Lack of infrastructure – electricity, phones, transportation, etc., will affect the ability to effectively
communicate and will significantly affect the ability to plan appropriately or to respond to an
incident. For example, if the roads are non-passable due to a natural disaster, this will affect the
ability to get to the affected area and ensure the safety and security of the food supply.
Assume that Multi-Agency Coordination is adequately being addressed at the State, Federal and local
levels and the agencies are coordinating as expected.
The following information is needed to effectively detect/respond to/recover from to an event:
Quantity of product affected.
Distribution of product.
Product type or types contaminated.
Laboratory capability.
Ability to determine the cause of illness.
Ability to determine the food item associated with illness or to rule out certain food items.
Ability to trace back product.
Ability to trace forward product.
Ability to effectively recall all affected product.
Appropriate disposal of recalled product.
Appropriate decontamination of food facility or other locations where food was available for
purchase.
Target Capabilities List 153
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Risk communication to consumers about appropriate food disposal instructions.
Communication with international partners.
Recovery Timeline could potentially be months due to the breadth of the event.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Food Contamination)
Resource
Organization
Estimated
Capacity
Scenario
Requirement Values
Quantity of Resources
Needed
Incident Command
Center
One fully expanded IC
center can respond to an
incident in one state, if
staffed with additional
personnel (4 – 6 SMEs
and 4 - 6 policy staff)
per 24 hour period.
Assume 25-state incident
requiring SME and policy
staff above normal staffing
levels.
Personnel above normal
staffing
4-6 SME* per 24 hours
4-6 policy staff per 24 hours
One IC center and one back-
up per state affected.
FDA Emergency
Operations Center
Capable of responding
24 hours per day to a
large national incident
for one month,
assuming 8 – 10 staff
per 8 shift on top of
normal staffing
Assume 25-state incident.
In addition to normal
staffing, the EOC would
need 8-10 people/8 hour
shift
One national FDA EOC with
24 - 30 staff (per 24 hours) in
additional to normal staffing.
USDA Emergency
Operations Center
Capable of responding
to a large national
incident for one month,
assuming 7staff per 8
shift on top of normal
staffing
Assume 25-state incident.
In addition to normal
staffing, the EOC would
need 7 SMEs/8 hour shift
One national USDA EOC
with 21staff (per 24 hours) in
additional to normal staffing
USDA/FSIS Emergency
Management Committee
(EMC)
Capable of responding
to large national
incident, 24 hours per
day.
Assume 25-state incident.
Composed of the most
senior representatives of all
program areas.
1 EMC
State Emergency
Operations Centers
Capable of managing
the response within
each State, assuming
surge staffing numbers.
60 Staff is the normal
operating number
In addition to normal
staffing, 6-8 SMEs and
policy staff would be
needed/ 8 hour shift
Assume 25-state incident
requiring SME and policy
staff above normal staffing
levels.
Personnel above normal
staffing
6-8 SMEs per 8 hour shift
One EOC and one back-up
per state affected.
Local Emergency Capable of responding
to a local incident,
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Resource
Organization
Estimated
Capacity
Scenario
Requirement Values
Quantity of Resources
Needed
Operations Centers typically with 5 - 20
staff.
Human Disease
Surveillance Team
Team capable of
responding to an
incident within one
state for one month
Consists of 1 supervisor
(MD, PhD, or Doctor of
Veterinary Medicine
(DVM)) per 8 hour
shift,
2 epidemiologists per 8
hour shift,
1 IT staff per 8 hour
shift per team,
1 statistician per 8 hour
shift per team
Assume 25-state incident
requiring 100% staff needs
for 30 days at each location.
One team per state
Food Investigation
Team
Each team is capable of
providing coordinated
Federal/State/local
response to food
facilities, conduct
investigations, and
collect samples at 40
food facilities within a
State
Each team consists of 4
people per food facility
for 2 days. Teams may
be split in order to
cover a larger number
of facilities
Initially all 50 states will be
on heightened alert and will
be investigating food
facilities in each State
Assume 1000 food facilities
per State are potentially
contaminated
1000 facilities =
= 25 teams per state (4
people per team)
= 100 people per state
= 5000 staff nationally
Food Facility
Decontamination Team
One field team of 4
people capable of
providing coordinated
response at 10 affected
food facilities
Assume that
decontamination takes 2
days per facility
Assume 25-state incident
Assume 100 food facilities
per State are contaminated
10 teams per state (4 people
per team)
For 25 States = 1000 staff
nationally
Food Facility
Decontamination Team
Supervisors
1 supervisor can
manage every per 10
team staff employees.
Assume 25-state incident
Assume 100 food facilities
per State are contaminated
10 teams per state = 40 staff
per state = 4 supervisors per
state
For 25 States = 100
supervisors nationally
Food Facility
1 SME can assist at
Assume 25-state incident 5 SMEs per state
Target Capabilities List 155
PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Resource
Organization
Estimated
Capacity
Scenario
Requirement Values
Quantity of Resources
Needed
Decontamination Team
SMEs
every 20 facilities
Assume 100 food facilities
per State are contaminated
For 25 States = 125 SMES
nationally
Disposal Team
One field team of 4
staff capable of
response to dispose of
affected food products
at one site
Assume 50 disposal sites
per State
50 Teams per state (200
staff)
For 25 States = 1250 teams
(5000 staff) nationally
Semi-tractor trailers
5 semi-tractor trailers
are needed per affected
facility
Assume 100 facilities per
State have product that
needs to be properly
disposed
100 facilities per state = 500
semi-tractor trailers
For 25 States = 12,500 semi-
tractor trailers nationally
Disposal Team
Supervisors
1 supervisor per 10
employees on disposal
team
Assume 50 disposal sites
per State
50 sites = 50 teams per state
= 200 staff = 20 supervisors
per state
For 25 States = 500
supervisors nationally
Disposal Team SMEs
1 SME for every 10
disposal sites
Assume 50 disposal sites
per State
5 SMEs per state
For 25 States = 125 SMEs
nationally
Sample Analysis
Laboratory Analysts
20 analysts are capable
of analyzing 200
samples/lab/week in
one state
20 lab analysts/State lab
Assume 50 states are
involved
Assume at least one Food
Emergency Response
Network lab per State
Nationally = 1000 laboratory
analysts
Sample Analysis
Laboratory Supervisors
Assume 1 supervisor
per 10 employees
Assume 50 states are
involved
Nationally = 100 supervisors
Confirmatory Testing
Laboratory Analysts
5 Analysts capable of
analyzing 50
confirmatory
samples/lab/week in
one state
Assume 50 states are
involved
Nationally = 250 laboratory
analysts
Confirmatory Testing
Laboratory Supervisors
Assume 1 supervisor
per 10 employees
Assume 50 states are
involved
Nationally = 25 laboratory
supervisors
Federal Risk
Communication Staff
Capable of coordinating
the response within a
given area
Need 5 personnel per
Federal agency
involved
Assume 5 Federal agencies
are involved
Nationally = 25 staff at
Federal level
State Risk
Communication Staff
Capable of coordinating
the response within a
Assume all 50 states are
involved
Nationally = 250-500 state
staff
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PROTECT MISSION: FOOD AND AGRICULTURE SAFETY AND DEFENSE
Resource
Organization
Estimated
Capacity
Scenario
Requirement Values
Quantity of Resources
Needed
given area
Assume 5-10 personnel
per State involved
Federal Embargo/Recall
Team
One team can
coordinate the Federal
response in each state
Each team comprises 5
recall staff 6-10 Federal
compliance officers
(FDA and USDA)
Assume response in 25
states
One Federal Embargo/Recall
Team per state
25 States = 125 recall staff
and 150-250 Federal
compliance officers
nationally
State Embargo/Recall
Team
One team can
coordinate the response
in each state
Each team comprises
10 compliance officers
and 5 recall staff
Assume response in 25
states
One State Embargo/Recall
Team per state
25 States = 250 state
compliance officers and 125
state recall staff nationally
Federal public
information staff
5 staff per Federal
agency
Assume 5 Federal agencies
are involved
25 staff at Federal level
nationally
State public information
staff
4 staff /8 hour shift at
State level
Assume 50 states
Per State = 12 staff/24 hours
50 states = 600 staff
nationally
Law enforcement staff –
secure scene
2 staff capable of
response at each
contaminated facility
Assume 25 states
Assume 100 facilities are
contaminated per State
2 staff x 100 facilities = 200
per state
x 25 States = 5000 personnel
nationally
Law enforcement staff –
investigate event
2 staff capable of
response at each
contaminated facility
Assume 25 states
Assume 100 facilities are
contaminated per State
2 staff x 100 facilities = 200
per state
x 25 States = 5000 personnel
nationally
IT support staff
One IT support person
per 20 staff deployed
Assume 12000 personnel
deployed in 25 states
Nationally =600 IT support
staff
IT support equipment
Cache of one
Blackberry, one cell
phone, one laptop, and
one portable printer for
each person deployed
Assume 12000 people
deployed in 25 states
Nationally = 12,000 IT
support equipment caches:
12,000 blackberries, 12,000
cell phones, 12,000 laptops,
12,000 portable printers
Additional
transportation
One vehicle per two
people deployed
Assume 120 people
deployed per state
Assume 3000 people
deployed in 25 States
240 vehicles per state
6,000 vehicles nationally
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Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Incident Command
Center
Resource
Organization
2 Per State (central
and backup).
State Direct Food and
Agriculture Safety and
Defense Operations
Implement Control
Measures for
Contaminated Products
Conduct Product
Disposal and Food
Facility
Decontamination
FDA Emergency
Operations Center
Federal
Resource
Organization
1 Nationally Federal
(HHS/FDA)
Direct Food and
Agriculture Safety and
Defense Operations
Implement Control
Measures for
Contaminated Products
USDA Emergency
Operations Center
Federal
Resource
Organization
1 Nationally Federal
(USDA)
Direct Food and
Agriculture Safety and
Defense Operations
Trace Suspect Products
Implement Control
Measures for
Contaminated Products
Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
USDA/FSIS
Emergency
Management
Committee (EMC)
Federal
Resource
Organization
1 Nationally Federal
(USDA/
FSIS)
Direct Food and
Agriculture Safety and
Defense Operations
Trace Suspect Products
Implement Control
Measures for
Contaminated Products
State Emergency
Operations Center
(EOC)
Resource
Organization
2 Per State (central
and backup)
State
Direct Food and
Agriculture Safety and
Defense Operations
Implement Control
Measures for
Contaminated Products
Conduct Product
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Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Disposal, Surface, and
Food Facility
Decontamination
Human Disease
Surveillance Team
Non-NIMS
Resource
Organization
1 Per State State Surveillance
Food Investigation
Team
Non-NIMS
Resource
Organization
25 Per State State Surveillance
Trace Suspect Products
Food Facility
Decontamination
Team
Non-NIMS
Resource
Organization
10 Per State State Implement Control
Measures for
Contaminated Products
Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
Food Facility
Decontamination
Team Supervisors
Non-NIMS
Resource
Organization
4 Per State State Implement Control
Measures for
Contaminated Products
Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
Food Facility
Decontamination
SMEs
Non-NIMS
Resource
Organization
5 Per State State Implement Control
Measures for
Contaminated Products
Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
Disposal Team Resource
Organization
50 per State State
Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
Semi-tractor
trailers for disposal
Equipment 500 Per state State
Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
Disposal Team
Supervisors
Personnel 20 Per state State Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
Disposal Team
SMEs
Personnel 5 Per State State Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
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Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Sample Analysis
Laboratory
Analysts
Personnel 1000 Nationally State Surveillance
Sample Analysis
Laboratory
Supervisor
Personnel 100 Nationally State Surveillance
Confirmatory
Testing Laboratory
Analysts
Personnel 250 Nationally State Surveillance
Confirmatory
Testing Laboratory
Supervisor
Personnel 25 Nationally State Surveillance
Federal Risk
Communication
Staff
Personnel 25 Nationally Federal
(HHS/FDA,
USDA)
Implement Control
Measures for
Contaminated Products
State Risk
Communication
Staff
Personnel 250 - 500 Nationally States Implement Control
Measures for
Contaminated Products
Federal
Embargo/recall
Team
Non-NIMS
Organization
1 Per State Federal
(HHS/FDA,
USDA)
Implement Control
Measures for
Contaminated Products
State
Embargo/recall
Team
Non-NIMS
Organization
1 Per State State Implement Control
Measures for
Contaminated Products
Federal Public
information staff
Personnel 25 Nationally Federal
(HHS/FDA,
USDA)
Implement Control
Measures for
Contaminated Products
State Public
information staff
Personnel 12 Per State State Implement Control
Measures for
Contaminated Products
Law enforcement
staff – secure scene
Personnel 200 Per State State Implement Control
Measures for
Contaminated Products
Law enforcement
staff - investigate
event
Personnel 200 Per State State Implement Control
Measures for
Contaminated Products
IT support staff Personnel 600 Nationally State All Activities
IT equipment cache Equipment 12000 Nationally State All Activities
Additional
transportation
Vehicles 240 Per State State Trace Suspect Product
Implement Control
Measures for Infected
and/or Contaminated
Products
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Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Conduct Product
Disposal, Surface, and
Food Facility
Decontamination
References
1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html
2. National Response Plan (NRP). Department of Homeland Security. December 2004.
3. National Incident Management System (NIMS). Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf
4. Bio-security and the Food Supply. Food Safety and Inspection Service, Department of Agriculture. 2004.
http://www.fsis.usda.gov/Fact_Sheets/Biosecurity_&_the_Food_Supply/index.asp
5. Emergency Response to Terrorism Job Aid, Ed 2.0. Federal Emergency Management Agency and Department
of Justice. February 2003. http://biotech.law.lsu.edu/blaw/FEMA/ert-ja.pdf
6. Federal Meat Inspection Act. Food Safety and Inspection Service, Department of Agriculture. 2002.
7. Code of Federal Regulations, Title 10, Part 835; Volume 4, Parts 500 to end. U.S. Government Printing Office.
2000.
8. OSHA/NIOSH Interim Guidance - August 30, 2004: Chemical - Biological - Radiological - Nuclear (CBRN)
Personal Protective Equipment Selection Matrix for Emergency Responders, Biological Agents. Occupational
Safety & Health Administration, Department of Labor
9. Hazard Analysis and Critical Control Point (HACCP). U.S. Food and Drug Administration. Center for Food
Safety and Applied Nutrition. http://vm.cfsan.fda.gov/~lrd/haccp.html
10. Post-Emergency Response Resources Guide. US Nuclear Regulatory Commission and Federal Emergency
Management Agency. 1991.
11. Manual of Protective Action Guides and Protective Actions for Nuclear Incidents, 400-R-92-0001.
Environmental Protection Agency (EPA). 1991.
12. Radiological Sources of Potential Exposure and/or Contamination, USACHPPM Tech Guide 238. Aberdeen
Proving Ground, MD. 1999.
13. Code of Federal Regulations (CFR) Title 10, Part 835; Volume 4; Parts 500 to end. U.S. Government Printing
Office. 2000. http://www.access.gpo.gov/nara/cfr/waisidx_03/10cfr835_03.html
14. National Fire Protection Association. 2002. NFPA 472: Standard for Professional Competence of Responders
to Hazardous Materials Incidents. 2002 Edition. Available at:
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472. Accessed October 10. 2005.
15. National Fire Protection Association. 2004. NFPA 1600: Standard on Disaster/Emergency Management and
Business Continuity Programs, National Fire Protection Association, 2004 Edition. Available at:
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1600. Accessed October 10, 2005.
16. Multistate Foodborne Outbreak Investigations: Guidelines for Improving Coordination and Communication” –
National Food Safety System Project, Outbreak Coordination and Investigation Workgroup, February 2001.
17. Environmental Health Officers Readiness Guide, U.S. Public Health Service
18. Core Competencies for Public Health Workers, Columbia School of Nursing
Target Capabilities List 161
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
EPIDEMIOLOGICAL SURVEILLANCE AND
INVESTIGATION
Capability Definition
The Epidemiological Surveillance and Investigation capability is the capacity to rapidly conduct
epidemiological investigations. It includes exposure and disease (both deliberate release and naturally
occurring) detection, rapid implementation of active surveillance, maintenance of ongoing surveillance
activities, epidemiological investigation, analysis, and communication with the public and providers
about case definitions, disease risk and mitigation, and recommendation for the implementation of control
measures.
Outcome
Potential exposure to disease is identified rapidly by determining exposure and mode of transmission and
agent; interrupting transmission to contain the spread of the event; and reducing number of cases.
Confirmed cases are reported immediately to all relevant public health, food regulatory, environmental
regulatory, and law enforcement agencies. Suspected cases are investigated promptly, reported to
relevant public health authorities, and accurately confirmed to ensure appropriate preventive or curative
countermeasures are implemented. An outbreak is defined and characterized; new suspect cases are
identified and characterized based on case definitions on an ongoing basis; relevant clinical specimens are
obtained and transported for confirmatory laboratory testing; the source of exposure is tracked; methods
of transmission identified; and effective mitigation measures are communicated to the public, providers,
and relevant agencies, as appropriate.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Function (ESF)/Annexes:
ESF#8: Public Health and Medical Services
Biological Incident Annex
Terrorism Incident Law Enforcement and Investigation Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
ProB1a 1.1 Develop plans, procedures, and protocols for investigating a potential disease outbreak
ProB1a 1.1.1 Develop procedures for identification of disease, vector and epidemic
ProB1a 1.1.2 Develop guidelines or procedures for properly conducting a coordinated outbreak investigation
Pro.B1a 1.1.4
Develop and maintain efficient surveillance systems supported by information systems that
comply with PHIN functional requirements for Early Event Detection, Outbreak Management
and Countermeasure and Response Administration to facilitate early detection, mitigation and
evaluation of expected and unexpected public health conditions
162 Target Capabilities List
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Pro.B1a 1.1.5
Distinguish on the State list of notifiable conditions between select conditions that require
immediate reporting to the public health agency (at a minimum, Cat A agents), and conditions
for which a delay in reporting is acceptable
ProB1a 1.2 Develop plans and procedures to respond to a disease outbreak
ProB1a 1.2.1
Develop policies and procedures to respond appropriately to positive notifications of medical
hazards
Pro.B1a 1.2.1.1 Describe time frames for notification for conditions where a delay in reporting is acceptable,
ProB1a 1.2.2
Develop plans, procedures and protocols for the provision of medical personnel, equipment,
laboratories, and pharmaceuticals and supplies
ProB1a 1.2.3
Plan and prepare for pandemic influenza, particularly for the stage when vaccine either is non-
existent or in severely short supply
ProB1a 1.2.4
Develop plans, procedures and protocols to inventory medical supplies, equipment, ambulance
services, hospitals, clinics and first aid units
ProB1a 1.2.5
Develop communications to physicians and hospitals regarding use of testing of symptomatic
and non-symptomatic patients during epidemic
ProB1a 1.2.6
Develop an integrated response plan that directs how public health, hospital-based,
environmental, food, veterinary and agricultural laboratories will respond to a bioterrorism
incident
Preparedness Measures Metrics
Epidemiological and laboratory emergency plans are in place Yes/No
Epidemiological plans identify the conditions (e.g., trigger points) for initiating the
investigation
Yes/No
Epidemiological emergency response plans delineate the epidemiological investigation steps
for identifying the population at risk
Yes/No
Epidemiological emergency response plans address surveillance – ongoing and event-specific
collection of health data
Yes/No
Epidemiological emergency response plans include steps for comparison of cases to the
baseline and confirmation of diagnosis
Yes/No
Epidemiological emergency response plans include steps for case finding – actively searching
for cases
Yes/No
Epidemiological emergency response plans include steps for managing data that warrants
public health attention (e.g. detect through pattern recognition and compile, analyze, and
report surveillance data)
Yes/No
Epidemiological emergency response plans include steps for contact tracing Yes/No
Epidemiological emergency response plans identifying/developing information systems to
support the epidemiological investigation that comply with PHIN functional requirements for
Outbreak Management and Countermeasure and Response Administration including a
protocol for management/flow of data
Yes/No
Epidemiological emergency response plans include steps for development of descriptions of
cases through interviews, medical record review and other mechanisms (person, place and
time)
Yes/No
Epidemiological emergency response plans include steps for generating possible associations Yes/No
Target Capabilities List 163
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
of transmission, exposure and source
Epidemiological emergency response plans include steps for coordinating with environmental
investigation
Yes/No
Epidemiological emergency response plans include steps for performing and analyzing
definitive studies
Yes/No
Epidemiological emergency response plans include steps for sharing with and reporting
appropriate information to key Federal, State, and local public health partners
Yes/No
Epidemiological emergency response plans address monitoring the containment of diseases
(e.g. outbreak course and population characteristics, effectiveness of mitigation steps, status of
those exposed from identification through disposition, etc.).
Yes/No
Epidemiological emergency response plans include steps for evaluating therapeutic outcome Yes/No
Epidemiological emergency response plans include steps for monitoring adverse reactions to
public health interventions
Yes/No
Epidemiological emergency response plans include communication requirements (e.g.,
dissemination of accurate, timely, and accessible information to the public, media, and
support agencies)
Yes/No
Chain of evidence and chain of custody protocols are followed according to SOP – zero loss
of evidence or specimens
Yes/No
Information tracking systems (e.g., registries of exposed or potentially exposed persons,
systems to support investigating, describing, understanding events).
Yes/No
State notifiable conditions list distinguishes between select conditions that require immediate
reporting to the public health agency (at a minimum, Cat A agents), and conditions for which
a delay in reporting is acceptable
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
ProB1a 2 Develop and implement training and exercises for epidemiological surveillance and investigation
ProB1a 2.1 Develop and implement training programs epidemiological surveillance and investigation
ProB1a 2.1.1
Support training on various types and models of equipment likely to be used in an emergency
situation through government grants and industry sponsored workshops
ProB1a 2.2 Develop and implement exercises for epidemiological surveillance and investigation
Preparedness Measures Metric
Staff are trained on activities required to conduct epidemiological surveillance and
detection including exposure and disease detection, surveillance, analysis, reporting, and
use of equipment
Yes/No
HSEEP-compliant exercises to evaluate epidemiological surveillance and detection are
routinely conducted
Yes/No
164 Target Capabilities List
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Performance Tasks and Measures/Metrics
Activity: Direct Epidemiological Surveillance and Investigation Operations
Definition: Coordinate, maintain, enhance, analyze, and provide efficient surveillance and
information systems to facilitate early detection and mitigation of disease.
Critical Tasks
Pro.B1a 3.3.2
Identify applicable laws, policies, and implementation procedures for public health reporting and
notification
Pro.B1a 3.3.1
Maintain public health communication channels supported by information systems that comply
with the PHIIN functional requirements for Partner Communications and Alerting
Pro.B1a 3.3.3 Provide Public Health information to emergency public information for release
Pro.B1a 3.2.3 Coordinate resources needed to respond to public health concern
Pro.B1a 3.1
Lead public health investigations to determine source of disease in collaboration with law
enforcement
Pro.B1a 3.2.2 Identify all stakeholders and agency representatives or liaisons for public health response
Pro.B1a 4.5.1
Report instances of disease that raise the index of suspicion of terrorist or criminal involvement
to FBI Headquarters (National Response Plan)
Pro.B1a 3.3.4 Make public health recommendations for prophylaxis and other interventions
Pro.B1a 3.2.4 Coordinate examination of deceased suspect patients with the medical examiner and/or coroner
Performance Measures Metric
Time in which State informed local or local informed State of receipt of notice of a
case with a high index of suspicion of an immediately notifiable condition
Within 1 hour from receipt
Time in which information was issued to the public that acknowledged the event,
provided status, and committed to continued communication
Within 1 hour from
implementation of response
plan
Time in which case finding and public health instruction was disseminated to all
hospitals in jurisdiction through the Health Alert Network (HAN) whose supporting
information systems comply with the PHIN functional requirements for Partner
Communications and Alerting.
Within 12 hours from case
definition
Percent of public health epidemiological staff with sufficient equipment (e.g., PPE,
IT, communication, clinical sampling equipment, specimen collection material) to
conduct investigation
100%
Time in which knowledgeable public health professional answered a call of urgent
public health consequence 24/7/365
Within 15 minutes from call
Time in which message was approved and authorized for distribution of public health
and medical information to clinicians and other responders
Within 1 hour from
finalization of message
Target Capabilities List 165
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Activity: Surveillance and Detection
Definition: Collect ongoing and event-specific health data to recognize events of public health
significance
Critical Tasks
Pro.B1a 4.5.4
Facilitate reporting consistent with disease reporting laws or regulations
Pro.B1a 4.3
Compile surveillance data
Pro.B1a 4.4
Analyze surveillance data
Pro.B1a 4.2.1
Detect suspected outbreak through pattern recognition
Pro.B1a 4.3.3
Maintain chain of custody
Pro.B1a 4.3.2
Have or have access to PHIN compliant information systems to support detecting events of
public health significance and tracking of chain of custody
Performance Measures Metric
Data warranting public health attention were received, reviewed, and analyzed Yes/No
Time in which epidemiological investigation was initiated following report to health
department
Within 3 hours from
report
Time in which epidemiological investigation was completed following report to health
department
Within 36 hours from
report
Activity: Conduct Epidemiological Investigation
Definition: Investigate a disease and its determinants in a population; characterize and classify a
case; identify the source of the public health event; and define the population at risk
Critical Tasks
ProB1a 5.1
Dispatch public health personnel to location of suspected contamination
ProB1a 5.2
Conduct epidemiological investigations to identify potential exposure and disease
Pro.B1a 5.3
Confirm the outbreak using lab data and disease tracking data
Pro.B1a 5.2.1
Define case characteristics
Pro.B1a 5.3.1
Search actively for cases (case finding)
Pro.B1a 5.3.2
Create registries of ill, exposed, and potentially exposed persons
Pro.B1a 5.4
Conduct contact tracing
Pro.B1a 5.4.1
Analyze and interpret epidemiological investigation data in coordination with data from Counter-
Terror Investigation and Law Enforcement
Pro.B1a 5.4.2
Analyze and confirm origin of outbreak
Pro.B1a 5.5.1
Recommend control measures for outbreak
Pro.B1a 5.6
Draft and disseminate initial report of epidemiological investigation
166 Target Capabilities List
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Pro.B1a 5.6.1
Have or have access to information systems to support investigating, describing and
understanding events of public health significance that comply with the PHIN Functional Area
Outbreak Management
Performance Measures Metric
Time in which public health epidemiologist initiated initial investigation Within 3 hours from initial
notification
Time in which recommendation for public health intervention was provided Within 6 hours from first
identification of agent
Time in which suspect case was sent to key Federal, State, and local public health
partners (e.g., CDC, FBI, law enforcement, State, and local)
Within 3 hours from
identification
Time in which case definitions were created Within 12 hours from
confirmation of index case
Time in which a health alert that describes the initial report of an indexed case
along with known cases, possible risk factors, and initial public health
interventions to be distributed via multiple means such as: Epi-X, Health Alert
Network (HAN), fax, and e-mail was developed
Within 12 hours from initiation
of case investigation
Time in which active case findings in all affected States was initiated Within 24 hours from
established working case
definition.
Time in which law enforcement was notified of initial laboratory confirmation of
high priority diseases or events with suspicion of terrorism
Within 1 hour from laboratory
confirmation.
Time in which clinical diagnostic specimens/samples were received at the
laboratory response network (LRN) after epidemiologist acquisition
Within 6 hours from
acquisition
Time in which 75 % of known suspected cases (or proxies) were
contacted/interviewed for more detailed epidemiologic follow-up
Within 48 hours from
identification of the index case
Time in which an initial report describing all suspected cases by person, place,
and time was produced
Within 60 hours from
identification of the index case
Activity: Monitor Containment
Definition: Based upon the extent of the population at risk and recommendations for outbreak
control, assess the effectiveness of disease containment measures
Critical Tasks
Pro.B1a 6.1.1 Monitor the course and population characteristics of a recognized outbreak
Pro.B1a 6.2
Have or have access to information systems that support administration of outbreak control
and that comply with the PHIN functional requirements for Countermeasure and Response
Administration.
Pro.B1a 6.1 Monitor effectiveness of mitigation steps
Pro.B1a 6.4
Conduct an after action debriefing (hotwash) to identify deficiencies that require corrective
actions in areas such as personnel, training, equipment, and organizational structure
Pro.B1a 6.3.2 Conduct special studies of critical public health issues
Target Capabilities List 167
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Performance Measures Metric
Percent of known cases and exposed successfully tracked from identification through
disposition to enable follow-up
100%
Linked Capabilities
Linked Capability Relationship
Emergency Public
Information and Warning
Epidemiological Surveillance and Investigation provides information for release to
Emergency Public Information and Warning.
Emergency Operations
Center Management
Epidemiological Surveillance and Investigation and Emergency Operations Center
Management both contribute to situation reports.
Medical Surge Epidemiological Surveillance and Investigation and Medical Surge both provide
situation reports.
Laboratory Testing Epidemiological Surveillance and Investigation receives lab results from Laboratory
Testing.
Mass Prophylaxis Epidemiological Surveillance and Investigation provides outbreak notification to Mass
Prophylaxis.
Isolation and Quarantine Epidemiological Surveillance and Investigation provides investigation results to
Isolation and Quarantine, while Isolation and Quarantine provides containment updates
to Epidemiological Surveillance and Investigation.
168 Target Capabilities List
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Direct
Epidemiological
Surveillance
and
Investigation
Operations
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Isolation and
Quarantine
Emergency Public
Information and
Warning
Emergency
Operations Center
Management
Mass
Prophylaxis
Lab results provided
Updates provided
Provide stireps
Provide information for
release
Provide investigation
results
Provide outbreak
notification
Report detection of possible
unusual event
Provide lab results
Provide information
Medical Surge
Need for PAD
Sample provided to lab
End: Return to pre-event
operation levels
Surveillance and
Detection
Conduct
Epidemiological
Investigation
Monitor
Containment
Routine
monitoring data
suggests unusual
event?
R
e
c
o
m
m
e
n
d
r
e
v
i
s
i
o
n
s
t
o
P
A
D
No
Yes
Disease contained
Ready to implement
containment measures
Linked
Capabilities
Relationship
Epidemiological Surveillance and
Investigation Capability
Capability Activity Process Flow
Laboratory
Testing
Target Capabilities List 169
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Resource Element Description
Resource Elements Components and Description
Local Health Department-based
Surveillance Team
Team to track suspect case reports (reportable diseases) within their
jurisdiction; personnel (per 12-hour shift): 1 supervisor (MD, DVM, or PhD
level), 2 epidemiologists, 1 IT staff , and 1 statistician. The team is led by a
local health department, but staff may be drawn from local, State, and/or
Federal resources.
Investigation Epidemiologist
Personnel: 1 Epidemiologist (or public health nurse or public health advisor)
to interview cases and perform investigation
Active Surveillance/Case
Finding Epidemiologist
Personnel: 1 epidemiologist (or public health nurse or public health advisor)
per 12 hour shift per facility (e.g. hospital ER in affected region) to find to
cases in hospitals and the community.
Special Studies Team
Team to undertake focused scientific investigations of interest; personnel: 1
epidemiology supervisor (MD, DVM, or PhD), 5 epidemiologists or scientists,
1 public health advisor, 1 subject matter expert, 1 interviewer per 10 persons,
and 1 statistician
CDC Department Emergency
Operations Center (DEOC)
Surge Team
Team to coordinate CDC response to an incident at a location. Personnel: 1
senior epidemiology supervisor, 1 Federal-State liaison epidemiologist per
affected State, 5 support epidemiologists, 1 public health advisor (PHA), 1 data
entry manager, 10 data entry staff
State/Local EOC Surge Team
EOC personnel to coordinate the response to the incident. Personnel: 1
epidemiology incident commander, 1 senior epidemiology supervisor per 12
hour shift, 1 Bioterrorism coordinator, 5 support epidemiologists per 12 hour
shift, 1 PHA per 12 hour shift, 1 Database manager, 1 programmer, 2 analysts,
2 transport teams (each with 1 driver), 1 clerical staff member, 1 IT person
Personal Equipment Cache
1 Blackberry/cell phone, PPE, and appropriate equipment cache per person
Laptop computers/printers
1 laptop per 2 persons deployed; 1 printer per 10 laptops (1 printer per 20
persons deployed)
Planning Assumptions
Scenario-Specific
Although applicable to several of the 15 National Planning Scenarios, the capability planning
factors were developed from an in-depth analysis of the Anthrax and Pandemic Influenza
scenarios. Other scenarios were reviewed to identify required adjustments or additions to the
planning factors and national targets.
Estimates are made of the needs for communities to respond to this emergency once identified
and for baseline resources needed for timely initial detection
B. anthracis spores added directly to product without aerosolization
Ground beef was sent to San Diego, Seattle, and Phoenix
Orange juice was sent to Albuquerque, Las Vegas, and Palm Springs
Patient presentations involved gastrointestinal, oropharyngeal, and cutaneous forms of anthrax.
Clinical and laboratory confirmation (LRN) occurred between days 2 and 5 after index case
presentation
170 Target Capabilities List
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Production facilities and distribution system mechanisms will be contaminated until formally
decontaminated
Cases will continue sporadically following public health intervention due to consumers and
retailers failing to discard/return/destroy contaminated product
No simultaneous disasters are occurring during the same time
There will be an unprecedented level of public concern, anxiety, and fear as a result of this
incident
Assume field investigation will last 10 days at full personnel strength and then another 20 days at
50 percent personnel strength.
Assume a concurrent law enforcement investigation
Assume health departments and Emergency Operation Centers (EOC) will require 100 percent
surge staffing for 30 days in 10 cities (6 affected cities and 4 neighboring areas that have high
levels of anxiety/concern) and at CDC.
Staff requirements, detailed in this worksheet, represent existing local, State, and Federal
resources that are devoted to routine (baseline) public health activities.
Assume that staff at the local level may include Federal or State employees; assume that staff at
the State level may include Federal employees.
Assume that for every case interviewed, 10 ill persons with diseases other than anthrax will need
to be interviewed in a more abbreviated manner. Assume these “non-case” interviews will take
half the time of a case interview. Given that 2,300 cases are indicated in the scenario, this means
that 25,300 total interviews will need to be conducted.
Assume 100 percent of cases and 50 percent of non cases will be interviewed during first 10 days.
The remaining 50 percent of non-cases will be interviewed during the next 20 days.
Assume there will be 100 facilities (hospital emergency departments) requiring active
surveillance in 10 locations.
Assume 10 special studies will be conducted. Each study will require 50 interviews.
The food contamination scenario explored would be considered a national response that involves
local, State and Federal resources.
To provide 24 hour coverage for the first 10 days, the national response described in this scenario
would require a staff of 110 epidemiology supervisors, 451 epidemiologists, 60 data entry staff,
40 IT staff, 30 statisticians, 60 public health advisors, 10 occupational/environmental
epidemiologists, 50 non-epidemiologist interviewers, 10 subject matter experts and 10 State
bioterrorism coordinators.
Over the next 20 days of the investigation, staffing could be reduced to 70 epidemiology
supervisors, 270 epidemiologists, 31 data entry staff, 30 IT staff, 30 statisticians, 40 public health
advisors, 10 occupational/environmental epidemiologists, 50 non-epidemiologist interviewers, 10
subject matter experts and 10 State BT coordinators.
The percent of staff contributions to the investigation from the State and local levels is dependent
on baseline availability of resources. It should be noted that the Council of State and Territorial
Epidemiologists (CSTE) 2004 National Assessment of Epidemiology Capacity: Findings and
Recommendations sites a 40 percent deficiency of trained public health epidemiologists
nationally.
Due to potentially unforeseen delays in the identification of a non-naturally occurring
epidemiological event, detection of disease outbreaks may not occur until large numbers of
victims are affected, particularly when the agent has a long incubation period.
Target Capabilities List 171
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Anthrax and Pandemic Influenza)
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
Local Health
Department-based
Surveillance Team
One team can track diseases at
one location per 12 hour shift.
Assume 24 hour/day
staff needs for 30 days
at 10 locations
All 30 days – need 20
teams nationally
Each location needs 2
teams (1 per shift)
Investigation
Epidemiologist
One epidemiologist can conduct
investigations at 5 locations
during first 10 days
Assume 100 facilities
requiring active
surveillance in 10
locations (cities) during
first 10 days
Nationally:
200 epidemiologists for
first 10 days
100 epidemiologists for
next 20 days
Active
Surveillance/Case
Finding
Epidemiologists
One epidemiologist per shift can
conduct surveillance/case finding
at 1 health facility during first 10
days.
For 24-hour surveillance, need 2
epidemiologists per day at each
facility.
Assume 100 facilities
requiring active
surveillance across 10
locations (cities) during
first 10 days.
Nationally:
200 epidemiologists for
first 10 days; 100
epidemiologists for next
20 days
2 Epidemiologist per
health facility
Special Studies
Team
One team (comprising personnel
in Resource Element Description
Table) can conduct one study
Assume 10 special
studies conducted, each
requiring 50 interviews
All 30 days – need 10
Teams nationally
CDC Department
Emergency
Operations Center
(DEOC) Surge Team
100% surge staffing for first 10
days, and 50% staffing for next 20
days at CDC EOC.
Assume 1 surge team can support
response for one affected location
per 12 hour shift
Assume 10 affected
locations (6 with cases +
4 additional) requiring
24 hour/day response
Nationally – 20 Surge
Teams
State/Local EOC
Epidemiology Surge
Personnel Team
Assume 100% staff needs for first
10 days, and 50% staffing for next
20 days at each location
Assume 1 surge team can support
response for one affected location
per 12 hour shift
Assume 10 affected
States (6 with cases + 4
additional)
2 Surge Teams per State
EOC for 1
st
10 tens; then
1 Surge Team for 20
days.
Personal Equipment
Cache
Blackberry/cell phone; PPE and
appropriate equipment cache per
person – 1 per person deployed;
Assume 511 people
deployed during first 10
days;
341 people next 20 days
First 10 Days
:
511 Blackberry/cell
phones/PPE/appropriate
equipment cache
Next 20 Days
:
341 Blackberry/cell
phones/PPE/appropriate
172 Target Capabilities List
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
equipment cache
Laptop
computers/printers
1 laptop for every 2 people
deployed; 1 printer for every 10
laptops
(or 10 laptops and 1 printer for
every 20 people deployed)
Assume 511 people
deployed during first 10
days;
341 people next 20 days
First 10 Days
:
256 laptops, 26 printers
Next 20 Days
:
171 laptops, 17 printers
Approaches for Large-Scale Events
Pandemic Flu – For all teams, the work force will be diminished by one-third. The need for
epidemiologic investigation will be far reduced relative to surveillance needs; resource needs for
pandemic flu are orders of magnitude greater.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Local Health
Department-based
Surveillance Team
Personnel 2 Per affected county Federal/State/
Local
Monitor
Containment
Surveillance and
Detection
Investigation
Epidemiologist
Personnel 1 Per affected county Local (County) Conduct
Epidemiological
Investigation
Active Case
Finding/
Surveillance
Epidemiologist
Personnel 1 Per affected county Local (County) Conduct
Epidemiological
Investigation
Monitor
Containment
Surveillance and
Detection
Special Studies
Team
Personnel 10 Nationally Federal/ State/
Local
Conduct
Epidemiological
Investigation
Monitor
Containment
Surveillance and
Detection
Target Capabilities List 173
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
CDC Department
Emergency
Operations Center
(DEOC) Surge
Team
Federal
Resource
Organization
10 Nationally Federal
(HHS/CDC)
Direct
Epidemiological
Surveillance and
Investigation
Operations
State/Local EOC
Epidemiology
Surge Personnel
Team
Resource
Organization
2 Per State State Direct
Epidemiological
Surveillance and
Investigation
Operations
Personnel
Equipment cache
Equipment 511 Nationally Federal/State/
Local
All Activities
Laptop
computers/printers
Equipment 256 Nationally Federal/State/
Local
All Activities
References
1. Homeland Security Presidential Directive/HSPD-8, “National Preparedness”. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html
2. National Response Plan (NRP) Department of Homeland Security. December 2004.
3. National Incident Management System (NIMS). Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf
4. Bravata, D, McDonald, K, Owens, D et al. Bioterrorism Preparedness and Response: Use of Information
Technologies and Decision Support Systems. Evidence Report/Technology Assessment No 59, HRQ
Publications No. 02-E028. Agency for Healthcare Research and Quality. June 2002.
http://www.ahrq.gov/clinic/epcsums/bioitsum.pdf
5. Syndrome and Outbreak Detection Using Chief-Complaint Data: Experience of the Real-Time Outbreak and
Disease Surveillance Project. Morbidity and Mortality Weekly Report. September 2004.
http://www.cdc.gov/mmwr/preview/mmwrhtml/su5301a7.html
6. Epidemic Intelligence Service. Center for Disease Control. 2004. http://www.cdc.gov/eis
7. State Public Health Preparedness and Response Capacity Inventory; Version 1.1. Centers for Disease Control
and Prevention. December 2002.
http://www.phppo.cdc.gov/od/inventory/docs/State%20Inventory%20version%201_1_FINAL.pdf
8. Bioterrorism and Public Health Emergency Preparedness and Response: A National Collaborative Training
Plan. Centers for Disease Control and Prevention. February 2002.
http://www.phppo.cdc.gov/owpp/docs/library/2002/BioTerrorism%20National%20Training%20Plan%20Exec
%20Sum.pdf
9. National Bioterrorism Hospital Preparedness Program, Continuation Guidance. Department of Health and
Human Services, Health Resources and Services Administration. 2005.
http://www.hrsa.gov/grants/preview/guidancespecial/hrsa05001.htm
174 Target Capabilities List
PROTECT MISSION: EPIDEMIOLOGICAL SURVEILLANCE AND INVESTIGATION
10. FY05 CDC Public Health Preparedness and Response Cooperative Agreement. 2005.
http://www.bt.cdc.gov/planning/guidance05/index.asp
11. U.S. Department of Health and Human Services Strategic Plan to Combat Bioterrorism and Other Public Health
Threats and Emergencies. October 2003. http://www.hhs.gov/emergency/index.shtml#bioterrorism
12. Ready or Not…Chemical Terrorism Project. Association of Public Health Laboratories (APHL). July 2003.
www.aphl.org
13. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program,
http://mmrs.fema.gov.
Target Capabilities List 175
PROTECT MISSION: LABORATORY TESTING
LABORATORY TESTING
Capability Definition
The Laboratory Testing capability is the ongoing surveillance, rapid detection, confirmatory testing, data
reporting, investigative support, and laboratory networking to address potential exposure, or exposure, to
all-hazards which include chemical, radiological, and biological agents in all matrices including clinical
specimens, food and environmental samples, (e.g., water, air, soil). Such all-hazard threats include those
deliberately released with criminal intent, as well as those that may be present as a result of unintentional
or natural occurrences.
Outcome
Potential exposure to disease is identified rapidly by determining exposure and mode of transmission and
agent; interrupting transmission to contain the spread of the event; and reducing number of cases.
Confirmed cases are reported immediately to all relevant public health, food regulatory, environmental
regulatory, and law enforcement agencies. Suspected cases are investigated promptly, reported to
relevant public health authorities, and accurately confirmed to ensure appropriate preventive or curative
countermeasures are implemented. An outbreak is defined and characterized; new suspect cases are
identified and characterized based on case definitions on an ongoing basis; relevant clinical specimens are
obtained and transported for confirmatory laboratory testing; the source of exposure is tracked; methods
of transmission identified; and effective mitigation measures are communicated to the public, providers,
and relevant agencies, as appropriate.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Function (ESF)/Annexes:
ESF#8: Public Health and Medical Services
Biological Incident Annex
Terrorism Incident Law Enforcement and Investigation Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Pro.B1e 1.1.1
Identify, establish and maintain working collaboration with all Laboratory Response Network
(LRN) Sentinel and LRN Clinical Chemistry laboratories within the jurisdiction
Pro.B1e 1.1.1.1
Develop and maintain an accurate and current database of contact information and capability for
all the Laboratory Response Network (LRN) Sentinel and LRN Clinical Chemistry laboratories
Pro.B1e 1.1.1.2
Provide all the Laboratory Response Network (LRN) Sentinel and LRN Clinical Chemistry
laboratories with updated LRN Reference laboratory contact information
Pro.B1e 1.1.3
Establish and maintain collaborative linkages with other State laboratories, e.g., environmental,
agriculture, veterinary, and university, as well as the jurisdiction’s National Guard Civil Support
Team (CST) and other first responders
176 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Pro.B1e 1.1.4
Establish and maintain linkages with Federal laboratory networks and member laboratories
within the jurisdiction, e.g., the Food Emergency Response Network (FERN), National Animal
Health Laboratory Network (NAHLN), and the EPA
Pro.B1e 1.1.5
Establish and maintain a sentinel laboratory advisory committee or equivalent that meets at least
Every year and includes representatives from clinical microbiology, clinical chemistry,
veterinary, food, and environmental laboratories in your jurisdiction
Pro.B1e 1.3.3
Establish and utilize a State and local health alert network that complies with the PHIN
Functional Area Partner Communication and Alerting for electronic connectivity with all LRN
Sentinel laboratories
Pro.B1e 1.3.4
Establish and maintain connectivity with the State Emergency Operations Center (SEOC) and
other official components of the State and local emergency response, including the Emergency
Management Assistance Compact (EMAC)
Pro.B1e 1.3.5
Establish and maintain communication linkages with local, State, and Federal (e.g., CDC DEOC
and LRN) public safety and law enforcement entities, e.g., police, fire, emergency management,
and the FBI
Pro.B1e 1.5.1 Hire and/or maintain a biosafety officer for each facility
Pro.B1e 1.5.2 Develop a contingency plan for a breach in biosafety
Pro.B1e 1.6.4
Provide a ready supply of the reagents required for rapid testing of biological threat agents by
LRN Reference laboratories
Pro.B1e 1.6.5
Maintain a ready supply of the reagents and materials, not supplied by CDC, required for rapid
testing of biological and chemical threat agents at the reference level
Pro.B1e 1.6.6 Maintain an accurate inventory of reagents and supplies in their respective laboratories.
Pro.B1e 1.7.1
Develop and validate, in partnership with LRN Reference and LRN Chemical laboratories,
standard laboratory methods to test for chemical and biological threat agents
Pro.B1e 1.7.2
Transfer standardized technology and laboratory methods from the CDC to State and local LRN
Reference and LRN Chemical laboratories
Pro.B1e 1.7.3
Develop, in collaboration with CDC, e.g., EPA, FDA, USDA, and DOD, additional standardized
and validated methods for testing for chemical and biological agents in non-clinical samples
Pro.B1e 1.7.4
Integrate new advanced biological and chemical rapid identification methods, as they are
developed and approved by the LRN, into the current laboratory testing algorithm for human,
environmental, animal, or food specimens
Preparedness Measures Metrics
Laboratory plans and procedures address linkages to Federal lab networks and member labs
within the jurisdiction (e.g. Food Emergency Response Network, National Animal Health
Laboratory Network, EPA)
Yes/No
Laboratory plans and procedures address collaborative linkages with other state laboratories
(e.g. environmental, agriculture, veterinary, university).
Yes/No
Laboratory plans and procedures address sharing information with key Federal, State, and
local public health partners (e.g. FBI, first responders, HazMat teams, LRN Sentinel and
Chemical labs)
Yes/No
Laboratory plans and procedures address dissemination of accurate, timely, accessible
information to public, media, support agencies
Yes/No
Target Capabilities List 177
PROTECT MISSION: LABORATORY TESTING
Laboratory plans and procedures address investigation and follow-up lab support (e.g.
analytical and investigative assistance to epidemiologist, law enforcement, and
environmental health).
Yes/No
Laboratory plans and procedures address information tracking systems (e.g. database of
contact information and capability at all LRN labs, database of inventory of reagents and
supplies at their respective labs).
Yes/No
The Public Health Laboratory has or has access to information systems that comply with the
PHIN Functional Area Connecting Laboratory Systems to send and receive laboratory test
orders and results
Yes/No
LRN reference laboratory has a system to maintain an inventory of reagents and supplies to
support LRN testing
Yes/No
CDC (BPRP) produces and/or acquires sufficient reagents to maintain LRN reference testing
of biological threat agents
Yes/No
Percent of Health Resources & Services Administration (HRSA) funded hospitals that have
PHIN compliant IT systems that are interoperable with their jurisdictional public health
agency and that transmit clinical and/or hospital utilization data in near real-time to a PHIN-
compliant early-event detection information systems. (responsibility aligns with Health
Resources and Services Administration and interface with Interoperable Communications,
Epidemiology and Medical Surge Capabilities)
( Reference National Bioterrorism Hospital Preparedness Program FY2005 Continuation
Guidance Health Resources and Services Administration Announcement number 5-U3R-05-
001)
100%
Frequency with which tests are conducted of select LRN Sentinel laboratories laboratory to
reach a knowledgeable public health laboratory professional at the jurisdictional
confirmatory LRN Reference and LRN Chemical laboratories 24/7/365 by landline phone
Every 12 months
Time in which public health laboratory professionals are reached by landline phone Within 15 minutes
Percent of LRN Sentinel laboratories within the LRN jurisdiction that successfully
acknowledge receipt of health alerts.
Note: Reference PHIN Preparedness Functional Area Partner Communication and Alerting
100%
Frequency with which acknowledgement of receipt of health alerts that includes at least one
priority category (i.e., alert, advisory, update, etc.) is tested
Every 12 months
The laboratory has a primary system that ensures delivery of specimens/samples 24/7/365 Yes/No
The laboratory has a secondary courier (e.g., State patrol helicopter) system that ensures
rapid delivery in an emergency situation
Yes/No
At least one operational Biosafety Level Three (BSL-3) facility is available within
jurisdiction for testing for biological agents, or if not immediately possible, BSL-3 practices,
as outlined in the CDC-NIH publication “Biosafety in Microbiological and Biomedical
Laboratories, 4th Edition” (BMBL), used (see www.cdc.gov/od/ohs
) or formal arrangements
(i.e., MOU) established with a neighboring jurisdiction to provide this capability.
Yes/No
At least one laboratory exists within jurisdiction for testing of chemical agents or formal
arrangements (i.e., MOU) established with a neighboring jurisdiction to provide this
capability
Yes/No
Laboratory registration, operations, safety, and security are consistent with both the
minimum requirements set forth in Select Agent Regulation (42 CFR 73) and the USA
PATRIOT ACT of 2001(P.L. 107-56) and subsequent updates
Yes/No
Laboratory plans address developing and maintaining a public health laboratory information
website
Yes/No
178 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Public health laboratory website includes information about protocol updates for rule-out
testing
Yes/No
Public health laboratory website includes information about Department of Transportation
(DOT) compliant packaging and shipping
Yes/No
Public health laboratory website includes chain-of-custody guidelines Yes/No
Public health laboratory website includes CDC endorsed material on referral of clinical
human and Veterinary specimens
Yes/No
Public health laboratory website includes information about environmental samples Yes/No
Public health laboratory website includes information about suspect bioterrorism (BT)
isolates
Yes/No
Public health laboratory website includes information about bacterial and viral food borne
pathogens
Yes/No
The LRN reference laboratories maintains a ready supply of the reagents, not supplied by
CDC, required for rapid testing of biological threat agents at the reference level
Yes/No
Adequate amounts of required test reagents and materials are maintained by and
immediately available to LRN Reference and LRN Chemical laboratories during an
emergency event
Yes/No
Materials for chemical methods are available through commercial vendors and stocked by
chemical laboratories for use in an emergency
Yes/No
Laboratory system to receive and triage specimens and samples is in place Yes/No
Laboratory plans and procedures address compiling an all hazards team to address laboratory
testing
Yes/No
All-hazards team includes chemical terrorism (CT) laboratory coordinator (chemist or
medical technologist)
Yes/No
All-hazards team includes assistant CT laboratory coordinator Yes/No
All-hazards team includes bioterrorism laboratory coordinator Yes/No
All-hazards team includes biologic sentinel network liaison who is available 24/7/365 to
advise public health agencies, hospitals, private laboratories, first responders, HazMat teams,
local, State, and Federal law enforcement, the Army National Guard (WMD-CST), and
poison control
Yes/No
All-hazards team is capable of proper triage screening Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
biological/environmental sample
Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
biological/clinical specimen
Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
biological/food sample
Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
chemical/environmental samples
Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
chemical/clinical specimen
Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
chemical/food sample
Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
Yes/No
Target Capabilities List 179
PROTECT MISSION: LABORATORY TESTING
radiological/environmental sample
All-hazards team is capable of collection, packaging, labeling, and shipping of
radiological/clinical specimen
Yes/No
All-hazards team is capable of collection, packaging, labeling, and shipping of
radiological/food sample
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Pro.B1e 2.1.3 Participate in a CDC-approved proficiency testing program to assure laboratory competency
Pro.B1e 2.1.4
Participate in training provided by other Federal partners for the use of standardized methods to
detect and identify chemical and biological agents
Pro.B1e 2.1.5
Provide information and training on the use of appropriate safety and security equipment and
procedures
Pro.B1e 2.1.6
Train all LRN Sentinel laboratories in the use of LRN biological agent rule-out protocols,
specimen or isolate referral responsibilities and notification algorithms
Pro.B1e 2.1.7 Participate in CDC training to use standardized protocols to detect biological agents
Pro.B1e 2.1.8
Participate in CDC training as required for designated levels of chemical preparedness, e.g., LRN
Level-1, 2, or 3
Pro.B1e 2.2.5 Coordinate response planning, drills and exercises for the laboratory with all relevant partners
Preparedness Measures Metric
LRN Reference and LRN Chemical laboratories have internal competency training
program for LRN methods
Yes/No
Laboratory training includes CDC lab proficiencies, use of appropriate safety and security
equipment, biological agent rule-out protocols, specimens, or isolate referral
responsibilities and notification algorithms
Yes/No
Frequency with which LRN Reference laboratory offers training to LRN Sentinel
laboratories
Every 12 months
Percent of participating LRN Reference laboratories and Level-1 and Level-2 LRN
chemical laboratories that pass their proficiency tests according to CDC criteria
100%
Percent of LRN Sentinel and LRN Clinical Chemistry laboratories that participate in
State-developed training programs, i.e., by LRN Reference laboratories
(responsibility
aligns with Health Resources and Services Administration)
100%
Percent of participating LRN Level 1, 2, or 3 chemical laboratories that successfully
complete packaging and shipping exercises
100%
Frequency with which tests are conducted of select LRN Sentinel and LRN Clinical
Chemistry laboratory to reach a knowledgeable public health laboratory professional at
the jurisdictional confirmatory LRN Reference and LRN Chemical laboratories 24/7/365
by landline phone
Every 12 months
Frequency with which tests are conducted of select LRN sentinel and LRN clinical
chemistry laboratory to reach a knowledgeable public health laboratory professional at
Every 12 months
180 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
jurisdictional confirmatory LRN laboratory 24/7/365 by redundant means not dependent
on electricity, cellular/landline phone service, internet (e.g., radio/satellite phone)
Percent of LRN Sentinel laboratories within the LRN jurisdiction that successfully
acknowledge receipt of health alerts.
Note: Reference PHIN Preparedness Functional Area Partner Communication and
Alerting
100%
Frequency with which acknowledgement of receipt of health alerts that includes at least
one priority category (i.e., alert, advisory, update, etc.) is tested
Every 12 months
LRN Sentinel and LRN Clinical Chemistry laboratory staff are trained in the use of
standardized procedures for collecting and shipping clinical specimens.
Yes/No
Training includes International Air Transport Association (IATA), and US Department of
Transportation (DOT) packaging and shipping of infectious agents regulations
Yes/No
Performance Tasks and Measures/Metrics
Activity: Direct Laboratory Testing
Definition: Direct and coordinate local, State, and Federal public health, food testing, veterinary
diagnostic, and environmental testing laboratory efforts in response to biological and chemical
terrorism.
Critical Tasks
Pro.B1e 3.1.6
Coordinate laboratory activities with the Laboratory Response Network (LRN) within the
jurisdiction
Pro.B1e 3.1.1 Function as the gatekeeper for the Laboratory Response Network (LRN) within the jurisdiction
Pro.B1e 3.1.5 Operate laboratory within the Laboratory Response Network (LRN)
Pro.B1e 3.1.2 Function as Laboratory Response Network (LRN) Sentinel laboratories
Pro.B1e 3.1.3 Function as Laboratory Response Network (LRN) Chemical laboratories
Pro.B1e 3.2.2
Work in close partnership with public health epidemiology and environmental health, and poison
control to provide timely data to assure implementation of effective prevention, detection, and
control measures, including treatment
Performance Measures Metric
Percent of calls/inquiries received by the CDC LRN Coordinating Office for which a
response is initiated within 2 hours during an emergency
100%
Percent of calls/inquiries received by the CDC LRN Coordinating Office that require a
response for which a response is initiated within 24 hours on a routine basis
100%
Time is which public health department and other State and Federal partners are
notified of a high-level
threat credibility assessment of suspicious agent
Within 2 hours from
credibility assessment
Time in which key Federal , State, and local health partners (e.g. CDC, FBI) are
notified of presumptive identification of potential bioterrorism agent or communication
that signals a high index of suspicion
Within 3 hours of
presumptive identification
Target Capabilities List 181
PROTECT MISSION: LABORATORY TESTING
Activity: Sample and Specimen Management
Definition: Implement LRN established protocols /procedures for specimen collection, transport,
and testing.
Critical Tasks
Pro.B1e 4.1
Establish and maintain a jurisdiction-wide transport system to assure timely receipt of samples or
specimens for laboratory testing
Pro.B1e 4.2
Perform triage screening on environmental samples per Department of Homeland Security and
Environmental Protection Agency protocols
Pro.B1e 4.3
Communicate requirements for all-hazard specimen or sample collection, packaging, and
shipping to submitters, e.g., FBI, CST, first responders, HazMat Teams, and LRN Sentinel and
Clinical Chemistry Laboratories
Pro.B1e 4.4
Provide consultation to all submitters regarding appropriate collection and shipment of
specimens or samples for testing
Pro.B1e 6.3
Provide surge capacity for CDC to measure metabolites (e.g., of nerve agents, in clinical
specimens)
Performance Measures Metric
Time in which designated State LRN-1 Level 1 Chemical Laboratories to accept
clinical specimens begins analysis
Within 24 hours from
receiving the call for
assistance from CDC
Time in which laboratory health alert detailing laboratory related information
(including specimen collection, packaging, and shipping guidelines) is distributed after
health alert by agency epidemiologist, environmental health, or relevant partner is
distributed via HAN
Within 12 hours from
initial distribution
Time in which samples are shipped to an LRN reference laboratory with relevant
confirmatory capabilities
Within 2 hours from
presumptive identification
Time in which LRN reference laboratory (appropriate confirmatory capabilities)
confirms identification of agent
Within 48 hours of receipt
Percent of LRN reference laboratories that provide technical assistance to submitters
on errors within 3 business days of receipt of mislabeled, mis-packaged, and mis-
shipped packages
100%
Activity: Provide Surveillance Support
Definition: Provide support to agencies in chemical, biological, and radiological agent and public
health disease surveillance by testing and analyzing samples.
Critical Tasks
Pro.B1e 5.3.1
Acquire timely isolates of selected enteric and invasive biological agents from all LRN Sentinel
laboratories
Pro.B1e 5.3.2
Analyze quickly the isolates submitted by LRN Sentinel laboratories using advanced
technologies to rapidly identify and subtype isolates
Pro.B1e 5.3.3
Provide reference analysis and identification of unusual or emerging biological agents present in
communities
182 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Pro.B1e 5.2 Perform analyses for BioWatch 24/7/365
Pro.B1e 5.1.1
Enhance, in coordination with public health epidemiology partners, the capacity to apply
standardized molecular methods (e.g., DNA sequencing) in real-time to support surveillance and
outbreak investigations as appropriate
Performance Measures Metric
Percent of isolates for which pulse-field gel electrophoresis (PFGE) testing and analysis of data is
completed within 3 working days of receipt in the laboratory (or within 3 working days of
organism isolated in pure culture, if lab processes clinical specimen)
E. coli O157:H7
Listeria monocytogenes
(# of isolates that have PFGE patterns analyzed within 3 working days of
identification/denominator = # of isolates identified in lab)
Start time: Date and time isolate identified in lab
Stop time: Date and time PFGE sub-typing pattern analysis is complete
100%
Percent of PFGE patterns submitted to the National PulseNet Server (or the PulseNet Database
Team at CDC) that are designated with an official PulseNet pattern name within 3 working days of
submission.
E. coli O157:H7
Listeria monocytogenes
# of isolate patterns in the National PulseNet database that are given an official PulseNet pattern
name within 3 working days of submission/# of isolate patterns submitted to the National PulseNet
Server/database team
Start time: Date and time PFGE isolate pattern submitted to National PulseNet Server/database
team
Stop time: Date and time official PulseNet name is assigned to the submitted isolate pattern
100%
Percent of PFGE patterns and associated data submitted to the National PulseNet Server (or the
PulseNet Database Team at CDC) within one (1) working day of PFGE pattern analysis.
E. coli O157:H7
Listeria monocytogenes
(numerator = # of patterns submitted to PulseNet within 1 working day)
(denominator = # of isolates PFGE pattern-analyzed)
Start time: Date and time PFGE sub-type/pattern analysis complete
Stop time: Date and time PFGE sub-type/pattern is submitted to PulseNet server/team
100%
Activity: Detection Testing and Analysis
Definition: Test and analyze initial chemical, biological, and radiological samples to provide
presumptive agent identification or diagnosis.
Critical Tasks
Pro.B1e 6.2.5
Evaluate clinical specimens from patients exposed to chemical or radiochemical agents, e.g.,
tests for blood gases, CBC analysis, and enzyme levels (link with Health Resources and Services
Administration)
Pro.B1e 6.2.3
Test initial 20-40 clinical specimens to assess human exposure by measuring metabolites of
chemical agents (e.g., of nerve agents)
Target Capabilities List 183
PROTECT MISSION: LABORATORY TESTING
Pro.B1e 6.2.4 Test environmental samples for toxic industrial chemicals and materials
Pro.B1e 6.2.6
Identify all emerging infectious agents or possible bioterrorism agents using available LRN
protocols
Performance Measures Metric
Time in which specimen/sample is received at the public health laboratory following
high-level
threat credibility assessment of suspicious agent to
Within 6 hours from
identifying a suspicious
agent
Time LRN Reference Laboratory makes presumptive identification of agent by rapid
biological assays
Within 8 hours from
sample receipt
Time in which CDC Chemical laboratory conducts Rapid Toxic Screen on initial 20-40
specimens analyzed for 150 chemical agents (including nerve agents)
Within 36 hours from
receipt of specimens
(surge)
Activity: Confirm Testing
Definition: Test and analyze chemical, biological, and radiological samples to provide
confirmation agent identification or diagnosis.
Critical Tasks
Pro.B1e 7.2.3 Confirm results using CDC clinical chemical detection methods
Pro.B1e 7.1.1
Use standardized, Laboratory Response Network (LRN) protocols to detect emerging infectious
agents or possible bioterrorism agents in clinical specimens, food, or environmental samples
Pro.B1e 7.4 Verify reactive BioWatch samples
Pro.B1e 7.4.1
Verify reactive samples from the Biohazard Detection Systems (BDS) located in facilities of the
U.S. Postal Service (USPS)
Performance Measures Metric
Time in which sample is shipped to an LRN Reference Laboratory with relevant
confirmatory capabilities from the presumptive notification
Within 2 hours
Time from presumptive identification to confirmatory identification by LRN reference
laboratory
Within 48 hours
Activity: Support Public Health Epidemiological Investigations
Definition: Provide follow-up analytical and investigative support to epidemiologists, law
enforcement, and environmental health and/or poison control efforts to test additional specimens,
determine cause and origin of an event, definitively characterize an agent, and genotype disease
strains through LRN member labs.
Critical Tasks
Pro.B1e 3.2.2
Work in close partnership with public health epidemiology and environmental health, and poison
control to provide timely data to assure implementation of effective prevention, detection, and
control measures, including treatment
184 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Pro.B1e 8.3.2
Collaborate with law enforcement and perform testing of evidentiary samples (link to law
enforcement)
Pro.B1e 8.3.3
Test additional clinical specimens by CDC or another qualified select Laboratory Response
Network (LRN) Reference lab for retrospective assessment of chemical exposure following an
event
Pro.B1e 8.3.4 Coordinate testing of environmental samples for assessment and remediation
Pro.B1e 8.6
Isolate emerging infectious or biological threat agents tested by CDC and qualified select
Laboratory Response Network (LRN) reference laboratories using Clinical Laboratory
Improvement Act (CLIA) approved methods to determine the agent’s susceptibility to
antimicrobial drugs used for prevention and control
Pro.B1e 8.5
Use Clinical Laboratory Improvement Act (CLIA) approved methods for antimicrobial
susceptibility testing
Pro.B1e 8.7
Determine whether an emerging infectious disease agent or a biological threat agent consists of
single or multiple strains
Activity: Report Results
Definition: Report surveillance results to public health epidemiology officials and other decision-
makers.
Critical Tasks
Pro.B1e 3.2.3 Report surveillance results suggestive of an outbreak immediately to public health epidemiology
Pro.B1e 3.2.4
Report results of CDC chemical or biological testing to submitting LRN Reference and Chemical
laboratories through the secure LRN website
Pro.B1e 3.2.6
Report confirmed laboratory results to all submitters in a timely manner using PHIN-compliant
Laboratory Information Management Systems (LIMS)
Pro.B1e 6.4
Contact the nearest LRN Reference laboratory when unable to identify or rule-out emerging
infectious agents or possible bioterrorism agents
Pro.B1e 3.2.5
Notify appropriate public health, public safety, and law enforcement officials immediately (24/7)
of presumptive and confirmed laboratory results of a chemical and biological threat agent
Performance Measures Metric
Time in which appropriate Federal, State, and local officials, also including the
specimen/sample submitter, are notified of identification (positive or negative)
Within 1 hour from
confirmatory identification
Laboratory Response Network (LRN) reference laboratory has a Public Health
Information Network (PHIN)-compliant Laboratory Information Management System
(LIMS)
Yes/No
Target Capabilities List 185
PROTECT MISSION: LABORATORY TESTING
Linked Capabilities
Linked Capability Relationship
Emergency Public
Information and Warning
Laboratory Testing provides information for release to Emergency Public Information
and Warning.
Emergency Operations
Center Management
Laboratory Testing provides situation reports to Emergency Operations Center
Management. Emergency Operations Center Management provides situation reports
and resources to Laboratory Testing.
WMD and Hazardous
Materials Response and
Decontamination
WMD and Hazardous Materials Response and Decontamination provides samples for
testing to Laboratory Testing.
Epidemiological
Surveillance and
Investigation
Laboratory Testing provides lab results to Epidemiological Surveillance and
Investigation.
Food and Agriculture
Safety and Defense
Laboratory Testing provides lab results to Food and Agriculture Safety and Defense.
186 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Direct Public
Health
Laboratory
Testing
End: Return to pre-event
operation levels
Conduct Sample
and Specimen
Management
Planning
Logistics
Comm.
Coordinate
Supervise
Safety
Resource
Requests
Provide
Surveillance
Support
Report Results
Emergency Public
Information and
Warning
Report anomaly detection
No
Laboratory Testing Capability
Capability Activity Process Flow
Relationship
Linked
Capabilities
Routine
monitoring data
suggests unusual
event?
Confirm Testing
Conduct
Detection Testing
and Analysis
Emergency
Operations
Center
Management
Provide sitreps
WMD/Hazardous
Materials
Response and
Decontamination
Samples provided
Yes
Isolates and
patterns
identified
Presumptive
diagnosis/agent
identification provided
Diagnosis/agent
identification verified
Provide verified diagnosis/agent
identification
Epidemiological
Surveillance and
Investigation
Food and
Agriculture
Safety and
Defense
P
r
o
v
i
d
e
l
a
b
r
e
s
u
l
t
s
Provide presumptive diagnosis/agent identification
Provide information
for release
Resources provided
Support Public
Health
Epidemiological
Investigations
Analytical and investigative
support provided
Results provided
Target Capabilities List 187
PROTECT MISSION: LABORATORY TESTING
Resource Element Description
Resource Elements Components and Description
Laboratory Response Network
(LRN) National Level
Laboratories
Laboratories in the Laboratory Response Network (LRN) that have unique
resources to handle highly infectious agents and the ability to identify specific
agent strains. These include labs at CDC, the US Department of Agriculture,
the Food and Drug Administration (FDA), and other facilities run by Federal
agencies. National Laboratory at National Center for Environmental Health
capable of 24/7 coverage
Centers for Disease Control
(CDC) Chemical Laboratory
LRN Chemical Laboratory capable of advanced testing located in the National
Center for Environmental Health’s (NCEH’s) Division of Laboratory Sciences
State Public Health Laboratory State laboratory that performs testing and other laboratory services on behalf of
the entire jurisdiction, scanning the horizon for anything suspicious
LRN National Level Biological
Laboratory
LRN National Level Laboratory at Bioterrorism Preparedness and Response
Program (RRAT Lab) capable of 24/7 coverage. There are currently 3
National laboratories (CDC, DOD).
LRN Reference Laboratories Laboratories that can perform rapid tests to detect and confirm the presence of
a threat agent. These labs ensure a timely local response in the event of a
terrorist incident or other public health emergencies. There are currently 152
Reference laboratories for biological agents across the national (105 public
health, 15 military, 9 veterinary, 12 food, 8 international, 5 other Federal
laboratories).
LRN Chemistry Laboratories –
Level 1
Public health laboratories that comprise the chemical component of the LRN;
Level 1 laboratory personnel are trained to detect exposure to an expanded
number of chemicals in human blood or urine, including all Level 2 laboratory
analyses, plus analyses for mustard agents, nerve agents, and other toxic
chemicals
LRN Chemistry Laboratories –
Level 2
Public health laboratories that comprise the chemical component of the LRN;
they are designated as Level 3, 2, or 1, with increasing technical expertise.
Level 2 laboratory personnel are trained to detect exposure to a limited number
of toxic chemical agents in human blood or urine;
LRN Chemistry Laboratories –
Level 3
Public health laboratories that comprise the chemical component of the LRN;
Level 3 laboratories work with hospitals in clinical specimen
collection/storage/shipment and also work to help develop a coordinated
response plan for their State and/or geographical area.
LRN Sentinel Clinical Labs Laboratories that perform rule-out or refer testing to LRN Reference Level
Laboratory. There are about 4,500 laboratories nationally; majority are in-
hospital laboratories
CDC Coordinating Office for
LRN
Existing Personnel: 1 LRN Coordinator, 1 Program Manager, 1 Help Desk
Support, 1 Technical Officer, 1 Communication Officer (technical writing,
interface with CDC Office of Emergency Communication)
Surge: 1 LRN Coordinator, 3 Program Managers, 4 Help Desk Support on 12-
hour shifts, 2 Technical Officers, 1 Communication Officer (technical writing,
interface with CDC Office of Emergency Communication)
CDC Scientific Resources
Program/Biologics Branch
Existing Personnel: 6 – production, 2 – shipping, 6 inventory management
Surge Personnel: 12 – production, 4 – shipping, 12 inventory management
188 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Resource Elements Components and Description
CDC SME Existing personnel : < 1 per agent;
Surge personnel: 2 per agent
CDC Bioterrorism Rapid
Response and Advanced
Technology Laboratory
Existing personnel: 9 CDC laboratorians for short-term biological response
Surge Personnel: 15 laboratorians
LRN Partner Organizations Includes APHL, DOD, ASM, FBI, EPA, FDA, USDA/APHIS, DHS
Reagents A rapidly deployable repository of LRN reagents sufficient to meet current
needs and potential emergency surge needs Reagents for biological agent
testing and materials for chemical methods
Laboratory equipment Polymerase chain reaction (PCR) = Smart Cycler, Light Cycler, ABI 7500, or
ABI 7000
Time-resolved fluorescence (TRF) = Victor
LRN and biosafety training TRF Training – 2 day course provided by CDC (Atlanta); Conventional
Microbiology train-the-trainer one week course provided by CDC (location
varies); PCR Training
LRN lab credentials Select agent registration and staff security risk assessment approval
USDA/APHIS Regulations
CLIA (Clinical Laboratory Inspection Standards)
Accreditation from AAVLD (American Association Veterinary Laboratorian
Diagnosticians)
Courier system for sample
transport
System or contract to ensure secure transport of samples
Laboratory equipment and
supplies
Sufficient instrumentation and adequate supplies
CDC Directors Emergency
Operations Center (DEOC)
State and Local EOC
Planning Assumptions
Plans to augment the capacity of public health laboratories should include having or having access to
information systems that electronically send and receive test orders and results in compliance with
PHIN Functional Area for Connecting Laboratory Systems
Scenario-Specific
Laboratory Testing (Chemical Nerve Agent)
:
Assume 10,000 worried well; assume that 2,500 worried well population will require testing.
Scenario does not state exact number of worried well. Difficult to determine exactly what proportion
of the downwind population would fall in this category but assumed 80 percent for purposes of this
effort. Of these, assume 25 percent will require/request testing for exposure to nerve agents.
40 analyses per day per instrument.
Target Capabilities List 189
PROTECT MISSION: LABORATORY TESTING
13 instruments within Centers for Disease Control (CDC) and seven instruments within States can
perform analysis of nerve agent metabolites.
CDC stockpiles enough standards/materials to analyze 5,000 samples. Each of seven States
stockpiles enough standards/materials to analyze 500 samples. Total for CDC and States are 8,500
samples. Conducting additional analyses requires additional materials/standards.
Depending on how urgently results are needed, along with involving the States, additional
instruments in CDC’s laboratory can be ramped up quickly.
Currently, analytic resources are located at CDC (Atlanta) and 7 State health departments (California,
Florida, Michigan, Minnesota, New Mexico, New York and Virginia). Given the nature of the need
and this resource, a centralized/regionalized approach is acceptable.
Laboratory Testing (Biological)
Estimates address needs for communities to respond to this emergency once identified. Estimate does
not include needs for baseline resources needed for timely initial detection.
B. anthracis spores added directly to product without aerosolization.
Ground beef was sent San Diego, Seattle, and Phoenix.
Orange juice was sent to Albuquerque, Las Vegas and Palm Springs.
Patient presentations involved gastrointestinal, oropharyngeal and cutaneous forms of anthrax.
Laboratory confirmation by the Laboratory Response Network (LRN) occurred between days 2 and 5
after index case presentation.
Production facilities and distribution system mechanisms will be contaminated until formally
decontaminated.
Cases will continue sporadically following public health intervention due to consumers and retailers
failing to discard/return/destroy contaminated product.
No simultaneous disasters are occurring during the same time.
Assume multi-agency coordination is adequately being addressed at Federal (CDC, Food and Drug
Administration [FDA], USDA/APHIS [United States Department of Agriculture/Animal and Plan
Health Inspection Service, FBI), State, and local levels and the agencies are coordinating as expected.
Overall assumptions for LRN testing of specimens/samples: 1. All Reference LRN laboratories in the
affected jurisdictions have the testing capability for the agent. 2. For planning purposes, throughput
for four types of equipment available in the LRN Reference laboratory was provided. 3. There are a
sufficient number of trained personnel to operate the equipment. 4. There is sufficient availability of
reagents.
Factors that could affect the number of specimens/samples calculated assuming laboratorians perform
three runs in each shift include time involved to set up the assay, machine capacity, personnel shift
duration, condition specimen/sample arrived in, physical working space, individual pace of
laboratorian.
For LRN Sentinel laboratories, the first 1,000 patients are distributed evenly among the six affected
cities resulting in an even distribution of laboratory rule-out tests (approximately 167 per city), which
would result in approximately 16 tests per Emergency Room. The burden on the LRN Sentinel
laboratories for foodborne anthrax is inconsequential.
Case definition by epidemiologists will be created within the first 10 days resulting in no further rule-
out testing at the LRN Sentinel laboratories following the first 1,000 patients.
Assume a concurrent Law Enforcement Investigation.
190 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource
Element
Estimated Capacity Scenario
Requirement Values
Quantity of
Resources Needed
Centers for Disease
Control (CDC)
Chemical
Laboratory
Days 1-5: 80 samples/day
using 2 instruments (1
instrument can process 40
samples/day)
Days 6-10: 320 samples/day
using an additional 6
instruments (8 instruments
total, so 8*40=320)
520 samples/day using all
instruments available (13
instruments total, so
13*40=520)
Testing for 350 injured
people (assume testing 2
samples per person) = 700
2500 tests performed for
worried well
Total = 3200 samples
CDC stockpiles enough
standards/materials to
analyze 5,000 samples.
1 resource organization
(either CDC alone or CDC
and affiliated State chemical
laboratories).
Based on urgency:
approximately 4 weeks if
only CDC is involved. With
involvement of State public
health laboratories, priority
analysis of the first 350
samples (one sample from
each of the injured people)
could be completed in a
matter of days
State Public Health
Laboratories
5 States are currently
capable to perform nerve
agent analysis.
Each laboratory can analyze
40 samples/day.
= 200 samples/day capacity
Total = 3200 samples
Depends on how quickly
analyses need to be
completed (See above)
LRN National Level
Biological
Laboratory
CDC would accept
specimens/samples for
susceptibility testing and
genotyping.
1 CDC laboratory
LRN Reference
Laboratories
LRN reference laboratories
in the affected cities would
handle test volume in that
area; assume a 12-hour shift
and a 30-day time period
For planning purposes,
assume 8235 specimens
Each state at a minimum
should have access to a
reference laboratory.
If Victor equipment = 14
pieces of equipment needed
If ABI 7000 = 3 machines
needed
If Light Cycler = 11
machines needed
If Smart Cycler = 23
instruments needed
LRN Chemistry
Laboratories – Level
1
LRN Chemistry
Laboratories – Level
2
Target Capabilities List 191
PROTECT MISSION: LABORATORY TESTING
Resource
Element
Estimated Capacity Scenario
Requirement Values
Quantity of
Resources Needed
LRN Sentinel
Clinical
Laboratories
Existing Sentinel lab
personnel will support the
required testing
CDC Coordinating
Office for LRN
CDC Scientific
Resources
Program/Biologics
Branch
CDC SME
CDC Bioterrorism
Rapid Response and
Advanced
Technology
Laboratory
LRN Partner
Organizations
All other organization
involvement is scenario
specific
1 APHL Gatekeeper, 1
DOD Gatekeeper, and 1
FDA Gatekeeper
Reagents (CDC)
(Food borne/Plague) -- One
specimen per suspected case
will be sent to the LRN for
testing; additional 15% of
tests will be conducted for
quality control; polymerase
chain reaction (PCR) kits
can complete 500 tests per
kit using smart cycler or
light cycler; PCR kits can
complete 1,000 tests per kit
using ABI 7000 equipment;
TRF kits can complete 60
tests per kit using Victor
equipment
(Aerosolized Anthrax)
Cannot determine lab
requirements because
scenario involves
undetermined
environmental exposure
which will require extensive
sampling for source
identification and
decontamination efforts
(Foodborne)
Approximately 7000
suspected cases will result
in 7000 specimens and 1235
controls for a total of
approximately 8235 tests;
does not include food
samples that would also be
tested at LRN laboratory in
response to this event
(Plague) Dependent on Epi
calculations, not yet
complete
(Aerosolized Anthrax) In
Anthrax event of 2001,
125,000 environmental
samples for less than 10
victims
(Pandemic Flu) Cannot
determine because assays
under development
(Foodborne) Assuming all
tests are conducted at one
LRN, the lab would need 16
PCR kits if at same LRN
using smart cycler or light
cycler equipment; 9 PCR
kits if at same LRN using
ABI7000 equipment; 138
TRF kits if at same LRN
using TRF equipment; does
not include reagents needed
for food samples that would
also be tested at LRN
laboratory in response to
this event
(Plague) Dependent on Epi
calculations, not yet
complete
192 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
Approaches for Large-Scale Events
Pandemic Flu – For all teams, the work force will be diminished by one-third. The need for
epidemiologic investigation will be far reduced relative to surveillance needs. Resource needs for
pandemic flu are orders of magnitude greater.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
CDC Chemical
Laboratory
Federal
Resource
Organization
1 Nationally Federal
(HHS/CDC)
Provide
Surveillance
Support
Detection and
Analysis
Confirmation
Testing
Investigation and
Follow-up
Laboratory Support
LRN National
Level Biological
Laboratory
Federal
Resource
Organization
1 Nationally Federal
(HHS/CDC)
Provide
Surveillance
Support
Detection and
Analysis
Confirmation
Testing
Investigation and
Follow-up
Laboratory Support
LRN Reference
Laboratories
Non-NIMS
Resource
Organization
1 Minimum per State
(152 Nationally)
State/Federal Provide
Surveillance
Support
Detection and
Analysis
LRN Chemistry
Laboratories –
Level 1
Non-NIMS
Resource
Organization
10 Nationally Federal
Provide
Surveillance
Support
Detection and
Analysis
LRN Chemistry
Laboratories –
Level 2
Non-NIMS
Resource
Organization
36 Nationally State/Local
Provide
Surveillance
Support
Detection and
Analysis
Target Capabilities List 193
PROTECT MISSION: LABORATORY TESTING
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
LRN Sentinel
Clinical
Laboratories
Non-NIMS
Resource
Organization
4,000 Nationally State/Local Sample and
Specimen
Management
Reagents
Equipment As needed Per laboratory Federal/State/
Local
Sample and
Specimen
Provide
Surveillance
Support
Detection and
Analysis
Confirmation
Testing
Investigation and
Follow-up
Laboratory Support
Courier system for
sample transport
Non-NIMS
Resource
Organization
1 Per State State Sample and
Specimen
Management
Laboratory
Equipment and
Supplies
Equipment As needed Per laboratory Federal/State/
Local
Sample and
Specimen
Provide
Surveillance
Support
Detection and
Analysis
Confirmation
Testing
Investigation and
Follow-up
Laboratory Support
CDC Director’s
Emergency
Operations Center
(DEOC)
Non-NIMS
Resource
Organization
1 Nationally Federal
(HHS/CDC)
Direct Laboratory
Testing
State and Local
EOC
Resource
Organization
1 Per State and/or
affected local
jurisdiction
State/Local Direct Laboratory
Testing
References
1. Homeland Security Presidential Directive/HSPD-8, “National Preparedness”. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html
2. National Response Plan (NRP) Department of Homeland Security. December 2004.
194 Target Capabilities List
PROTECT MISSION: LABORATORY TESTING
3. National Incident Management System (NIMS). Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf
4. Bravata, D, McDonald, K, Owens, D et al. Bioterrorism Preparedness and Response: Use of Information
Technologies and Decision Support Systems. Evidence Report/Technology Assessment No 59, HRQ
Publications No. 02-E028. Agency for Healthcare Research and Quality. June 2002.
http://www.ahrq.gov/clinic/epcsums/bioitsum.pdf
5. Syndrome and Outbreak Detection Using Chief-Complaint Data: Experience of the Real-Time Outbreak and
Disease Surveillance Project. Morbidity and Mortality Weekly Report. September 2004.
http://www.cdc.gov/mmwr/preview/mmwrhtml/su5301a7.html
6. Epidemic Intelligence Service. Center for Disease Control. 2004. http://www.cdc.gov/eis
7. State Public Health Preparedness and Response Capacity Inventory; Version 1.1. Centers for Disease Control
and Prevention. December 2002.
http://www.phppo.cdc.gov/od/inventory/docs/State%20Inventory%20version%201_1_FINAL.pdf
8. Bioterrorism and Public Health Emergency Preparedness and Response: A National Collaborative Training
Plan. Centers for Disease Control and Prevention. February 2002.
http://www.phppo.cdc.gov/owpp/docs/library/2002/BioTerrorism%20National%20Training%20Plan
%20Exec%20Sum.pdf
9. National Bioterrorism Hospital Preparedness Program, Continuation Guidance. Department of Health and
Human Services, Health Resources and Services Administration. 2005.
http://www.hrsa.gov/grants/preview/guidancespecial/hrsa05001.htm
10.
FY05 CDC Public Health Preparedness and Response Cooperative Agreement. 2005.
http://www.bt.cdc.gov/planning/guidance05/index.asp
11. U.S. Department of Health and Human Services Strategic Plan to Combat Bioterrorism and Other Public Health
Threats and Emergencies. October 2003.
http://www.hhs.gov/emergency/index.shtml#bioterrorism
12. Ready or Not…Chemical Terrorism Project. Association of Public Health Laboratories (APHL). July 2003.
www.aphl.org
13. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program,
http://mmrs.fema.gov
Target Capabilities List 195
Respond Mission Area
Target Capabilities
196 Target Capabilities List
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Target Capabilities List 197
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
ON-SITE INCIDENT MANAGEMENT
Capability Definition
Onsite Incident Management is the capability to effectively direct and control incident activities by using
the Incident Command System (ICS) consistent with the National Incident Management System (NIMS).
Outcome
The event is managed safely, effectively and efficiently through the common framework of the Incident
Command System.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
All Emergency Support Functions (ESFs) are coordination (resource providing) functions, thus ESFs are
not involved in on-scene command. The ESFs work through coordination centers to provide the incident
management organization with the resources it needs. Command is generally a local/county or State
responsibility.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B1a 1.1.2
Develop NIMS-compliant plans and standard operating procedures (SOPs) for emergency
response operations within the jurisdiction
Res.B1a 1.1.3
Develop jurisdiction emergency management plans and SOPs that are compatible and integrate
support for unified command during operations
Res.B1a 1.2.1 Pre-identify resources available to supplement command and control capabilities
Res.B1a 1.1.1 Develop processes to order, track, and assign incident resources
Res.B1a 1.1.2 Develop systems for tracking on-site incident resources and personnel
Preparedness Measures Metrics
Emergency management plans and SOPs include a formal process for activating onsite
incident management for large and complex events
Yes/No
Emergency management plans and SOPs include are based on a formal assessment of
risks and vulnerabilities
Yes/No
Emergency management plans and SOPs address establishing incident command (e.g., IC
posts, staging areas, command and general staff)
Yes/No
Emergency management plans and SOPs address the process for developing an incident
action plan (e.g. to establish priorities, procedures, actions to meet incident objectives)
Yes/No
Emergency management plans and SOPs address command management (e.g.,
transitioning from Incident Command to Unified Command, interface with agency
administrators like municipal executives)
Yes/No
198 Target Capabilities List
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Emergency management plans and SOPs address communication requirements (e.g.,
maintaining communications with responding units, dispatching centers, EOC)
Yes/No
Emergency management plans and SOPs address demobilization of onsite incident
management (e.g. transition from IC to recovery management, incident resources are
returned to normal service)
Yes/No
Incident Command Post is equipped with processes and/or technologies to maintain
accountability of deployed resources and personnel
Yes/No
Incident Command Post is equipped with ability to display real-time video feed of
incident site (large cities only)
Yes/No
Standard Operating Procedure (SOP) is in place to provide Incident Commander with
observation trips for aerial view or satellite imaging of incident (large cities only)
Yes/No
Plans and SOPs are NIMS-compliant and support multi-agency response operations Yes/No
Electronic personnel tracking system is in place with ability to transmit personnel
information to Department Operations Center (large cities only)
Yes/No
Command Post is equipped with ability to receive information from Command and
General Staff and participating agencies and transmit IAPs and other documentation
Yes/No
A records management system is in place (or is accessible) to order, track, and assign
incident resources and to identify personnel who need training
Yes/No
Emergency management plans and procedures include processes for ensuring the safety,
security, structural integrity, and self-sufficiency of facilities used for onsite incident
management facilities
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B1a 2.1.1 Train personnel in accordance with NIMS typing
Res.B1a 2.2.1 Exercise personnel in accordance with NIMS typing
Res.B1a 2.1.3 Arrange for command and elected officials to attend NIMS and other applicable training
Res.B1a 2.1.2
Develop a records management system to identify appropriate personnel who lack Incident
Command System (ICS) training, and provide automated notification of training opportunities
Preparedness Measures Metric
Percent of capability staff and elected officials trained and exercised on their roles and
responsibilities for implementing National Incident Management System (NIMS) during
an incident
100%
Percent of command staff (police, fire, EMS, public health) with training on how ICS will
be applied locally
90%
Percent of personnel trained and exercised on incident command and management
protocols and procedures in compliance with NIMS
100%
Personnel have had experience (e.g.,. through exercises) in activating and implementing
onsite incident command operations
Yes/No
Target Capabilities List 199
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Performance Tasks and Measures/Metrics
Activity: Direct On-Site Incident Management
Definition: In response to indication of an incident, implement management, planning, and
coordination of on-site incident
Critical Tasks
Res.B1a 3.3.6.1 Establish and maintain communications with EOC, dispatch center, and responding units
Res.B1a 3.3.6.2 Direct and coordinate with arriving local, tribal, regional, State, and Federal first responders
Res.B1a 3.3.4 Monitor/measure performance of assigned resources and request additional resources as needed
Performance Measures Metric
Time in which additional resources are requested following initial scene
assessment
Within 5 minutes from
completion of assessment
Frequency with which resources are tracked and managed from arrival on-
scene or at staging area until release
Continuous
Time in which communication is established with appropriate local, State, and
Federal response entities
Within 30 minutes from arrival
Activity: Implement On-Site Incident Management
Definition: In response to an incident, arrive on scene and provide initial scene report while
beginning response operations; carry out management, planning, and coordination of on-site
incident
Critical Tasks
Res.B1a 4.1.1 Conduct initial assessment (size-up) (first arriving units)
Res.B1a 4.1.2 Determine initial incident site perimeter (first arriving unit)
Res.B1a 4.2 Initiate and implement the Incident Command System (ICS)
Res.B1a 4.2.5 Transfer command between oncoming and outgoing Incident Commander as appropriate
Res.B1a 4.2.4 Request additional resources as necessary for operations and on-site incident management
Performance Measures Metric
Frequency with which resources are tracked and managed from arrival on-
scene or at staging area until release
Continuous
Frequency with which communication is established with appropriate local,
tribal, regional, State, and Federal response entities
Continuous
Time in which initial incident conditions are reported to responding units Within 2 minutes from arrival of
first unit on scene
200 Target Capabilities List
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Activity: Establish Full On-Site Incident Command
Definition: Establish staff and facilities necessary to conduct on-site incident command
Critical Tasks
Res.B1a 5.1 Establish Incident Command (IC)
Res.B1a 5.1.2 Establish the command structure to manage the incident and meet objectives
Res.B1a 5.1.3
Establish branches, groups, and divisions needed to manage the incident and meet incident
objectives, strategies, and tactics
Res.B1a 5.1.1
Establish an incident command post (ICP), incident bases, camps, staging areas, helispot or
helibase, and other facilities as required
Res.B1a 4.2.1
Establish communications with emergency operations center multi-agency coordinating center
(EOC/MACC)
Res.B1a 4.2.1.1
Maintain communications with emergency operations center multi-agency coordinating center
(EOC/MACC)
Res.B1a 4.2.2
Coordinate operations with specialized emergency response teams (e.g. SWAT/tactical, bomb
squad/explosives, HAZMAT, Land-based Search and Rescue)
Res.B1a 5.3.2
Transition from incident command to unified command for incidents involving multiple
jurisdictions, a single jurisdiction with multi-agency involvement, or multiple jurisdictions with
multi-agency involvement
Res.B1a 5.2 Implement processes to order, track, and assign incident resources
Performance Measures Metric
Time in which on-site incident command is established Within 5 minutes from arrival
of the first unit on scene
Time in which the Incident Commander designates command and general staff,
dependent upon complexity and scope of incident
Within 30 minutes from
establishment of command
Command is successfully transferred to incident command organization able to
manage the level of complexity and achieve the incident objectives
Yes/No
Activity: Conduct Resource Management
Definition: Implement policies and procedures to ensure the provision and tracking of all
necessary resources
Critical Tasks
Res.B1a 5.2 Implement processes to order, track, assign and release incident resources
Res.B1a 3.3.4 Monitor/measure performance of assigned resources and request additional resources as needed
Res.B1a 5.2.2
Request mutual aid through the EOC and Multi-Agency Coordination (MAC) Group ordering
process
Res.B1a 4.2.3 Direct and coordinate with arriving local, tribal, regional, State, and Federal first responders
Performance Measures Metric
Percent of resources tracked throughout incident 100%
Target Capabilities List 201
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Activity: Develop Incident Action Plan (IAP)
Definition: Develop all necessary components of the IAP and obtain approval
Critical Tasks
Res.B1a 6.1 Establish incident objectives, priorities, and operational periods
Res.B1a 6.2
Develop the incident action plan (IAP) to establish priorities, procedures, and actions to be
accomplished to meet the incident objectives
Res.B1a 6.2.1.1 Obtain IC/UC approval of IAP
Res.B1a 6.1.1 Establish operational period, not to exceed 24 hours
Performance Measures Metric
Initial incident priorities and objectives are effectively communicated Yes/No
Time in which Incident Action Plan (IAP) is developed and approved Within 12 hours from designation of
command and general staff
Incident Action Plan (IAP) incorporates Incident Command System (ICS)
management structures in accordance with the National Incident
Management System (NIMS)
Yes/No
IAP clearly states measurable incident objectives and communicates
strategies and tactics required to fulfill the incident objectives throughout the
entire operational period
Yes/No
Activity: Execute Plan
Definition: For each operational period, distribute Incident Action Plan (IAP) to response
organizations for their assigned operations. The IAP is implemented to achieve the desired
incident objectives
Critical Tasks
Res.B1a 7.1.1 Disseminate IAP to other response organization through operational briefing
Res.B1a 7.3 Direct efforts to meet incident objectives in accordance with current IAP
Res.B1a 7.5.1 Review progress towards meeting incident objectives
Res.B1a 7.3.2 Direct efforts to achieve personnel accountability
Res.B1a 7.3.3 Develop mechanisms for controlling incident
Res.B1a 7.3.5 Consider potentially impacted areas
Res.B1a 7.3.4 Update IAP based on review of resource requirements
Res.B1a 7.5.1 Evaluate, revise and prioritize tactics to meet incident developments
Performance Measures Metric
Time in which IAP is shared with other agencies and organizations at each
operations briefing
Within 30 minutes from IAP approval
202 Target Capabilities List
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Formal operational briefings are conducted at the start of each operational
period
Yes/No
Incident objectives are accomplished through strategic and tactical actions Yes/No
Potentially impacted areas are considered Yes/No
IAP is re-assessed, revised, distributed, and briefed at least at the start of
each new operational period
Yes/No
All on-site management activities are coordinated through the Incident
Command System (ICS)
Yes/No
Activity: Demobilize On-Site Incident Management
Definition: Upon completion of the incident, implement demobilization plan and/or transition to
recovery operations
Critical Tasks
Res.B1a 8.1 Implement demobilization plan
Res.B1a 8.3 Transition incident command to recovery management
Res.B1a 8.2 Monitor demobilization/transition process
Performance Measures Metric
Demobilization is implemented in accordance with demobilization plan Yes/No
Effective transition is made from the on-site Incident Commander to recovery manager Yes/No
Incident resources are returned to normal service when no longer needed Yes/No
Linked Capabilities
Linked Capability Relationship
Emergency Operations Center
Management
On-Site Incident Management requests resources from the EOC and provides
regular situation reports on incident response operations.
Critical Resource Logistics and
Distribution
On-Site Incident Management receives resource requests and coordinates
resource allocation.
Fire Incident Response Support On-Site Incident Management receives resource requests and incident updates.
Emergency Public Safety and
Security Response
On-Site Incident Management requests public safety resources and coordinates
resource allocation.
Responder Safety and Health On-Site Incident Management provides resources and processes resource
requests.
Explosive Device Response
Operations
On-Site Incident Management provides resources and processes resource
requests specific to EDRO
Fatality Management On-Site Incident Management processes resource requests and coordinates
fatality management with the appropriate agencies/organizations.
Target Capabilities List 203
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Linked Capability Relationship
Search and Rescue (Land-Based) On-Site Incident Management coordinates with Search and Rescue (Land-
Based) to determine resource needs and identify the scope of the incident.
WMD and Hazardous Materials
Response and Decontamination
On-Site Incident Management provides resources and requests technical
assistance on CBRNE incidents.
Mass Care (Sheltering, Feeding,
and Related Services)
On-Site Incident Management processes resource requests and provides
assistance to shelter impacted individuals.
Epidemiological Surveillance and
Investigation
On-Site Incident Management coordinates with public health when the incident
is expected to have adverse human effects.
Emergency Triage and Pre-
Hospital Treatment
On-Site Incident Management coordinates with EMS and hospitals to ensure
rapid triage, treatment, and transport of impacted individuals while tracking the
quantity, destination, and disposition of patients leaving the incident site.
Emergency Public Information
and Warning
On-Site Incident Management provides support and coordination to ensure
prompt warning and notification to the public.
Citizen Evacuation and Shelter-
In- Place
On-Site Incident Management receives protective action decisions and
provides support and coordination to ensure citizens receive correct
information regarding the need to shelter in place or evacuate.
204 Target Capabilities List
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Direct On-Site
Incident
Management
End: Command
transitions to
recovery
Implement On-Site
Incident
Management
Start: Indication
of an incident
Emergency
Operations
Center
Management
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Critical Resource
Logistics and
Distribution
Emergency
Triage and Pre-
Hospital
Treatment
Responder Safety
and Health
Initial units dispatched to incident scene
Establish Full On-
Site Incident
Command
Ready to manage
incident
Command and General
staff identified
Develop Incident
Action Plan (IAP)
Identification of resource needs (ongoing)
Execute Plan
Plan created
Demobilize On-
Site Incident
Management
IAP is shared with other response agencies
Sitrep provided
Incident resolved
Explosive Device
Response
Operations
Fatality
Management
Emergency
Public Information
and Warning
Search and
Rescue (Land-
Based)
Citizen
Evacuation and
Shelter-In-Place
WMD/Hazardous
Materials
Response and
Decontamination
Mass Care
(Sheltering,
Feeding, and
Related Services)
Provide sitrep
Provide acquired
patient information
Provide sitrep
Notified of PADs
Resources requested
Provide sitrep
Provide resources
Resources
requested
Support and
coordinate information
Support and
coordinate information
Provide resources
Request resources
Resources provided
Linked
Capabilities
Relationship
Capability Activity Process Flow
Onsite Incident Management
Capability
Plan
evaluated
Plan
updated
Epidemiological
Surveillance and
Investigation
Conduct Resource
Management
Resources managed
Fire Incident
Response Support
Emergency
Public Safety and
Security Response
Target Capabilities List 205
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Resource Element Description
Resource Elements Components and Description
Type IV Incident Management
Team
NIMS Typed Resource. Type IV IMTs are designated teams of fire, EMS,
and/or law enforcement officers from a region or single jurisdiction (city or
county), activated to manage a major or complex incident during the first 6-12
hours and possibly transition to a Type III IMT. Capable of functioning in an
incident management function that may involve resources from multiple
agencies from the discovery of and arrival at an incident up to and including a
full operational period as defined by the agency or jurisdiction.
Type III Incident Management
Team
NIMS Typed Resource. Type III IMTs are standing teams of trained personnel
from different departments, organizations, agencies, and jurisdictions within a
State or metropolitan region, deployed within a State or region to manage or
support incident management at incidents that extend beyond one operational
period and possibly transition to a Type II or Type I IMT. Capable of
functioning in an incident management function that involves resources from
multiples agencies and jurisdictions from local to Federal levels for multiples
operational periods.
Type II Incident Management
Team
NIMS Typed Resource. Type II IMTs are Federally or State-certified standing
team comprised of up to approximately 38 members qualified and certified
through the National Wildfire Coordinating Group (NWCG) qualification
process. A Type II IMT may be self-contained and is typically deployed to
incidents of regional significance. Capable of functioning in an incident
management function that involves utilization of significant numbers of State
and Federal-level resources.
Type I Incident Management
Team
NIMS Typed Resource. Type I Incident Management Teams (IMTs) are
Federally or State-certified standing teams comprised of approximately 38
members qualified and certified through the NWCG qualification process. A
Type I IMT is the most robust IMT with the most experience; is fully equipped
and self-contained and is typically deployed to catastrophic events. Capable of
functioning in an incident management function that involves utilization of
significant numbers of Federal-level resources.
Federal Incident Response
Support Team (FIRST)
Per the National Response Plan, a quick and readily deployable Emergency
Response Team providing on-scene support to the local incident command.
The FIRST is a forward extension of the Emergency Response Team-
Advanced (ERT-A) providing the ERT-A Team Leader and, after a Stafford
Act Declaration, the Federal Coordinating Officer (FCO). FIRST has an
Incident Command System (ICS) structure and each team has five permanent
team members including a Team Leader, Operations Section Chief, Planning
Section Chief, Logistics Section Chief, and a Communications Unit Leader. A
State may chose to assign a person(s) to respond with the FIRST. Other
Federal expertise may be assigned to augment the FIRST on an as-needed
basis. The FIRST is considered a National Asset but is stationed in a FEMA
Region and on a day-to-day basis reports to the Regional Response and
Recovery (R&R) Division Director
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the “Toxic Industrial Chemical” scenario. Other
206 Target Capabilities List
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
scenarios were reviewed to identify required adjustments or additions to the planning factors and
national targets
Any scenario might require the combined efforts of responders from various local, State, regional,
private sector, and Federal entities to carry out sustained support for emergency operations and
expand the Incident Command System (ICS) to an inter-jurisdictional and national focus. The
coordination of the ICS will be critical in this regard to avoid duplication of effort and to manage
strained resources. While the focus would be on response, it is important to note that some scenarios
can impact a large geographical area in a relatively short period of time (e.g., when hazards are fast-
moving).
Establishment of an intelligence/investigation function will be required if the event is terrorist-
initiated and, as such, is a criminal act that will require coordinated intelligence gathering and
analysis and extensive criminal investigation.
Type V IMTs are a “pool” of primarily fire officers from several neighboring departments, trained to
serve in Command and General Staff positions during the first 6-12 hours from a major or complex
incident and possibly transition to a Type IV or Type III IMT.
Complex incident management-unified incident command will have to be established immediately.
Multi-agency coordination will be required.
Resource management processes will have to be established immediately.
An inadequate number of first responder resources will be available to manage the entire incident
scene as it grows due to the wind transportation of toxic chemicals.
Incident command post, incident base camps, staging areas, and decontamination sites will have to be
established.
The multi-agency coordinating group and incident communications management required to
supplement dispatch centers and Emergency Operations Centers (EOCs) will be overwhelmed from
the onset.
Responder care issues will have an immediate impact on the emergency response system.
All incidents will be managed using the National Incident Management System/Incident Command
System (NIMS/ICS) at the local level. Expanding or complex incidents may require transitioning
incident management to a Type III, Type II, or Type I Incident Management Team (IMT).
“Drawdown” of Type I and Type II IMTs due to significant wildfire activity results in increased use
of Type III IMTs at catastrophic events.
Hazardous conditions, weather, size of area, scope, access, and criminal activity (hazard) affect how
quickly incident scene can be sized up.
The Toxic Industrial Chemical scenario involves a fire and toxic industrial chemical release from a
petroleum refinery caused by terrorist attack using rocket-propelled grenades and explosive devices.
There are 350 fatalities, 1,000 hospitalized victims, 10,000 evacuated, 1,000 seeking shelter, 25,000
shelter-in-place, and 100,000 self-evacuating. One-half of the structures at the refinery are damaged
from explosions.
Target Capabilities List 207
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Toxic Industrial Chemical
)
Resource
Organization
Estimated
Capacity
Scenario
Requirement Values
Quantity of Resources
Needed
Type III Incident
Management Team
One Team can
respond to one
moderate/complex
incident
All-risk incident
Single or unified command
Assume 100-200
responders in operations
section
1 IMT; if incident is a long-
duration incident, it may
require a transition of a new
IMT
Type II Incident
Management Team
One Team can
respond to one
moderate/complex
incident
All-risk incident
Single or unified command
Assume 200-500
responders in operations
section
1 IMT; if incident is a long-
duration incident, it may
require a transition of a new
IMT
Type I Incident
Management Team
One Team can
respond to one
complex incident
All-risk incident
Single or unified command
Assume 500+ responders in
operations section
1 IMT; if incident is a long-
duration incident, it may
require a transition of a new
IMT
Approaches for Large-Scale Events
National ICS positions and qualification standards need to be established by the NIMS Integration
Center (NIC) using existing standards established for IMTs by the National Fire Protection
Association (NFPA), National Wildfire Coordinating Group (NWCG), U.S. Department of
Agriculture (USDA), U.S. Coast Guard (USCG), and U.S. Fire Administration.
Increase the local-level Type III and IV IMT training using existing programs such as that of the U.S.
Fire Administration. Use subject matter experts (SMEs) from local, State, and Federal agencies
certified/qualified in ICS to accomplish national training needs.
The NIMS Integration Center (NIMS) needs to establish training and exercise requirements; use those
established by NWCG, USDA, and USCG.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Type IV Incident
Management Team
NIMS-Typed
Resource
1 Per large cities,
counties, or regions
Local All Activities
Type III Incident
Management Team
NIMS-Typed
Resource
1 State and UASI
Regions
State/Local
(City)
All Activities
Type II Incident
Management Team
NIMS-Typed
Resource
1 Per State with high
occurrence, or per
regional area available
to multiple States
State All Activities
208 Target Capabilities List
RESPOND MISSION: ON-SITE INCIDENT MANAGEMENT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Type I Incident
Management Team
NIMS-Typed
Resource
6
Nationally,
strategically placed
Federal All Activities
Federal Incident
Response Support
Team
NIMS-Typed
Resource
1 Nationally Federal All Activities
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S.
Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
5. Statement of Requirements for Public Safety Wireless Communications & Interoperability. Version 1.0. U.S.
Department of Homeland Security, SAFECOM Program. March 2004.
http://www.safecomprogram.gov/SAFECOM/library/technology/1200_statementof.htm.
6. Telecommunications. Washington Military Department, Emergency Management Division. 2004.
http://emd.wa.gov/6-rr/com/com-idx.htm.
7. Incident Communications Emergency Plan, ICEP–2004. U.S. Department of Homeland Security. 2004.
8. NFPA Standard on Incident Management Professional Qualifications
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1026
9. NFPA 1561: Standard on Emergency Services Incident Management System
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561
10. FEMA 508-2 Typed Resource Definitions – Incident Management Resources, July 12, 2005
http://www.fema.gov/pdf/emergency/nims/incident_mgmt.pdf
11. NFPA 1021, Standard for Fire Officer Professional Qualifications, National Fire Protection Association, 2003
Edition, http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1021.
12. NFPA 1500, Standard on Fire Department Occupational Safety and Health Program, National Fire Protection
Association, 2002 Edition, http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500.
13. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa.
14. Emergency Management Accreditation Program Standards. September 2003.
http://www.emaponline.org/index.cfm.
15. Code of Federal Regulations, Title 10, Part 835; Title 10, Volume 4, Parts 500 to end. U.S. Government
Printing Office. 2001.
16. National Disaster Medical System. U.S. Department of Homeland Security. 2004. http://ndms.dhhs.gov/.
17. NFPA 1561: Standard on Emergency Services Incident Management Systems. National Fire Protection
Association. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561.
Target Capabilities List 209
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
EMERGENCY OPERATIONS CENTER
MANAGEMENT
Capability Definition
Emergency Operations Center (EOC) Management is the capability to provide multi-agency coordination
(MAC) for incident management by activating and operating an EOC for a pre-planned or no-notice
event. EOC management includes EOC activation, notification, staffing, and deactivation; management,
direction, control, and coordination of response and recovery activities; coordination of efforts among
neighboring governments at each level and among local, regional, State, and Federal EOCs; coordination
public information and warning; and maintenance of the information and communication necessary for
coordinating response and recovery activities. Similar entities may include the National (or Regional)
Response Coordination Center (NRCC or RRCC), Joint Field Offices (JFO), National Operating Center
(NOC), Joint Operations Center (JOC), Multi-Agency Coordination Center (MACC), Initial Operating
Facility (IOF), etc.
Outcome
The event is effectively managed through multi-agency coordination for a pre-planned or no-notice event.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports Emergency Support Function (ESF) #5: Emergency Management.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
ResB1c 1.1.1 Develop standard operating procedures for activation, operation, and deactivation of EOC
Res.B1c 1.1.2 Develop security and access control plans for EOC
Res.B1c 1.1.3 Develop, adapt, or implement plans to support the IC, UC, or other agencies as needed
Res.B1c 1.1.4 Establish and implement an order of command succession or continuity consistent with NIMS
Res.B1c 1.3 Establish operational and redundant communication systems for EOC operation
Res.B1c 1.3.1
Verify that all critical communication links/circuits/systems have been identified and regularly
tested; redundant and diverse links exist in case of single point of failure; and all emergency
circuits are protected with telecommunications service priority for prompt restoration/
provisioning
Res.B1c 1.3.2.7
Verify that all participating public safety-related Communication Centers—serving the
EOC/MACC/IOF directly or indirectly—are secure and functional, have established
communication links with the EOC/MACC/IOF, have appropriate supplemental resources and
other outlets to provide prompt, accurate public information and effective, timely notifications,
and maintain a valid common operating picture for all responders/participants
210 Target Capabilities List
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Res.B1c 1.3.2.5
Verify that all serving Public Safety Communication Centers have clear and standard operating
procedures (SOPs), consistent with the potential needs specifically related to the event
Res.B1c 1.3.2.6
Verify that primary and secondary means to establish and maintain communication services
through the event timeline are in place, can be activated promptly, and can continue to operate
at acceptable levels
Res.B1c 1.2.1 Create one central and one backup EOC/MACC/IOF
Res.B1c 1.1.6 Develop emergency operations plans, policies, and procedures
Res.B1c 1.1.7 Develop continuity of operations/continuity of government (COOP/COG) plans
Preparedness Measures Metrics
A national security policy to identify classified information handling requirements has been
developed for Federal, State, and local EOC/MACC/IOFs
Yes/No
Standard operating procedures (SOPs) for activation, operation, and deactivation of
EOC/MACC/IOFs are in place
Yes/No
Standard operating procedure (SOP) sections related to the role of each entity in the
management of EOC/MACC/IOFs have been reviewed
Yes/No
EOC plans and SOPs address continuity of operations (e.g. central and backup EOCs, primary
and secondary communications services).
Yes/No
EOC Plans and SOPs address resource and personnel use limitations (e.g. work/rest,
maintenance restrictions).
Yes/No
EOC Plans and SOPs address dissemination of accurate, timely, accessible information to
public, media, support agencies)
Yes/No
A system is in place (or is accessible) for mapping, modeling, and forecasting potential hazards Yes/No
EOC plans and SOPs address the demobilization of Emergency Operations Center (e.g. re-
assess and implement EOC deactivation plan, re-supply EOC entity to return to a state of
readiness).
Yes/No
EOC plans and procedures include processes for ensuring the safety, security, structural
integrity, and self-sufficiency of EOC facilities
Yes/No
EOC Plans and SOPs address dissemination of accurate, timely, accessible information to
public, media, support agencies)
Yes/No
Communications plans to exchange data and voice in real time are in place Yes/No
Frequency with which critical communication links/circuits/systems are identified and tested Every 3 months
Redundant and diverse links in case of single point of failure for all critical communications are
in place
Yes/No
Design, construction, and repair reports identify and resolve any single failure point Yes/No
Critical circuits are identified and telecommunication service priority contracted with provider Yes/No
Alternate processes for sharing public information have been created, tested and deployed Yes/No
Policy/procedure, appropriate equipment, and capability to relocate safely, without loss of
operational integrity, is established and tested
Yes/No
Target Capabilities List 211
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Primary and secondary means to establish and maintain communication services through the
event timeline so that services can be activated promptly and have the capacity to continue to
operate at acceptable levels are in place
Yes/No
Effective process for assessing the status of any/all public safety communication centers
throughout the lifetime of event are in place
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B1c 2.1 Conduct EOC/MACC/IOF specific training
Res.B1c 2.2.2
Develop exercise program to evaluate the effectiveness of emergency operations center (EOC)
incident management process
Res.B1c 2.2 Develop exercise program for emergency operations plans, policies and procedures
Res.B1c 2.2.1
Develop exercise program for continuity of operations/continuity of government (COOP/COG)
plans
Res.B1c 2.3
Brief chief executive and other key officials of the jurisdiction in the jurisdiction’s command
and control plans for large-scale emergencies
Res.B1c 2.4 Conduct annual command and control training and exercises for large-scale emergencies
Preparedness Measures Metric
Appropriate personnel have completed FEMA Independent Study Program for IS 700-NIMS,
An Introduction
Yes/No
Appropriate personnel have completed FEMA Independent Study Program for IS 800-National
Response Plan, An Introduction;
Yes/No
Appropriate personnel have completed FEMA Independent Study Program for IS 275-EOC
Management and Operations;
Yes/No
Appropriate personnel have completed FEMA Independent Study Program for IS 100-
Introduction to Incident Command System
Yes/No
Appropriate personnel have completed FEMA Independent Study Program for IS 200-ICS for
Single Resources and Initial Action Incidents
Yes/No
Chief executive and other key officials of the jurisdiction are briefed in the jurisdiction’s
command and control plans for large-scale emergencies
Yes/No
HSEEP-compliant exercises are conducted to test EOC management plans and procedures (e.g.
secure EOC, track incidents, deliver resources).
Yes/No
Chief executive and other key officials of the jurisdiction participate in annual command and
control training and exercises for large-scale emergencies
Yes/No
Exercises include private sector participation Yes/No
EOC/MACC/IOF personnel (primary and backup) are trained to perform EOC/MACC/IOF
tasks and on their assigned roles and responsibilities as part of the EOC/MACC/IOF team
Yes/No
212 Target Capabilities List
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Performance Tasks and Measures/Metrics
Activity: Direct Emergency Operation Center’s Tactical Operations
Definition: In response to notification of incident, activate, staff, and organize the EOC/MACC/IOF
in accordance with emergency plans and standard operating procedures; plan, direct, and
coordinate information and activities internally within EOC/MACC/IOF functions, and externally
with other multi-agency coordination entities and the public information system; coordinate
logistical support to maintain an operationally functioning EOC/MACC/IOF until deactivation.
Critical Tasks
Res.B1c 3.1
Establish organization/operation of EOC/MACC/IOF CC/IOF
Res.B1c 3.1.1
Ensure that all Emergency Support Functions (ESFs) are staffed
Res.B1c 3.3.3
Direct all support organizations participating in EOC/MACC/IOF
Res.B1c 3.1.3
Ensure appropriate maintenance and rest cycles are included in resource (personnel and
equipment) management activities
Res.B1c 3.5.3.1
Arrange for shelter, housing, and feeding for responders and personnel supporting the operation
per the emergency plan, as applicable
Res.B1c 3.5.3.2
Arrange for shelter, housing, and feeding for displaced responder families and general population
Res.B1c 3.3.1
Coordinate jurisdictional emergency management operations/
Res.B1c 3.7
Transition from response to recovery
Res.B1c 3.7.1
Include Business Operation Center capability within state EOCs
Performance Measures Metric
The emergency operations center (EOC) is activated upon notification of the incident Yes/No
The emergency operations center (EOC/MACC/IOF) was activated upon notification of
the incident
Yes/No
EOC/MACC/IOF is appropriately staffed to meet incident demands Yes/No
Activity: Activate EOC/MACC/IOF
Definition: In response to activation, perform incident notifications, recall of essential personnel,
and stand-up of EOC/MACC/IOF systems to provide a fully staffed and operational EOC.
Critical Tasks
Res.B1c 4
Activate the EOC/MACC/IOF
Res.B1c 4.3
Activate, alert, and request response from EOC/MACC/IOF personnel
Res.B1c 4.4
Brief incoming personnel
Res.B1c 4.3.3
Designate a Principal Federal Official (PFO) from an appropriate agency, who will assemble a
support staff and deploy to the affected area as soon as possible (Federal only)
Performance Measures Metric
Time in which the EOC/MACC/IOF is fully staffed Within 2 hours from activation
Target Capabilities List 213
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Time in which the EOC/MACC/IOF commences operations Within 2 hours from activation
Time in which incoming staff are appropriately briefed and assigned Within 15 minutes from staff arrival
Time in which DHS designates a Principal Federal Official (PFO) Within 1 hour from start of the incident
Time in which PFO assembles a support staff and deploys to the
affected area
Within 1 hour from start of the incident
Activity: Gather and Provide Information
Definition: Upon establishing EOC/MACC/IOF operations, gather, organize, and document
incident situation and resource information from all sources to maintain situational awareness
within the EOC/MACC/IOF, and horizontally and vertically within the National Incident
Management System.
Critical Tasks
Res.B1c 5.1.1
Verify that all participating public safety-related Communication Centers, serving the
EOC/MACC/IOF directly or indirectly, have established communication links with the
EOC/MACC/IOF
Res.B1c 5.1
Make proper connections with other agencies involved in incident
Res.B1c 5.2.2
Coordinate emergency management efforts among local, county, regional, State, and Federal
EOC/MACC/IOF
Res.B1c 5.2.3
Coordinate with non-government agencies and/or private sector to collect/share data on incident
situation
Res.B1c 5.1.2 Monitor communications and information systems
Res.B1c 5.2
Collect, analyze, and disseminate information and intelligence
Res.B1c 5.2.4
Ensure appropriate notifications are made
Performance Measures Metric
Process for assessing the status of any/all public safety communication centers
throughout the event has been established
Yes/No
Time in which connectivity is established with all participating public safety-
related Communication Centers, serving the EOC/MACC/IOF directly or
indirectly
Within 30 minutes from
EOC/MACC/IOF becoming
operational
Connectivity has been verified with all participating public safety-related
Communication Centers, serving the EOC/MACC/IOF directly or indirectly
Yes/ No
Time in which the availability and functionality status of all plan supporting teams
and resources, including identification of deficiencies or limiting factors, are
reported to the NRCC
Within 12 hours from the
incident
Time in which the jurisdiction produces an incident action plan (IAP) defining a
schedule and setting the operational period
Within 2 hours from the
EOC/MACC/IOF entity
becoming operational
Time in which the jurisdiction produces and distributes a situation report Within 2 hours from the
EOC/MACC/IOF entity
becoming operational
The jurisdiction provides situation reports at least once per operational period Yes/No
214 Target Capabilities List
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Activity: Identify and Address Issues
Definition: Upon receiving information, assess and identify current and anticipated resource
shortages, technical support issues, and key policy decisions needed across all capabilities, and
provide to the applicable agency, function, jurisdiction or multi-agency coordination entity for
resolution.
Critical Tasks
Res.B1c 6.1.4
Identify issues
Res.B1c 6.1.5
Identify and elevate needs/issues up the chain of command as needed, while tracking status
Res.B1c 6.3
Track issues until they are resolved
Performance Measures Metric
Issues are tracked until they are resolved
Yes/No
Time in which appropriate decision-makers are consulted to facilitate
resolution of issues
Within 30 minutes from recognizing need
to consult decision-makers
Activity: Provide EOC/MACC/IOF Connectivity
Definition: Upon identification of issues, establish priorities between Incident and/or Area
Commands; provide strategic direction; coordinate and resolve multi-agency policy issues,
including the issuance of protective action recommendations and protective action decisions.
Critical Tasks
Res.B1c 7.3.4
Coordinate legal and regulatory issues with support of general counsel
Res.B1c 7.3.1
Facilitate resolution to legal, policy, political, social, and economic sensitivities of the affected
jurisdiction(s) as they impact response and recovery operations
Res.B1c 7.3.2
Facilitate formulation of protective action decisions (PADs), as needed
Res.B1c 7.3.3
Facilitate decision to implement isolation and quarantine, when needed
Res.B1c 7.4 Implement continuity of operations (COOP) plans and continuity of government (COG) plans
Performance Measures Metric
EOC/MACC/IOF recognizes the need to implement mutual aid agreements (MAAs) Yes/No
Mutual aid, State and/or Federal resources are requested during an incident based on
availability of resources and mutual aid
Yes/No
EOC/MACC/IOF consults appropriate decision-makers and facilitates resolution of
needs/issues in a timely manner
Yes/No
Resource staging areas, Logistical Bases, and Logistical Staging Areas (LSAs) have
been designated
Yes/No
Activation of pre-positioned resources has been requested Yes/No
Time in which establishment of a Joint Field Office (JFO), National Response
Coordination Center (NRCC), and Regional Response Coordination Center (RRCC) is
initiated/expedited
Within 4 hours from the
incident
Target Capabilities List 215
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Time in which of continuity of operations (COOP) plans and continuity of government
(COG) plans are successfully implemented
Within 2 hours from the
incident
Time in which Federal staging areas are designated inside incident area (forward of
Federal Mobilization Center)
Within 1 hour from the
incident
Time in which pre-positioned Equipment Program Teams are activated Within 2 hours from the
incident
Time in which pre-positioned Equipment Program Teams are deployed Within 2 hours from the
incident
Time in which field survey support team and remote sensing aircraft are deployed to the
incident area
Within 4 hours from the
incident
Activity: Support and Coordinate Response
Definition: Once requested, provide resource, technical, and policy support to the Incident
Command by coordinating the actions of off-site agencies, organizations, and jurisdictions,
implementing mutual aid agreements, and requesting higher-level assistance
Critical Tasks
Res.B1c 8.3.1
Coordinate activation of mutual aid agreements to obtain resources
Res.B1c 8.1.1
Provide direction, information, and/or support as appropriate to IC/UC), and/or EOC/MACC/IOF
Res.B1c 8.3.2
Support incident response operations by providing resources ordered by the Incident
Management Team (IMT) through the EOC/MACC/IOF/JFO/ICP
Res.B1c 8.3
Coordinate resource logistics and distribution
Res.B1c 8.2.2
Support identification and determination of potential hazards and threats including mapping,
modeling, and forecasting
Performance Measures Metric
Time in which the jurisdiction recognizes the need to implement mutual aid
agreements and request private sector resources
Within 2 hours from EOC/MAC
operations beginning
Time in which mutual aid and State and/or Federal resources are requested,
as needed, during an incident
Within 2 hours from recognizing
need for mutual aid, State and/or
Federal resources
Time in which private sector resources are requested, as needed, during an
incident.
Within 2 hours from recognizing
need for mutual aid, State and/or
Federal resources
Process to ensure direction, information, and/or support provided to field is
established
Yes/No
Status of resource requests are provided at least once per operational period Yes/No
Activity: Demobilize Emergency Operations Center Management
Definition: Upon completion of response phase, terminate EOC response activities, archive
records, and restore systems, supplies, and staffing to a pre-incident ready State (or as
appropriate for recovery activities).
216 Target Capabilities List
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Critical Tasks
Res.B1c 9.3
Facilitate demobilization plans and procedures for preparation of after-action reports
Res.B1c 9.3.2
Implement EOC/MACC/IOF demobilization, deactivation, and transitional plan to JFO
Res.B1c 9.1
Re-assess and implement EOC demobilization and deactivation plans
Res.B1c 9.4
Rehabilitate and re-supply EOC/MACC/IOF entity/resources to return to state of readiness
Performance Measures Metric
Time in which criteria for demobilization of EOC are established Within 2 hours from receipt of first
demobilization request
Time in which EOC/MAC entity is deactivated/demobilized Within 24 hours from decision to
deactivate
Linked Capabilities
Linked Capability Relationship
All Respond Capabilities EOC Management, in coordination with On-Site Incident Management, coordinates
resource logistics, information sharing, decision-making, and implementation of
activities in other Respond Capabilities.
All Recover Capabilities EOC Management coordinates resource logistics, decision-making, information
sharing, and implementation of activities in Recover Capabilities
On-Site Incident
Management
EOC Management coordinates closely with IC/UC to set incident priorities,
facilitate resource requests, and troubleshoot political, economic, policy, legal or
regulatory, or social issues affecting on-site response operations.
Emergency Public
Information and Warning
EOC Management provides information to Emergency Public Information and
Warning for release to the media and the public. EOC Management receives
information from Emergency Public Information and Warning on mis-information
and rumors in the public domain that may impact response operations.
Critical Resource Logistics
and Distribution
EOC Management coordinates with Critical Resource Logistics and Distribution to
facilitate resources being distributed according to incident priorities.
Isolation and Quarantine EOC Management receives protective action recommendations from Isolation and
Quarantine, when appropriate. Isolation and Quarantine assists EOC Management
in making well-informed protective action decisions and in implementing those
decisions.
Citizen Evacuation and
Shelter-In-Place
EOC Management receives protective action recommendations from Citizen
Evacuation and Shelter In-Place, when appropriate. Citizen Evacuation and Shelter
In-Place assists EOC Management in making well-informed protective action
decisions and in implementing those decisions.
Mass Prophylaxis EOC Management receives protective action recommendations from the Mass
Prophylaxis, when appropriate. Mass Prophylaxis assists EOC Management in
making well-informed protective action decisions and in implementing those
decisions.
Target Capabilities List 217
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Direct
Emergency
Operation
Center’s
Tactical
Operations
End: Return to pre-incident
“ready” status
Activate EOC/
MACC/IOF
Gather and
Provide
Information
Demobilize
Emergency
Operations Center
Management
Identify and Address
Issues
Staffed and operational EOC
Support and
Coordinate
Response
Support no longer needed
Provide situational awareness
Situation status and
resource status
Policy decisions; PAD/PAR
decisions; multi-agency resource
decisions; assignments
On-Site Incident
Management
Emergency Public
Information and
Warning
Start:
Request to
activate
EOC
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Critical Resource
Logistics and
Distribution
Isolation and
Quarantine
Resource shortages, need for PADs
and other decisions; public
information warning
Citizen Evacuation
and
Shelter-In-Place
Mass Prophylaxis
Capability Activity Process Flow
Emergency Operations Center
Management Capability
Relationship
Linked
Capabilities
Provide situational
awareness
Request resources
Provide support
Provide resources
Provide information
support
Resources provided for requestor
Response to incident complete
Request for support
Decision to activate – partial or full
Provide EOC/
MACC/IOF
Connectivity
All Respond
Capabilities
All Recover
Capabilities
Coordinate logistics,
decision-making, and
information sharing
218 Target Capabilities List
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Resource Element Description
Resource
Element
Description
City EOC
Personnel: Consists of basic EOC functional requirements, including: chief executive and key
officials, command staff, incident commander, EOC Management Support Team (defined in
NIMS), Operations Section (defined in NIMS), Logistics Section, Planning Section (defined in
NIMS), Administration/financial Section (defined in NIMS), Information technology (IT),
safety/security, 15 Emergency Support Functions (ESF) (if required to activate).
Plans: Emergency operations plans, policies and procedures; continuity of operations/continuity
of government (COOP/COG) Plans
Equipment:
Communications equipment (e.g., telephones, satellites, radio, Video wall/plasma screen,
Facsimile, Video teleconferencing (VTC), Cable TV, Satellite TV, VHS/UHF/HF
communications)
Network (e.g., internet, wired and/or secure wireless local area network , Sensitive-but-
unclassified network, Common operational picture)
Computers and software (e.g., a geographic information system (GIS), Geospatial imagery, Level
1 mobile central processor, interoperable software, EOC operation software, state-of-the-art
computer blade technology)
2 Level 1 mobile central processors (CP): 1 to be used to restore “normal” public safety
communications services to some level during the duration of recovery effort
Unclassified capability equipment, including the National Alert Warning System (NAWAS) and
the Washington Area Warning System (WAWAS).
Other (e.g., special lighting, room acoustics, architectural noise and vibration control,
environmental acoustics, sound reinforcement systems)
Training: EOC specific training; FEMA Independent Study Program: IS 700-NIMS, An
Introduction; FEMA Independent Study Program: IS 800-National Response Plan, An
Introduction; FEMA Independent Study Program: IS 275-EOC Management and Operations;
FEMA Independent Study Program: IS 100-Introduction to Incident Command System; FEMA
Independent Study Program: IS 200-ICS for Single Resources and Initial Action Incidents
Exercises, Evaluations and Corrective Actions: Exercise program to evaluate the effectiveness
of emergency operations center (EOC) incident management processes; exercise program for
emergency operations plans, policies and procedures; exercise program for continuity of
operations/continuity of government (COOP/COG) Plans
County EOC Same as City EOC
State EOC Same as City EOC, except:
Equipment: Add the following: sensitive compartmented information facilities (SCIF), secret
capability equipment, including: Homeland Security Information Network (HSIN)/Joint Regional
Information, Exchange System (JRIES), other classified systems connectivity, secure telephone
and VTC equipment, Top Secret/Sensitive Compartmented Information (TS/SCI) capable
equipment, including: Automatic Digital Network (AUTODIN)/Defense Message System
(DMS), other classified systems, secure telephone equipment (STE), National Secure Telephone
System (NSTS), Top Secret/Sensitive Compartmented Information (TS/SCI) secure VTC
equipment, Top Secret/Sensitive Compartmented Information (TS/SCI) secure facsimile
equipment
Target Capabilities List 219
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Federal EOC
Same as State EOC, except:
Personnel: Add the following: Emergency Response Team (ERT), National Emergency
Response Team (ERT-N), Federal Incident Response Support Team (FIRST), Mobile Emergency
Response Support (MERS) Detachment, Mobilization Center Management Team (MCMT),
Hurricane Liaison Team (HLT), DHS Science and Technology Advisory and Response Team,
CDC Incident Support Team
Equipment: Same as State EOC
DHS EOC
Same as Federal EOC
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Improvised Nuclear Device (IND) scenario. Other
scenarios were reviewed to identify required adjustments or additions to the planning factors and
national targets.
This capability is applicable to all scenarios in which the incident is a large-scale event requiring the
establishment of a command center away from the incident site.
One central and backup EOC for each of 3,142 counties. One central and backup State EOC are
available for each State and 6 territorial governments (56+). Individual municipalities (19,429) and
towns and townships (16,504) may need an EOC depending on population, legislation, and identified
requirements.
Type III Incident Management Teams (IMTs) can be maintained at the local level (city, county, and
State) and staffed by qualified individuals from first-responder agencies (interagency IMTs). Such
IMTs are readily available for a quick response and rapidly establish incident command on expanding
incidents.
One central and backup EOC are available for each of the signatory departments and agencies listed
in the National Response Plan (40+).
All jurisdictions have identified the need to carry out minimum emergency functions for effective
control of any emergency through their own EOC or a shared EOC that has been identified under
National Incident Management System (NIMS) operations.
The primary or alternate EOC facility is operational and habitable.
Sufficient personnel, ranging from 2 to 3 shifts, 24/7, are available to staff the EOC and manage all
tasks.
Sufficient personnel and equipment are available to conduct EOC operations.
Trained personnel are available to perform EOC tasks. Personnel know their assigned roles and
responsibilities as part of the EOC team.
Primary and/or alternate communications capabilities are still functional to coordinate response and
incident management.
Governments within the United States:
19,429 municipalities
16,504 towns or townships
3,142 counties
50 State governments
6 territorial governments
1 Federal government
Total of more than 39,000 jurisdictions
220 Target Capabilities List
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Cities with populations greater than 50,000 should identify the need for an EOC. The numbers of
cities with levels of populations above 50,000 follow:
364 cities with populations of 50,000—100,000
173 cities with populations of 100,000—200,00
36 cities with populations of 250,000—500,000
29 cities with populations of 500,000+
Scenario-Specific
The capability targets for a single incident are based primarily on the “improvised nuclear device”
(IND) scenario because it was considered the most encompassing for an Emergency Operations
Center (EOC) standup and response to minimize the impact and to manage the incident. An
earthquake was considered the next most encompassing. The 15 possible scenarios were rated from
most to least encompassing.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Improvised Nuclear Device)
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of Resources Needed
Primary City EOC Cities with populations greater than 50,000
should identify the need for an EOC.
County EOC One central and backup EOC for each of
3,142 counties.
State EOC One central and backup State EOC are
available for each State and 6 territorial
governments
Federal EOC One central and backup EOC are available
for each of the signatory departments and
agencies listed in the National Response Plan
DHS EOC One central and one backup
Approaches for Large-Scale Events
During an emergency caused by an improvised nuclear device, when both the local and alternate EOC are
not operational, it would be beneficial to know neighboring counties’ vital information (e.g., population,
local hazards, infrastructure complexity, urban versus rural)
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Primary City EOC Non-NIMS
Resource
Organization
1 Per city with
population >
50k
Local (City) All performance
activities
Target Capabilities List 221
RESPOND MISSION: EMERGENCY OPERATIONS CENTER MANAGEMENT
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
County EOC Non-NIMS
Resource
Organization
2 Per county (primary
and backup)
Local (County) All performance
activities
State EOC Non-NIMS
Resource
Organization
2 Per State/Territory
(primary and
backup)
State All performance
activities
Federal EOC Non-NIMS
Resource
Organization
2 Per designated
Federal agency
(primary and
backup)
Federal All performance
activities
DHS EOC Non-NIMS
Resource
Organization
2 Per DHS/FEMA
Regional Office
(Primary and
backup)
Federal
(DHS/FEMA)
All performance
activities
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S.
Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
5. Statement of Requirements for Public Safety Wireless Communications & Interoperability. Version 1.0. U.S.
Department of Homeland Security, SAFECOM Program. March 2004.
http://www.safecomprogram.gov/SAFECOM/library/technology/1200_statementof.htm.
6. Incident Communications Emergency Plan, ICEP–2004. U.S. Department of Homeland Security. 2004.
7. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa.
8. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
9. Emergency Management Accreditation Program Standards. September 2003.
http://www.emaponline.org/index.cfm.
10. Federal Executive Branch Continuity of Operations. Federal Preparedness Circular (FPC 65). U.S. Department
of Homeland Security, Federal Emergency Management Agency, Office of National Security Coordination.
June 2004. http://www.fema.gov/onsc/.
11. PDD 67: Enduring Constitutional Government and Continuity of Government Operations. October 1998.
http://www.emergency-management.net/laws_pdd67.htm.
222 Target Capabilities List
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Target Capabilities List 223
RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION
CRITICAL RESOURCE LOGISTICS AND
DISTRIBUTION
Capability Definition
Critical Resource Logistics and Distribution is the capability to identify, inventory, dispatch, mobilize,
transport, recover, and demobilize and to accurately track and record available human and material
critical resources throughout all incident management phases. Critical resources are those necessary to
preserve life, property, safety, and security.
Outcome
Critical resources are available to incident managers and emergency responders upon request for proper
distribution and to aid disaster victims in a cost-effective and timely manner.
Relationship to National Response Plan Emergency Support Function/Annex
The capability supports the following Emergency Support Functions (ESFs):
ESF #1: Transportation
ESF #2: Communications
ESF #3: Public Works and Engineering
ESF #4: Firefighting
ESF #5: Emergency Management
ESF #6: Mass Care, Housing, and Human Services
ESF #7: Resource Support
ESF #8: Public Health and Medical Services
ESF #9: Urban Search and Rescue
ESF #10: Oil and Hazardous Materials Response
ESF #11: Agriculture and Natural Resources
ESF #12: Energy
ESF #13: Public Safety and Security
ESF #14: Long-Term Community Recovery and Mitigation
ESF #15: External Affairs
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B1d 1
Develop plans, procedures, and protocols for resource management in accordance with the
National Incident Management System (NIMS), and include pre-positioning of resources to
efficiently and effectively respond to an event
ResB1d 1.1 Establish plans and systems for resource identification, typing, and inventorying
224 Target Capabilities List
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
ResB1d 1.2 Establish plans and systems for acquiring and ordering resources
ResB1d 1.3 Establish plans and systems for mobilizing and allocating resources
ResB1d 1.5 Establish plans and systems for resource recovery and reimbursement
Res.B1d 1.6
Establish plans and procedures for coordinating with non-governmental and private sector
organizations for obtaining resources
Res.B1d 1.3.2
Develop plans for the establishment of logistic staging areas (LSAs) for internal and external
response personnel, equipment, and supplies
ResB1d 1.4.1
Establish a national resources tracking and reporting system that can integrate with state/local
systems
Res.B1d. 1.4.2 Establish resource tracking system or resource inventories at the state and local level
Preparedness Measures Metrics
Plans and procedures address activation of the resource management system Yes/No
Plans and procedures address management of supplies (e.g., secure and appropriate
storage, transportation through restricted areas, etc)
Yes/No
Plans and procedures include communications requirements (e.g. jurisdiction requests are
monitored to track inventory, transportation vendors can maintain contact during
distribution).
Yes/No
Tracking and recording systems for resources are developed and tested Yes/No
Resource and vendor lists are in place Yes/No
Resource lists are updated as required or every 12 months Yes/No
Critical resource management plans are supported by standing contracts and/or emergency
purchase mechanisms such as credit cards or debit cards (e.g. rapid purchasing
mechanisms are in place for specialized resources such as GIS and cell providers).
Yes/No
Pre-negotiated vendor contracts for critical resources and essential services are in place
and maintained
Yes/No
Plans, procedures, and systems to pre-position resources in order to efficiently and
effectively respond to an event are in place
Yes/No
Processes and procedures to ensure that resource providers are reimbursed in a timely
manner are in place
Yes/No
Plans and procedures address unused resources and disposal of waste materials generated
by logistics operations.
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
ResB1d 2.1
Develop and implement resource logistics and distribution training programs
ResB1d 2.1.1
Develop and implement training in emergency logistics that incorporates linkages among
damage/needs assessment, logistics management, and volunteer/donations management
Target Capabilities List 225
RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION
Res.B1d 2.2.1
Validate resource logistics, distribution plans, and training programs using exercises ranging
from tabletop to full-scale
Preparedness Measures Metric
Training in emergency logistics that incorporates linkages among damage/needs
assessment, logistics management, and volunteer/donations management has been
developed according to established standards for logisticians
Yes/No
Frequency with which personnel testing and training on tracking and recording systems is
verified (including as required or necessary)
Every 18 months
Frequency with which resource and logistic tracking and recording systems are exercised
(including during other exercises)
Every 12 months
Performance Tasks and Measures/Metrics
Activity: Direct Critical Resource Logistics and Distribution Operations
Definition: In response to an incident or situation that may require outside resource support,
provide management and coordination for the Critical Resource Logistics and Distribution
capability, from activation through demobilization
Critical Tasks
Res.B1d 3.1.1
Establish communication between EOC and Incident Management Team to determine resource
needs to support incident response and operations
Res.B1d 3.2.2
Identify existing internal, jurisdiction-specific resources available to support response and
recovery operations
Res.B1d 3.1.2
Make a determination regarding the need for additional external resources and the
implementation of a critical resource logistics and distribution plan
Res.B1c 3.5 Provide logistical support for the operation and requests of the IC/EOC
Res.C2a 3.1.1 Coordinate distribution of stockpile assets
Res.B3a 3.5.1 Coordinate the handling and transporting of affected persons requiring assistance
Rec.C1a 3.2.5 Provide and coordinate the use of emergency power generation services at critical facilities
Performance Measures Metric
Time in which the multi-agency coordination system is activated following the request for
critical resources needed for the incident
Within 2 hours of
request
Time in which it is determined that there is a need to supplement internal resources by
implementing critical resource logistics and distribution operations
Within 8 hours of
incident
Time in which requests for critical resources are processed and approved Within 1 hour of
receipt of request
Determination is made regarding whether assistance from outside jurisdictions (i.e. mutual aid,
Emergency Management Assistance Compact (EMAC)) is needed
Yes/No
Assistance from outside jurisdictions is tracked to certify performance Yes/No
226 Target Capabilities List
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Activity: Activate Critical Resource Logistics and Distribution
Definition: In response to activation, initiate the resource logistics and distribution process,
including identifying and establishing a logistics staging area (LSA)
Critical Tasks
Res.B1d 4.1
Initiate resource logistics and distribution support for incident response operations according to
the Incident Management Team (IMT) assignments in the Incident Action Plan (IAP)
Res.B1d 4.2
Implement plans and procedures for establishing a logistics staging area (LSA) for internal and
external response personnel, equipment, and supplies
Res.B1d 3.2.4
Meet ongoing resource support needs through appropriate procurement sources from the
EOC/MACC/IOF
Res.B1d 6.3.2
Provide facilities, transportation, supplies, equipment/equipment maintenance, fueling, food
service, and communications through the logistics staging area (LSA)
Res.B1d 4.3 Implement a resource-tracking system
Res.B1b 8.1.1
Report and document the incident by completing and submitting request forms, reports,
documentation, and follow-up notation.
Res.B1d 4.4
Plan and prepare for the demobilization process well in advance in accordance with NIMS in
order to facilitate accountability and make transportation of resources as efficient as possible
Performance Measures Metric
Time in which logistics staging area (LSA) is opened Within 8 hours of incident
Critical resources are accurately tracked and recorded Yes/No
Activity: Respond to Needs Assessment and Inventory
Definition: Based on tasking from the EOC/MAC per field needs assessments, determine types of
resources needed to support response operations.
Critical Tasks
Res.B1d 5.1 Determine additional human and material resources needed to support response
Res.B1d 5.3 Request needed resources from EOC/MACC/EOC/IOF
Res.B1d 5.2
Identify and inventory by type and category all resources available to support emergency
operations, including facilities, equipment, personnel, and systems
Res.B1d 5.2.2
Determine availability of supplies stocked in distribution facilities, national stockpiles, and
customer supply centers
Performance Measures Metric
Time in which logistics staging area (LSA) responds to EOC tasking for resource support Within 1 hour from
request
Target Capabilities List 227
RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION
Activity: Acquire Resources
Definition: Request and acquire resources from local, State, Federal, or private providers.
Critical Tasks
Res.B1d 6.1
Implement plans, procedures, and protocols for resource acquisition and management in
accordance with NIMS
Res.B1d 7.4 Provide support from EOC/MACC/IOF to IC with human and material resource needs
Res.B1d 6.3.4 Track/record resource movement in and out of the logistics staging area (LSA)
Res.B1d 6.3.3 Obtain supplies stocked in distribution facilities, national stockpiles, and customer supply centers
Performance Measures Metric
Percent of resource movement tracked/recorded 100%
Time in which the resource is available for deployment Within 2 hours from arrival
Time in which critical resources from the State (within the State) are
delivered
Within 12 hours from approval of request
Time in which critical resources from the State (State-to-State)/EMAC
are delivered
Within 24 hours from approval of request
Time in which Federal critical resources are delivered Within 24 hours from approval of request
Time in which private sector is tasked to inventory and identify
available assets
Within 2 hours from determination of need
for private sector involvement
Time in which all large-space facility structures within 250 miles of
the incident venue(s) that could be made available for use as needed
are inventoried and identified to ESF-7
Within 6 hours from request
EOCs and Incident Management Teams follow standard interagency
mobilization guides at the national, regional, State, tribal, and local
levels
Yes/No
Activity: Transport, Track, and Manage Resources
Definition: Once a resource request has been filled, deploy the resource to the incident through
the logistics staging area (LSA) and in coordination with EOC.
Critical Tasks
Res.B1d 7.1.4 Mobilize transportation to distribute resources
Res.B1d 7.2 Deploy and transport resources to appropriate, pre-determined locations
Res.B1d 7.3 Track the deployment, movement, and transportation of resources prior to and during an incident
Res.B1d 7.5 Request State critical resources
Res.B1d 7.6 Request Federal critical resources
228 Target Capabilities List
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Performance Measures Metric
Private sector linkages are activated to inventory and identify available transportation
assets, potential mass shelters facilities and medical facilities, personnel, equipment, and
supplies
Yes/No
Sufficient transportation assets are established to transport critical human and material
resources throughout incident management phases
Yes/No
Time in which resources received at logistics staging area (LSA) are available to support
response and recovery operations
Within 8 hours from
receipt at LSA
Critical resources are managed and inventoried to ensure sustained operations Yes/No
All required procedures for acquiring and managing resources, including reconciliation,
accounting, auditing, and inventorying, are followed
Yes/No
Percent of approved resource requests met and filled accurately during the incident 100%
Time in which actions to deploy Pre-Positioned Disaster Supply (PPDS) containers are
initiated
Within 24 hours from
identification of need
Time in which actions to deploy additional Pre-Positioned Disaster Supply (PPDS)
containers are initiated
Within 48 hours from
identification of need
Time in which backfill of Pre-Positioned Disaster Supplies (PPDS) containers is initiated Within 72 hours
Resource status changes are recorded and reported as they occur Yes/No
Activity: Maintain and Recover Resources
Definition: Recover all resources deployed for response and recovery support, rehabilitate and re-
supply all resources, rest and recuperate all personnel, review tracking system, and retrace all
resources back to original provider. The recovery process involves the final disposition of all
resources
Critical Tasks
Res.B1d 8.1.1 Cycle personnel to allow for rest and recuperation
Res.B1d 8.1.2 Cycle resources to allow for rehabilitation and/or re-supply efforts
Res.B1d 8.2.2 Rehabilitate and/or re-supply all expendable and nonexpendable resources
Res.B1d 8.2.3 Recover all deployed resources that are salvageable
Res.B1d 8.2.4 Return resources to issuing location
Res.B1d 8.4.2 Account for all resource use and expenditure
Res.B1d 8.3.1
Use established regulations and policies to deal with resources that require special handling and
disposition, such as biological waste, contaminated supplies, debris, and equipment
Res.B1d 8.3.2
IC/UC, EOC, and LSA make a joint determination that equipment and resources/supplies are no
longer needed to support operation
Performance Measures Metric
Resources and personnel are cycled per the IAP Yes/No
Target Capabilities List 229
RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION
The recovery and disposition of resources is tracked and documented Yes/No
Resources are returned to original provider Yes/No
Activity: Demobilize Critical Resource Logistics and Distribution
Definition: Upon completion of assigned duties or as directed by superiors, shut down the
logistics staging area and return to pre-incident readiness
Critical Tasks
Res.B1d 9.2
Determine that equipment and unused resources/supplies are no longer needed to support
operation
Res.B1d 9.3 Implement demobilization and deactivation procedures
Performance Measures Metric
Time in which demobilization plan is fully implemented Within 8 hours from
decision to demobilize
Time in which deployed resources are recovered following the end of response/recovery
operations
Within 72 hours from
end of operations
Percent of requests for State and Federal reimbursement processed 100%
Percent of non-expendable resources fully accounted for at the incident site 100%
Percent of non-expendable resources fully accounted for upon return to the unit that issued
them
100%
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
On-Site Incident Management typically identifies the critical resources required to
support an incident response
Emergency Operations
Center Management
A resource needs assessment to support incident response will be provided by the
Incident Commander or Incident Management Team to the EOC, which will coordinate
the acquisition of the required resources. The EOC will also coordinate with the
logistical staging area.
230 Target Capabilities List
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Direct Critical
Resource
Logistics and
Distribution
Operations
End: Return to pre-incident
“ready” status
Activate Critical
Resource
Logistics and
Distribution
Start: Identified need
for resource(s)
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Identify resource shortfall(s)
Respond to Needs
Assessment and
Inventory
Ready to conduct assessment
Resource requirements identified
Acquire
Resources
Transport, Track,
and Manage
Resources
On-Site Incident
Management
Emergency
Operations
Center
Management
Demobilize Critical
Resource
Logistics and
Distribution
Notify of resource status
Resources acquired
Resources ready for distribution
Maintain and
Recover
Resources
Resources transported and
tracked
Report resources transported
Direct resources to
requesting agency
Resources returned appropriately
Provide finalized tracking report
Resource needs
identified and provided
Resource needs
identified and provided
Capability Activity Process Flow
Relationship
Linked
Capabilities
Critical Resource Logistics and
Distribution Capability
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Target Capabilities List 231
RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION
Resource Element Description
Resource Elements Components and Description
Logistics Planning Manager
Type III or Type IV Planning Manager to create logistics management plans
for area to assist operations during incident
National tracking system
National system that captures and tracks resource availability; includes locally
managed tracking systems that feed into the larger system
Tracking system
Resource tracking systems or inventories maintained at the state and/or local
level that feed into the national tracking system.
Rapid Needs Assessment Team
(Type I)
NIMS Typed Resource. Per NIMS, provides a rapid assessment capability
immediately following a major disaster or emergency. Team provides and
collects information to determine requirements for critical resources needed to
support emergency response activities.
Logistics response system
Per NIMS, part of the ICS logistics branch needed to manage critical resource
logistics and distribution
Transportation Coordinator
Per NRP ESF#1, coordinates critical resource transportation needs between all
organizations and among Federal, State, local, and private agencies and
organizations.
Cargo Transportation Teams
Vehicles and staff necessary to move large amounts of critical resources (e.g.
personnel and trucks, planes, boats, trains)
Evacuation Transportation Team
Vehicles (e.g. trucks, buses, planes, boats, trains) and staff to provide
transportation to evacuees
Federal mobilization base camp
Locations at incident site to receive and house Federal assets
State staging area
Locations in base camps to house Federal assets transferred to the State.
Interagency warehouse
Location with appropriate material-handing equipment (e.g., fork lifts, pallet
jacks) to receive and house critical resources transferred from the State and
donated by nongovernmental organizations (NGOs) and the public
Evacuation Terminal Location for affected evacuated personnel
Warehouse system for stockpiled
resources
A system to track and house stockpiled resources.
Logistic staging area (LSA)
This term is used as a convenience to represent the reception area and
staging/mobilization area defined in NIMS
Reception area
Per NIMS, a location separate from the staging areas where resources report in
for processing and out-processing. This location also provides accountability,
security, situational awareness briefings, safety awareness, and distribution of
IAPs, supplies, equipment, feeding, and bed-down.
Staging area
Per NIMS, a temporary location established where available resources can be
placed while awaiting a tactical assignment.
Incident base
Per NIMS, the location at which primary support activities are conducted. A
single incident base is established to house all equipment and personnel support
operations. The incident base should be designed to be able to support
operations at multiple incident sites
Camps
Per NIMS, a location that is separate from the incident base and located in
satellite fashion from the incident base where it can best support incident
operations. Camps provide certain essential auxiliary forms of support, such as
food, sleeping areas, and sanitation. It may also provide minor maintenance
232 Target Capabilities List
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Resource Elements Components and Description
and servicing of equipment. Camps may be relocated to meet changing
operational requirements.
Mobilization and staging areas
Per NIMS, staging areas will be established by the Operations Section Chief to
enable positioning of and accounting for resources not immediately assigned.
A staging area can be any location in which personnel, supplies, and equipment
can be temporarily housed or parked while awaiting operational assignment.
Staging areas may include temporary feeding, fueling, and sanitation services.
Personnel must check-in with the resources unit at the staging area, while
supplies and equipment are checked in with the supply unit. If neither of these
functions is activated, resources report to the Staging Area Manager for
direction.
Critical Resources Unit Leader
Per NIMS, this position tracks and maintains the status and availability of
critical resources assigned to each incident under the area command
Planning Assumptions
General
The capability is constant across all 15 National Planning Scenarios; however, hazardous materials
(HazMat) response incidents will require specialized, already established teams to assist with the
incident. Regardless, this capability functions across all scenarios, adjusting to the needs of the
incident.
Significant, additional logistical support and coordination and public information systems will be
required whenever a “shelter in place” or a “quarantine” order is implemented.
The U.S. Department of Homeland Security (DHS) will likely raise the Homeland Security Advisory
System (HSAS) to “red” status immediately following a terrorist attack for designated areas, if not the
entire Nation. Depending on the location, scope, and magnitude of the event, this elevated status can
prompt actions limiting the availability of air transportation within the United States. Such travel
limitations can negatively impact the timely convergence at the disaster-affected area of needed
personnel and material resources.
Jurisdictions will identify where and how to replenish the depleted resources needed to further
manage the incident.
Development of plans, procedures, and protocols for resource management in accordance with the
National Incident Management System (NIMS) will be outlined within the planning capability.
Assistance from private contractors and voluntary agencies will be forthcoming to help the
community during the incident. Pre-contracted services may be necessary and are encouraged
through public and private sector organizations and partnerships.
Resources are categorized by material or service provided. Per NIMS, resources are defined by the
following status conditions:
Assigned resources -- the status condition where personnel, teams, equipment, or facilities are
checked in or, in the case of equipment and facilities, receipted for and are assigned to support
incident operations.
Available resources -- the status condition where personnel, teams, equipment, or facilities are
checked in or, in the case of equipment and facilities, receipted for, assigned to an incident, and
made ready for a specific work detail or function
Out of service resources -- the status condition where personnel, teams, equipment, or facilities
are assigned to an incident but are unable to function for mechanical, rest, or personal reasons or
because their condition makes them unusable
Target Capabilities List 233
RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION
Interstate and intrastate mutual aid agreements will be utilized (State, tribal, and local).
Emergency Management Assistance Compact (EMAC) will be implemented based upon Federal
declarations.
Jurisdictions’ emergency response plans should include pre-contracted services with public and
private entitities.
Most capability elements will be needed quickly; they must be available to respond in less than 1 hour
from the initial incident to manage the scene. However, because this capability deals with critical
resource logistics and distribution, the timeframe may be slightly longer (1-3 hours, depending on the
resource) but still required locally.
Warehouses will securely store and handle all stockpiled materials under appropriate conditions that
will maintain their stability, integrity, and effectiveness while providing appropriate levels of physical
security for all materials and facilities.
Scenario-Specific
Based upon scenario conditions, a 7.2-magnitude earthquake with a subsequent 8.0 earthquake
following occurs along a fault zone in a major metropolitan area, greatly affecting a 6-county region
with a population of approximately 10 million people. Approximately 150,000 buildings are
destroyed and 1 million buildings are damaged. All typed personnel are based on Federal Emergency
Management Agency (FEMA) Typed Resource Definitions.
Assume 300,000 people will need to evacuate area. Of this, 50 percent lack the capability to self-
evacuate.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource
Organization
Estimated Capacity Scenario Requirement
Values
Quantity of Resources
Needed
Logistics Planning
Manager
1 plan per jurisdiction
affected
1 area affected
1 Type III Planning
Manager
National tracking
system
1 national system can
find resources to
support multi-
county/region
earthquake response
operations
1 national tracking system
Tracking system
One system is needed
for each area involved
One per state and one per
jurisdiction
Rapid Needs
Assessment Team
1 team (with backup)
can assess 6-county
area
6-county affected area
2 teams (1 in affected
region; 1 as backup)
Logistics response
system
Incident will require full
activation of logistics
branch to manage critical
resource logistics and
distribution
1 logistics response system
Transportation
1 coordinator per EOC
Scenario will require 1coordinator to sit in
234 Target Capabilities List
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Resource
Organization
Estimated Capacity Scenario Requirement
Values
Quantity of Resources
Needed
Coordinator resources from multiple
jurisdictions to help
support the incident,
requiring the coordinator
to monitor and
troubleshoot movement of
resources
Emergency Operations
Center (EOC); (can be
component Emergency
Support Function (ESF) #1)
Cargo transportation
teams
Volume capacity of
vehicles will vary
Scenario will require at
least: 550,000 gallons of
water per day (1
gallon/person/day) for
displaced persons;
2,750,000 pounds of ice
per day (1 5-pound
bag/person/day);
Other critical incident-
specific resources
Total volume of resources
divided by the volume
capacity of vehicle
multiplied by amount of
resource needed
Evacuation
transportation Team
Carrying capacity of
vehicles will vary
150,000 people will
require assistance with
transportation for
evacuation; transportation
assets can be recycled and
used multiple times during
an evacuation
Total number of evacuees
divided by passenger
capacity of vehicle
Federal mobilization
base camp
Scenario will require large
amounts of critical
resources immediately
2 base camps to receive
Federal assets
State staging area
Two staging areas per base
camp
4 staging areas
Interagency
warehouse
Location capacity will
vary
Incident will require one
location for critical
resources to be delivered
1 warehouse
Evacuation terminal
Location capacity will
vary
As designated in
jurisdictional response
plans
A number should be
outlined in emergency
response plans
Warehouse system
for stockpiled
resources
Each entity of government
needs a warehouse system
to track stockpiled goods
1 Federal, 1 State, and 1
Local.
Approaches for Large-Scale Events
The capability is not dependent on specification of an incident and will remain constant among the 15
National Planning Scenarios.
Target Capabilities List 235
RESPOND MISSION: CRITICAL RESOURCE LOGISTICS AND DISTRIBUTION
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
Supported by
Element
Logistics Planning
Manager
Personnel 1 Per FEMA Region Federal
(DHS/FEMA)
Direct Critical
Resource Logistics
and Distribution
Logistics Planning
Manager
Personnel 1 Per State and
territory
States Direct Critical
Resource Logistics
and Distribution
Type IV Logistics
Planning Manager
Personnel 1 Per jurisdiction Local Direct Critical
Resource Logistics
and Distribution
National tracking
system
Network 1 Nationally Federal Direct Critical
Resource Logistics
and Distribution
Tracking system Network 1 Per state State Direct Critical
Resource Logistics
and Distribution
Tracking system Network or
data
1 Per jurisdiction Local Direct Critical
Resource Logistics
and Distribution
Rapid Needs
Assessment Team
NIMS typed
resource
organization
1 Per FEMA Region Federal
(DHS/FEMA)
Direct Critical
Resource Logistics
and Distribution
Logistics response
system
Resource
Organization
1 Nationally Federal All Activities
Transportation
Coordinator
Personnel 1 Per EOC Federal/State/
Local
Transport, Track,
and Manage
Resources
Cargo
Transportation
Team
Non-NIMS
Resource
Organization
1 Per jurisdiction Local Transport, Track,
and Manage
Resources
Federal
mobilization base
camp
Non-NIMS
Resource
Organization
Not pre-established Federal Acquire Resources
Transport, Track,
and Manage
Resources
State staging area Non-NIMS
Resource
Organization
2 Per State and
territory
State Acquire Resources
Transport, Track,
and Manage
Resources
Interagency
warehouse
Non- Resource
Organization
1 Per incident Local Acquire Resources
Transport, Track,
236 Target Capabilities List
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
Supported by
Element
and Manage
Resources
Warehouse system
for stockpiled
resources
Non-Resource
Organization
1 Nationally Federal Acquire Resources
Transport, Track,
and Manage
Resources
Warehouse system
for stockpiled
resources
Non-Resource
Organization
1 Per State and
territory
State Acquire Resources
Transport, Track,
and Manage
Resources
Warehouse system
for stockpiled
resources
Non-Resource
Organization
1 Per organization NGO Acquire Resources
Transport, Track,
and Manage
Resources
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement.
U.S. Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
5. Homeland Security: Information Sharing Responsibilities, Challenges, and Key Management Issues. GAO–
03–1165T. U.S. General Accounting Office. September 2003. http://www.gao.gov/new.items/d031165t.pdf.
6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management
Initiative. U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
7. NFPA 30¸Flammable and Combustible Liquids Code. National Fire Protection Association, 2003 Edition.
http://nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=30
8. NFPA 58, Liquefied Petroleum Gas Code. National Fire Protection Association, 2004 Edition.
http://nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=58
Target Capabilities 237
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
VOLUNTEER MANAGEMENT AND DONATIONS
Capability Definition
Volunteer Management and Donations is the capability to effectively coordinate the use of volunteers and
donations in support of domestic incident management.
Outcome
The positive effect of using volunteers and donations is maximized to augment incident operations.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
The capability supports the following Emergency Support Functions (ESFs):
Volunteer and Donations Management Support Annex
ESF #6: Mass Care, Housing and Human Services
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B1e 1.1
Develop NIMS-compatible plans, policies, and protocols for coordinating the management of
volunteers
Res.B1e 1.3.1 Develop plans, policies, and protocols for coordinating the management of donated goods
Res.B1e 1.3.2
Develop plans, policies, and protocols for coordinating the referral of undesignated cash
donations
Res.B1e 1.1.8
Develop plan to open and staff a donations call center to accept, match and process offers of
goods and services
Res.B1e 1.2.1
Develop system/criteria for evaluating and/or vetting voluntary organizations and/or relief
funds
Res.B1e 1.2.2 Develop a list of verified and/or vetted voluntary organizations and/or relief funds
Res.B1e 1.4.1
Develop plans for effective information management communicating with Public Information
Officers (PIOs) at all levels
Res.B1e 1.4.2
Develop plans to coordinate with local/State/tribal/Federal government, nongovernmental
organizations, and private entities to effectively use volunteers, donated goods and cash
donations
Res.B1e 1.4.3
Develop outreach plan designed to educate the preparedness and response community about
the functions of the volunteers and donations management capability
238 National Preparedness Guidelines
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Res.B1e 6.2.2
Develop a strategic facilities management plan to identify, staff and operate all facilities
including multi-agency warehouse, volunteer and donations coordination center, volunteer
reception center(s) and emergency distribution centers
Res.B1e 1.1.5 Research existing liability issues and laws that affect volunteer utilization.
Res.B1e 1.1.5.1 Encourage agencies receiving volunteers to clarify their limits on liability protection
Res.B1e 1.1.6 Determine priority needs and roles required from the volunteers for all-hazards
Res.B1e 1.1.7 Identify potential volunteer opportunities to expedite community involvement
Res.B1e 1.1.8.1 Assign toll free number for use at call center
Res.B.1.e 1.1.9 Develop system or process for ensuring credentialing/accreditation of skilled volunteers
Preparedness Measures Metrics
A Volunteer Management and Donations plan that defines needs for and utilization of
volunteers is in place
Yes/No
Plans specify the criteria for activating the Volunteer Management and Donations
Emergency operations, including establishing a volunteer and donation coordination
center (VDCC)
Yes/No
Volunteer Management and Donations plan address the management of material and cash
donations (e.g. maintenance of appropriate documentation, referral of undesignated cash
donations).
Yes/No
Volunteer Management and Donations plan includes communications requirements (e.g.
provide information via website and toll free number for use at call center, advertise
points of contact for receiving equipment and technical solutions).
Yes/No
Volunteer Management and Donations plan addresses the management of unaffiliated
volunteers (e.g. identify potential volunteer opportunities, determine priority roles and
needs for all hazards, research existing liability issues).
Yes/No
Volunteer Management and Donations plan addresses long-term recovery (e.g. allocate
donations, assess need for volunteers, brief major donors on re-direction of donations).
Yes/No
Volunteer Management and Donations plan addresses facility management (e.g. identify,
staff, operate multi-agency warehouses, volunteer and donations coordination centers,
volunteer reception centers, emergency distribution centers).
Yes/No
Volunteer Management and Donations plan addresses the safety, security, and self-
sufficiency of facilities and materials
Yes/No
National and State Volunteer Organizations Active in Disaster (VOAD) are established
and coordinated with during disaster planning
Yes/No
Cooperative agreements and memoranda of understanding (MOUs) with volunteer
management organizations are developed as appropriate
Yes/No
Norms and standards set regarding appropriate, fair and equal allocation of all donated
recourses to ensure 501 (c) 3 or other determined qualifiers are used
Yes/No
Points of contact for donations are shared with outside jurisdictions, the private sector,
Yes/No
Target Capabilities 239
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
non-government organizations, and the media, as appropriate
A database is in place to track the status of resources (e.g. when supplies are requested,
where supplies will be delivered, constant inventory updates.).
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B1e 2.2.1 Exercise plans for volunteer management and donations
Res.B1e 2.1.1
Develop and implement awareness-training programs regarding the use of volunteers and
donations
Res.B1e 2.2.1.1 Develop and implement exercise and training for the distribution of public information
Res.B1e. 2.1.6 Develop just-in-time training program for volunteers to perform required tasks
Res.B1e 2.1.2 Develop and conduct training to improve all-hazard incident management capability
Res.B1e 2.2.2
Conduct an after action review to determine strengths and shortfalls and develop a corrective
plan accordingly
Res.B1e 2.1.5
Participate in training exercises with government agencies and other nongovernmental
organizations, as appropriate
Res.B1e 2.1.3
Complete relevant Incident Command System and/or National Incident Management System
training for appropriate personnel and volunteers
Res.B1e 2.1.4
Conduct internal and external training about the activities and responsibilities of volunteers and
donations capability
Preparedness Measures Metric
Plans to coordinate exercise and training with local/State/tribal/Federal government and
nongovernmental organizations are in place
Yes/No
Frequency with which volunteers and donations management plan is exercised Every 12 months
External awareness training is provided for government and nongovernmental partners Yes/No
Internal awareness training is provided for staff Yes/No
Percent of personnel trained to manage required systems, materials and technology per
their roles and responsibilities
100%
Percent of donation management team and warehouse personnel trained on distribution
plan and procedures
100%
240 National Preparedness Guidelines
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Performance Tasks and Measures/Metrics
Activity: Coordinate Volunteer Management Operations and the Establishment of
Warehouses and Materials Handling Equipment
Definition: In response to citizens, businesses, and corporations spontaneously volunteering
and or/donating goods or cash, provide program to manage response plans.
Critical Tasks
Res.B1e 3.1
Review and activate State and local plans for donations and volunteers
Res.B1e 3.4.1
Coordinate voluntary support/activities with community/tribal leadership and liaise with
local agencies
Res.B1e 6.2.1
Locate and establish warehouses and materials handling equipment
Res.B1e 6.2.2
Develop a strategic facilities management plan (multi-agency warehouse, emergency
distribution centers)
Res.B1e 3.3.1
Establish a liaison with media outlets and other stakeholders (e.g., Congress, Federal
agencies) to provide information about volunteers and donations
Res.B1e 3.3.2
Work closely with public information officers (PIOs) to disseminate critical information
about appropriate ways to volunteer and donate
Res.B1e 6.2.2.1
Implement a strategic facilities management plan (multi-agency warehouse, emergency
distribution centers)
Res.B1e 3.4.2
Coordinate and collaborate with State and national Voluntary Organizations Active in
Disasters (VOAD) and its members
Res.B1e 3.5.3
Collaborate with other agencies/organizations/businesses regarding volunteers and donations
Res.B1e 6.1.2
Designate and advertise points of contact for receiving equipment and technical (i.e.,
communications, logistics, housing, medical) solutions from the private sector, outside
jurisdictions, nongovernmental organizations, and volunteers
Res.B1e 4.1.3
Establish a volunteer and donations coordination center (VDCC)
Res.B1e 3.4
Coordinate with agencies offering and/or accepting donations
Res.B1e 3.5.4
Gather donations information about collections, distributions and other events concerning
donations from the field to help manage the effect
Res.B1e 3.5.5
Manage large numbers of government and nongovernmental volunteers in disaster
Performance Measures Metric
Time in which volunteer and donations coordination center is activated Within 12 hours from
incident
Time in which the media and other agencies are provided precise information about
volunteer and donation needs and give guidance on appropriate ways to help
Within 24 hours from the
end of a disaster or
incident
Activity: Activate Volunteer Management and Donations Emergency Plan
Definition: In response to an incident, mobilize personnel and facilities to begin processing
offers of assistance.
Target Capabilities 241
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Critical Tasks
Res.B1e 4.1.2 Activate pre-assigned toll-free numbers
Res.B1e 3.3.2
Work closely with a public information officer to disseminate critical information about
appropriate ways to volunteer and donate
Res.B1e 4.2.2
Brief senior leadership and elected officials (government, Federal Coordinating Officer
[FCO], Congress staff)
Res.B1e 4.2.3.1 Work with all affected local/State/tribal/Federal governments
Res.B1e 4.1.1 Activate donations/volunteer coordination teams (DVCT)
Res.B1e 4.1.3 Establish a volunteer and donations coordination center (VDCC)
Res.B1e 3.4.2
Coordinate and collaborate with Voluntary Organizations Active in Disaster (VOAD), its
members and other vetted agencies/organizations/businesses
Res.B1e 3.1 Review and activate State and local plans for volunteers and donations
Res.B1e 4.1.4 Activate website for receiving monetary donations, and offers of other donations/volunteers
Performance Measures Metric
Time in which volunteer/donations coordinators are deployed
Within 6 hours from the end of a
disaster or incident
Time in which pre-assigned toll-free numbers are activated Within 12 hours from incident
Points of contact for donations are advertised to outside jurisdictions, the
private sector, non-governmental organizations, and the media
Yes/No
Senior leadership and elected officials are briefed Within 12 hours from incident
Activity: Organize Volunteers and Assign Them to Disaster Relief Efforts
Definition: Gather and provide information to efficiently refer volunteers to assigned
organizations and agencies per developed tactical plans.
Critical Tasks
Res.B1e 5.2.1
Operate call centers and websites to gather information and register if possible, unaffiliated
spontaneous volunteers
Res.B1e 5.2.4 Match individual volunteers with requests from agencies
Res.B1e 5.2.2 Conduct pre-deployment/pre-assignment briefing for volunteers
Res.B1e 5.3.1 Provide just-in-time training program for volunteers to perform required tasks
Res.B1e 5.5 Coordinate with voluntary agencies
Res.B1e 5.5.1 Coordinate solicitation of skilled volunteers and technical capabilities
Res.B1e 5.2.3 Implement system to check credentialing/accreditation of skilled volunteers if necessary
Res.B1e 5.6 Support response operations using volunteer resources and volunteered technical capabilities
242 National Preparedness Guidelines
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Performance Measures Metric
Time in which ability is in place to: receive, register and provide information to
volunteers (via phone bank, web site virtual call center, etc.)
Within 24 hours from incident
Percent of volunteers who receive briefing 100%
Percent of volunteers who are briefed prior to start of assignment 100%
Percent of volunteers who are matched with assignments per their capabilities
and the tactical plan
100%
Percent of volunteers who are referred 100%
Activity: Collect and Manage Material Donations
Definition: Once activated, receive and manage unsolicited in-kind donations.
Critical Tasks
Res.B1e 6.1.1
Operate call centers and websites to collect information on material donations
Res.B1e 6.2.1
Locate and establish warehouses and material handling equipment
Res.B1e 6.3
Gather material donations intelligence from the field
Performance Measures Metric
Time in which a volunteer and donations staging area, including information
management technology and communications equipment is established and
operational
Within 48 hours from an
incident
Time in which a strategic facility management plan is implemented
Within 24 hours from
notification of a disaster or
impending disaster
Time in which an operational donations management warehouse(s) with
professional and volunteer staff is established
Within 24 hours from the
establishment of the location of a
warehouse
Activity: Collect and Manage Cash Donations
Definition: Once activated, refer cash donations to appropriate voluntary organizations.
Critical Tasks
Res.B1e 7.1 Educate the public through press releases on the benefits of cash donations to voluntary
agencies
Res.B1e 7.4 Direct cash donations to voluntary agencies supporting the incident
Res.B1e 7.3.1 Coordinate with agencies collecting cash donations
Res.B1e 7.3.2 Collect cash donations
Res.B1e 7.2 Keep appropriate documentation from all undesignated cash/monetary donations
Res.B1e 7.3 Coordinate with verified and/or vetted agencies for the transfer of undesignated cash donations
Target Capabilities 243
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Performance Measures Metric
Accuracy in accountability records is established and maintained Yes/No
Percent of personnel following policies and procedures concerning undesignated cash
donations
100%
Percent of personnel following policies and procedures concerning referral of cash
donations to appropriate voluntary agencies
100%
Activity: Coordinate Distribution of Donations
Definition: Process and disburse goods based on established plan.
Critical Tasks
Res.B1e 8.2 Manage surge in unsolicited donations and in-kind materials
Res.B1e 8.3
Coordinate with local/State/tribal/Federal government, nongovernmental organizations, and
private entities to effectively use unsolicited goods and undesignated cash donations
Res.B1e 8.4 Implement proper accounting policies and protocols to handle cash donations
Performance Measures Metric
Percent of donated goods that are inventoried 100%
Percent of unneeded and unusable donated goods managed according to developed plans 100%
Activity: Transition to Long-Term Recovery
Definition: Period after the incident is determined to be under control and extended care/service
plan by partner government agencies and NGOs becomes active
Critical Tasks
Res.B1e 9.2 Allocate undesignated cash donations and in-kind material donations to long-term recovery
effort
Res.B1e 9.3 Assess the long-term needs and requirements for volunteers and donations
Res.B1e 9.4 Coordinate appropriate messages with public information officers and media outlets
Res.B1e 9.5 Brief major donors on transition and redirection of donations
Performance Measures Metric
Inventory of donations has been completed Yes/No
Percent of donations re-designated/re-assigned in accordance with donors’ intent and/or
the donation management plan
100%
Needs and requirements for volunteers and donations for long-term recovery are assessed Yes/No
Transition is accomplished between the Volunteer/Donations Coordination Center and
mass care, EOC management and other agencies/organizations/businesses
Yes/No
244 National Preparedness Guidelines
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Activity: Deactivate Volunteer Management and Donations
Definition: Based on need assessments, deactivate components of the plan (i.e. warehouse, phone
bank) when appropriate
Critical Tasks
Res.B1e 10.3
Conduct appropriate salvage of remaining donated goods once response/recovery phase ends
Res.B1e 10.1.2
Demobilize deployed volunteers
Res.B1e 10.1.3
Demobilize volunteered technical capabilities
Res.B1e 10.1
Close Volunteer/Donations Coordination Center and other facilities such as phone bank and
warehouses
Res.B1e 10.2
Conduct a debriefing of Volunteer Management and Donations personnel
Performance Measures Metric
Percent of donations re-designated/re-assigned in accordance with donors’ intent and/or
the donation management plan
100%
Percent of appropriate personnel debriefed 100%
Stakeholders are provided with information from lessons learned to improve future events Yes/No
Linked Capabilities
Linked Capability Relationship
Community Preparedness
and Participation
Community Preparedness and Participation brings nongovernmental organizations and
entities together with government emergency planners through Citizen Corps Councils
to integrate resources from nongovernmental organizations and entities into emergency
response operations plans through pre-disaster MOAs and MOUs for pro-bono NIMS-
typed resources and NIMS-credentialed volunteers and to develop processes for
coordinating unaffiliated volunteers registering into Volunteer Management and
Donations.
Community Preparedness and Participation provides all-hazards preparedness
education and training to develop more resilient community organizations and
individuals.
Emergency Operations
Center Management
Emergency Operations Center Management provides resources and situation reports to
Volunteer Management and Donations, which provides situation reports in return.
Mass Care (Sheltering,
Feeding, and Related
Services)
Mass Care receives donated goods and individuals referred by Volunteer Management
and Donations.
Emergency Public
Information and Warning
Volunteer Management and Donations requests public service announcements from
Emergency Public Information and Warning.
Target Capabilities 245
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Coordinate
Management for
Volunteer
Management
and Donations
Operations
and the
Establishment
of Warehouses
and Materials
Handling
Equipment
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Management structure mobilized
Activate
Volunteers and
Donations
Emergency Plan
Start: Offers of
volunteers and
donations
Ready to manage volunteers
and contributions
Emergency
Operations Center
Management
Mass Care
(Sheltering,
Feeding, and
Related Services)
End: Return all personnel to
pre-incident “ready “ status
Emergency Public
Information and
Warning
Community
Preparedness
and Participation
Volunteers
organized
and assigned
Citizens encouraged to
volunteer
Coordinate
Distribution of
Donations
Deactivate
Volunteer and
Donations
Management
Unaffiliated individuals and undistributed
resources transition to recovery
Receive deployed
inidividuals
Individuals and contributions begin to arrive
Resources provided
Organize
Volunteers and
Assign Them to
Disaster Relief
Efforts
Collect and
Manage Material
Donations
Collect and
Manage Cash
Donations
Provide ongoing
status reports
Request public
announcement
Volunteers requested
Linked
Capabilities
Volunteer Management and Donations
Capability
Capability Activity Process Flow
Relationship
Transition to Long-
Term Recovery
Contributions
ready for
distribution
Contributions
distributed
Cash donation
collected and
managed
Provide sitreps
246 National Preparedness Guidelines
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Resource Element Description
Resource Elements Components and Description
Volunteer and Donations
Coordinator Center (VDCC) and
Phone Bank
Capability established pre-incident and activated as needed to handle calls.
Personnel: 60 operators (call takers) per shift; 6 supervisors per shift; 1
manager; 1 donation coordination team of 8–10 people with clerical support; 1
volunteer coordination team of 8–10 people to qualify offers of services and
develop links to agencies needing volunteers
Equipment: networked computer terminals for call takers; access to high-speed
Internet; phone bank database on secure Web site with logon, passwords, and
varying levels of access; an 800 telephone number with 20–60 line capability;
20+ additional lines for coordination teams; and computers for coordination
teams
Volunteer/Donations
Coordinator
Per NIMS, there are Type I, II, III, and IV donations coordinators, who manage
the VDCC and media relations. The Volunteer and Donations Coordinator
possess an operational knowledge of all aspects of donations coordination,
including management of volunteers, funds, and goods, from concerned
citizens and private organizations following a catastrophic disaster situation.
Donation Coordination Team
Per NIMS, a Donation Coordination Team consists of persons trained and
experienced in all aspects of donations management.
Donations Specialist
Per NIMS, an individual who possesses an overall knowledge of all aspects of
donations management at all levels. Capable of assisting in the physical
establishment of the Volunteer and Donations Coordination Center (VDCC)
and the Phone Bank (if required). This includes facility, data management, and
internal operations.
Transportation Team Trucks and drivers to pick up and deliver donated goods
Warehousing Team One warehouse manager, 4 personnel, and associated equipment
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were
reviewed to identify required adjustments or additions to the planning factors and national targets.
Volunteer Management and Donations will require significant attention immediately following the
event. If not promptly and appropriately managed, attention to this activity will demand the diversion
of resources away from service delivery.
Offers of assistance will come from other countries.
Seasonal considerations include the dead of winter instead of summer.
Scenario-Specific
Three million are affected, 2.5 million are displaced, 30,000 are killed, and 150,000 are injured.
Infrastructure failure is pervasive in communications, energy, and water and sewer sectors.
Resources are needed within 12–48 hours, which can be located regionally. The optimal location
should be 15–20 miles from the event site (ground zero). However, damage to infrastructure may
dictate otherwise. The Volunteer and Donations Coordination Center and Phone Bank should
Target Capabilities 247
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
generally be located close to the State’s Emergency Operation Center (EOC) for coordination
purposes.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Earthquake)
Resource
Organization
Estimated
Capacity
Scenario
Requirement Values
Quantity of
Resources Needed
Volunteer and Donations
Coordination Center and
Phone Bank
Handles 5,000
calls/day
60 operators for 14
hours/day
An average of 2,500 calls
come in a day resulting
from media blitz; each call
averages 10 minutes
60 operators per shift
2 shifts = 120 operators
= 2 Teams
Volunteer/Donations
Coordinator
Manage centers and
media relations.
Manage 2,500 calls per day
and provide support to
1,000,000 displaced persons
4 per region
Transportation
1 26-ft. container
holds 4 tons
1,000,000 persons are
displaced; need 10 pounds
of clothing and personal
goods per day = 5000 tons
per day
1,250 trucks and drivers
to pick up and deliver
goods
Warehousing Team
1 warehousing
team (1manager
and 4 personnel can
handle 100,000
tons of material
1,000,000 persons are
displaced; need 10 pounds
of clothing and personal
goods per day = 5000 tons
per day
100,000 tons of material
for each warehouse
Approaches for Large-Scale Events
Due to the possibility of severely damaged roads, alternative methods of transportation (e.g., helicopters)
will need to be considered.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per
x)
Lead Capability Activity
supported by
Element
Volunteer/
Donations
Coordination
Center (VDCC)
Resource
organization
1 Per State NGO Organize and Assign
Volunteers
Collect and Manage
Material Donations
Collect and Manage
Cash Donations
Volunteer/
Donations
Coordinators
Personnel 4 Per region NGO All Activities
248 National Preparedness Guidelines
RESPOND MISSION: VOLUNTEER MANAGEMENT AND DONATIONS
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per
x)
Lead Capability Activity
supported by
Element
Transportation Non-NIMS
Resource
Organization
As needed Per incident State/Local/N
GO/Private
Sector
Collect and Manage
Material Donations
Warehousing Team Non-NIMS
Resource
Organization
1 - 6 Per incident NGO Collect and Manage
Material Donations
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press
Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
5. Citizen Corps. U.S. Department of Homeland Security. 2004. http://www.citizencorps.gov.
6. National Voluntary Organizations Active in Disaster. 2004. http://www.nvoad.org.
Target Capabilities 249
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
RESPONDER SAFETY AND HEALTH
Capability Definition
Responder Safety and Health is the capability that ensures adequate trained and equipped personnel and
resources are available at the time of an incident to protect the safety and health of on scene first
responders, hospital/medical facility personnel (first receivers), and skilled support personnel through the
creation and maintenance of an effective safety and health program. This program needs to comply with
the Occupational Safety and Health Administration’s (OSHA) “HAZWOPER” standard (29 CFR
1910.120, as implemented by EPA or State authorities) and any other applicable Federal and State
regulations. The program also needs to be integrated into the Incident Command System (ICS) and
include training, exposure monitoring, personal protective equipment, health and safety planning, risk
management practices, medical care, decontamination procedures, infection control, vaccinations for
preventable diseases, adequate work-schedule relief, psychological support, and follow-up assessments.
This capability identifies the critical personnel, equipment, training, and other resources needed to ensure
that all workers are protected from all hazards, including fire (heat and products of combustion), CBRNE
(chemical, biological, radiological, nuclear, or explosive) materials, electrical hazards, collapsed
structures, debris, acts of violence, and others.
The Responder Safety and Health capability is a critical component of safe overall emergency
management. First responders include police, fire, emergency medical services (EMS), and other
emergency personnel, as well as emergency management, public health, clinical care, public works, and
other skilled support personnel (such as equipment operators). This extended definition includes a very
broad set of workers and a wide range of likely response-related activities, resulting in an increased
number of potential hazards and exposures. Building the ability to protect all responders from all hazards
is a substantial undertaking that involves prevention, preparedness, response, and recovery efforts.
This capability supports both the Safety Officer position identified in the National Incident Management
System (NIMS)/incident command system (ICS) and the Worker Safety and Health Support Annex to the
National Response Plan (NRP). The Type 1 Safety Officer described in this capability has yet to be fully
defined (to include managing all of the hazards that first responders are likely to face), but the concept
used is the same as the “Disaster Safety Manager” described in Protecting Emergency Responders: Safety
Management in Disaster and Terrorism Response (NIOSH, 2004). In addition, the list of services that are
critical for this capability is consistent with the actions specified under the Worker Safety and Health
Support Annex and in the Guidelines for hazmat/WMD Response, Planning and Prevention Training
(FEMA, 2003).
During the response to any incident, employers are responsible primarily for the safety and health of their
employees. However, the ICS creates a unified safety and health organization under the Safety Officer. In
large-scale incidents, because of the number and varieties of hazards and workers, the Safety Officer
would be used more as a Safety Manager. This technical capability therefore does not prescribe a certain
level of preparedness for any particular organization; rather, it specifies the need for personal protective
equipment (PPE), Safety Officers, and so forth and allows local entities to determine the best way to
obtain the needed resources (e.g., through mutual aid, State resources, or Federal resources) for the first
72 hours from the “initial response” operations.
Outcome
No illnesses or injury to any first responder, first receiver, medical facility staff member, or other skilled
support personnel as a result of preventable exposure to secondary trauma, chemical/radiological release,
250 National Preparedness Guidelines
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
infectious disease, or physical and emotional stress after the initial incident or during decontamination
and incident follow-up.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs) and Annex:
ESF #3: Public Works and Engineering
ESF #5: Emergency Management
ESF #6: Mass Care, Housing, and Human Services
ESF #8: Public Health and Medical Services
ESF #9: Urban Search and Rescue
ESF #10: Oil and Hazardous Materials Response
ESF #11: Agricultural and Natural Resources
ESF #12: Energy
ESF #13: Public Safety and Security
Worker Safety and Health Support Annex
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B1b 1.1
Develop and adopt agency/jurisdiction safety and health program(s)
Res.B1b 1.2
Conduct a detailed analysis of 15 planning scenarios to ensure that all workers are protected in
performing the tasks from all hazards
Res.B1b 1.3
Establish plans and procedures for identifying sources of additional equipment and expertise if
the safety and health program is overwhelmed
Preparedness Measures Metrics
Safety and health program that includes a personal protective equipment (PPE)
component that adequately addresses respiratory protection and exposure protection for
initial response is in place
Yes/No
Safety and health program addresses acquisition of additional respiratory protection items
for reinforced response or long term incidents
Yes/No
Safety and health program that ensures initial responders are equipped with properly
maintained PPE in adequate supply is in place
Yes/No
Safety and health program ensures access to backup/cache equipment, when necessary for
reinforced on long term incidents
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes procedures
to identify and assess hazards
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes
detection/exposure monitoring
Yes/No
Target Capabilities 251
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
An agency/jurisdiction safety and health program(s) is in place which includes
selection/distribution of PPE
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes health and
safety planning
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes risk
management practices
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes medical
care
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes
decontamination procedures
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes infection
control
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes
vaccinations for preventable diseases
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes adequate
work-schedule relief
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes
psychological support
Yes/No
An agency/jurisdiction safety and health program(s) is in place which includes medical
follow-up assessments
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B1b 2.1.1
Provide all required health and safety training, including pre-incident training , site/incident
specific training, and exercises to develop and maintain appropriate knowledge and expertise for
responders
ResB1b 2.2.1
Conduct health and safety exercises to develop and maintain appropriate knowledge and
expertise for responders
Preparedness Measures Metric
Percent of responders trained to respond to anticipated emergencies (e.g. 15 planning
scenarios)
100%
Safety Officer(s) have the training and experience necessary to manage hazards associated
with all 15 planning scenarios
Yes/No
Percent of responders capable of using PPE (e.g., responders are fitted and medically
cleared to use necessary PPE) so that they have the necessary health and safety training to
perform their anticipated tasks (e.g. awareness level, technician level, etc.) in response to
an incident
100%
The pre-incident safety and health training program is evaluated through emergency
response exercises (e.g., did each responder have the necessary health and safety training
to perform his or her task in the exercise?)
Yes/No
An Incident Specific Health and Safety Plan is developed during exercises as a way to
measure responder safety and health readiness. [These plans can include identifying and
Yes/No
252 National Preparedness Guidelines
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
assessing hazards, detection/exposure monitoring, selection/distribution of PPE,
communication of hazards/protection among response organization, maximum exposure
limits, applied engineering controls, incident specific training, medical
surveillance/monitoring (including psychological first aid), etc.]
Performance Tasks and Measures/Metrics
Activity: Direct Responder Safety and Health Tactical Operations
Definition: Upon dispatch of responders, provide management and coordination of Responder
Safety and Health capability, through demobilization.
Critical Tasks
Res.B1b 3.3.1
Monitor routine and emergency communications within the incident command structure at all
times
Res.B1b 3.3.2
Maintain routine and emergency communications within the incident command structure at all
times during the incident
Res.B1b 3.1
Maintain coordination and communication on safety and health issues between agencies and
departments
Res.B1b 3.7
Contribute to development of the incident action plan (IAP) to establish priorities, procedures,
and actions to be accomplished to meet the incident objectives
Res.B1b 3.7.1
Develop and review components (e.g., safety analysis, site safety and control plan, medical plan,
safety message, etc.) of the IAP
Res.B1b 3.2.2
Contact and work with subject matter experts (SME) from the public/private agencies and
academia who may be able to assist with safety issues at the incident
Res.B1b 3.4.2
Assess the availability of resources/assets provided by public, private, and volunteer
organizations
Res.B1b 3.4.3 Request additional safety and health resources through mutual aid
Res.B1b 3.6 Coordinate and support decontamination activities
Res.B1b 3.4.5 Utilize ordering systems to obtain additional needed resources
Performance Measures Metric
Percent of responders injured or falling ill in response to the incident 0%
Activity: Activate Responder Safety and Health
Definition: In response to Incident Command (IC) recognition of the complexity of hazards in the
incident, mobilize and designate Safety Officer to begin operations or continue IC-initiated
operations
Critical Tasks
Res.B1b 4.1 Designate Safety Officer within the Incident Command System
Res.B1b 4.1.1 Assume responsibility for supervision and management of the Assistant Safety Officer(s) based
Target Capabilities 253
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
on severity and complexity of the incident
ResB1b 4.2 Deploy specialized response teams to provide technical assistance to Safety Officer
Res.B1b 4.3 Ensure ongoing safety and health assessments of response operations
Performance Measures Metric
Time in which Safety Officer is designated within the ICS structure (separate from IC,
who may hold this role for a period of time)
Within 1 hour from
arrival of responders
Time in which deployment actions are initiated for Assistant Safety Officers or Safety
SMEs to provide technical assistance to incident safety official
Within 1-3 hours from
arrival of responders
Activity: Identify Safety/PPE Needs and Distribute PPE
Definition: Upon appointment as Safety Officer, assess safety and heath hazards, inform IC of
needs, and develop site-specific safety and health plan
Critical Tasks
Res.B1b 5.1.2
Observe the scene and review/evaluate hazard and response information as it pertains to the
safety of all persons at the location
Res.B1b 5.4.1 Identify responder safety and health resources required
Res.B1b 5.4.2
Provide command structure with observation-based recommendations for the safety of on-site
personnel
Res.B1b 5.1 Perform an incident safety analysis
Res.B1b 5.1.1
Identify and prioritize the operations, hazards, and exposures of greatest risk to site personnel
and coordinate with the IC to develop specific actions to address them and protect site personnel
Res.B1b 5.2
Assist the incident commander (IC) in developing an incident safety and control plan to respond
within the capabilities of available response personnel, taking into account available resources
such as PPE, monitoring equipment, and control equipment
Performance Measures Metric
Percent of hazards detected/identified and characterized 100%
Time in which an initial incident safety analysis is completed Within 1 hour from responder
arrival
Activity: Site/Incident Specific Safety and Health Training
Definition: Site/Incident specific training provides necessary understanding of the hazards
identified and assessed in the incident, and the necessary precautions. Site/Incident specific
training builds upon pre-incident training, but tailors curriculum to the tasks/hazards of the
incident. Site/Incident specific training should reflect policies and procedures specified in the
incident specific health and safety plan. Site/Incident specific training needs to have a flexible
approach (training may need to be conducted outside of a classroom setting) and should be
conducted prior to commencing response activities.
Critical Tasks
Res.B1b 6.1 Ensure the availability of incident/site-specific training
254 National Preparedness Guidelines
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Res.B1b 6.2
Implement site-specific incident health and safety plan, including after-action care as needed for
on-scene personnel
Res.B1b 6.3 Ensure the provision of appropriate safety and health equipment
Performance Measures Metric
Percent of emergency workers responding to an incident who are provided on-site training
prior to assignment to work at incident
100%
Activity: Ongoing Monitoring of Responder Safety and Health
Definition: Upon assignment of responders to the incident, maintain continuous monitoring of
responder safety and health, proper functioning of PPE and equipment, and awareness of on-site
hazards; oversee decontamination; document all actions and injuries/illnesses; and provide for
emergency and psychological medical care
Critical Tasks
Res.B1b 7.1.1 Ensure the availability of incident/site-specific training
Res.B1b 7.4.3
Implement site-specific incident health and safety plan, including after-action care as needed for
on-scene personnel
Res.B1b 7.4.4 Ensure the provision of appropriate safety and health equipment
Res.B1b 7.5.2
Assist the IC and ICS staff in implementing exposure monitoring and enforcing safety
considerations
Res.B1b 7.5
Identify and implement all corrective actions necessary to ensure the safety and health of all site
personnel
Res.B1b 7.3
Coordinate with Incident Management/Emergency Operations Center (EOC) to ensure that
medical unit is established on site
Res.B1b 7.5.5
Make recommendation to alter, suspend, or terminate any activity judged to be an imminent
danger or immediately dangerous to life and health
Res.B1b 7.4.1
Monitor hazardous site operations and ensure that personnel perform their tasks in a safe manner
and follow the safety-related requirements identified in the IAP
Res.B1b 7.6 Ensure recording and reporting of any and all injuries and illnesses
Performance Measures Metric
Time in which the medical unit is opened and operating within an ICS structure Within 30 minutes
from initial responder’s
arrival on-site
Percent of personnel wearing the required PPE for site entry and work 100%
Percent of workers who have their representative exposure to hazardous substances
quantified and recorded
100%
Percent of personnel who have been decontaminated 100%
Percent of affected personnel treated for injuries and illnesses through a medical unit 100%
Target Capabilities 255
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Activity: Demobilize Responder Safety and Health
Definition: Upon completion of assigned mission, evaluate responder safety and health status
before demobilization and conduct follow-up analysis of health after responder returns to normal
duty
Critical Tasks
Res.B1b 8.1 Conduct post-incident analysis of responder health and safety
Res.B1b 8.2 Monitor psychological and medical status of exposed persons
Res.B1b 8.3
Coordinate with long-term health care to provide comprehensive stress management strategies,
programs, worker crisis counseling, substance abuse services, and mental and behavioral health
support
Res.B1b 8.1.4 Provide critical incident stress management (CISM) strategies, programs, and teams
Res.B1b 8.1.2
Debrief hazardous materials branch/group and all other exposed personnel on site-specific
occupational safety and health issues involving hazardous materials/WMD releases
Res.B1b 8.1.3
Participate in the incident critique process and identify critical safety and health-related
observations of incident activities
Performance Measures Metric
Percent of emergency workers who develop physical symptoms or illness secondary to the
incident
0%
Percent of workers with mental health or stress-related symptoms secondary to the
incident who are treated
100%
Percent of behavioral hazards identified and mitigated (e.g., human/animal remains are
covered)
100%
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
The Incident Commander will be responsible for protecting the safety and health of on-
site responders until the Safety Officer is appointed, at which time, the Incident
Commander will receive guidance from the Safety Officer.
Emergency Operations
Center Management
The EOC may house an Assistant Safety Officer or Safety Manager and serve to
coordinate Responder Safety and Health among different entities both on-site and off-
site.
Environmental Health Environmental Health provides awareness training for safety and health hazards through
a range of response activities and may also be exposed to on-site safety and health
hazards.
Critical Resource
Logistics and
Distribution
Critical Resource Logistics and Distribution provides supply caches and/or
agreements/contracts for the timely delivery of supplies, such as PPE, equipment, and
trained personnel.
Emergency Public Safety
and Security Response
Emergency Public Safety and Security Response provides protection for responders, but
may also be exposed to on-site safety and health hazards.
256 National Preparedness Guidelines
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Linked Capability Relationship
Fire Incident Response
Support
Firefighters and support personnel will be exposed to safety and health hazards posed by
the fires, as well as other on-site safety and health hazards.
Emergency Triage and
Pre-Hospital Treatment
Responders performing triage and providing treatment will be exposed to safety and
health hazards on-site.
Explosive Device
Response Operations
Explosive Device Response Operations personnel will need protection from the safety
and health hazards posed by the device, as well as from secondary safety and health
hazards on-site.
Search and Rescue
(Land-Based)
Search and Rescue personnel will be exposed to on-site safety and health hazards.
WMD and Hazardous
Materials Response and
Decontamination
Personnel responding to hazardous materials or WMD events and providing
decontamination services will be exposed to on-site safety and health hazards.
Target Capabilities 257
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Direct
Responder
Safety and
Health Tactical
Operations
End: Return to normal
duties
Activate
Responder Safety
and Health
Start:
Indication of
need for
responders
On-Site Incident
Management
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Need to protect responder safety and health
Identify Safety/
PPE Needs and
Distribute PPE
Safety officer
established
Request resources
Demobilize
Responder Safety
and Health
Conduct post-incident analysis of responder
safety and health
Explosive Device
Response
Operations
Emergency
Operations Center
Management
Search and Rescue
(Land-Based)
WMD/Hazardous
Materials
Response and
Decontamination
Site/Incidnet
Specific Safety
and Health
Training
Ongoing
Monitoring of
Responder Safety
and Health
Provide results of environmental health assessment
Provider responder medical condition information
Environmental
Health
Responders safety and
health monitored
Provide identified safety and health resources
Safety/PPE issues identified
and appropriate PPE
distributed
Provide site/incident
specific training
Ensure responders’ safety
Area monitored for
hazards
Inform of needs
and safety issues
Provide information on safety conditions
Inform of needs and
safety issues
Responders
decontaminated
Decontaminate responders
Responder Safety and
Health Capability
Linked
Capabilities
Relationship
Capability Activity Process Flow
Provide sitreps
Provide safety
inputs for IAP
Provide sitreps
Ensure
responders’ safety
Critical Resource
Logistics and
Distribution
Resources provided
Emergency
Public Safety and
Security Response
Fire Incident
Response Support
Emergency
Triage and Pre-
Hospital
Treatment
258 National Preparedness Guidelines
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Resource Element Description
Resource Elements Components and Description
Type I Safety Officer As defined in the NIMS document, a member of the command staff responsible for
monitoring and assessing safety hazards or unsafe conditions, and for developing
measures for ensuring personnel safety. The Safety Officer monitors incident
operations and advises the IC on all matters related to operational safety, including
the health and safety of emergency responder personnel. May appoint Assistant
Safety Officers as needed.
Specialized Safety Officer Specialization needs determined by each Urban Area Security Initiative (UASI)
region and county based on their own specialized hazards and risks (e.g.,
jurisdictions with nuclear reactors may need specialized Safety Officers trained in
radiation/nuclear hazards.)
Specialized subject matter
experts
To include Certified Industrial Hygienist, Public Health Service, radiological
expert, biological expert, engineer, etc.
Analytical laboratories Laboratory capability to analyze samples of any CBRNE agent per day and to
provide supplemental field instruments for hazard detection/characterization
Equipment caches To include PPE, monitoring/detection equipment
Respiratory Fit-test Mobile
Units
Manufacturer approved mobile fit test units to allow for needed fit testing in the
field
Medical Unit See NIMS/FIRESCOPE for definitions
Training centers Locations (including mobile units) to train (and maintain proficiency of) all
responders up to minimum training requirements prior to an incident
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability factors were
developed from an in-depth analysis of the aerosolized anthrax scenario. Other scenarios were
reviewed to identify required adjustments or additions to the planning factors and national targets.
The jurisdiction may have limited Safety Officers with high-level expertise and experience in a
specialized subject area, such as radiation, hazardous materials (HazMat), building/structure collapse,
biohazard, and so forth.
Mental health services will be sought by victims and responders in and near the affected area, as well
as (on a lesser scale) throughout the Nation.
Standards, training, and certification are limited for high-level (national-State) Safety Officers.
Various Federal and State safety and health laws and regulations and related national consensus
standards may overlap with one another, conflict in their requirements, and have gaps in their
requirements or coverage. This program assumes compliance with the Occupational Safety and
Health Administration’s (OSHA) “HAZWOPER” standard (29 CFR 1910.120, as implemented by
EPA or State authorities) and any other applicable Federal and State regulations.
The larger and/or more complex the incident, the more likely that the local initial first responders’
safety and health programs will be unable to cope effectively and will need outside assistance from
regions, State and Federal agencies.
The more unusual or out of the ordinary the incident, the more likely the local initial first response
safety and health programs will be less able to cope effectively and will need outside assistance from
regions, State and Federal agencies.
Target Capabilities 259
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Limited funding, staffing and levels of equipment will negatively impact an agency/jurisdiction’s
ability to train and sustain appropriate levels of training.
The larger and/or more complex the incident, the more likely that the designation of a Safety Officer
and Assistant Safety Officers will be needed.
The more unusual or out of the ordinary the incident, the more likely that the Safety Officer will need
assistance Safety Officers and Safety SMEs and that outside assistance from private sector, academia,
regions, State and Federal agencies will be needed.
The larger and/or more complex the incident, the more likely there will be a significant need for
safety and health management at the incident scene(s).
With insufficient training or PPE, responders may become injured or ill. Responders cannot work
due to lack of PPE or training.
Additional training and/or PPE may be needed to address new hazards/new employees.
The larger and/or more complex the incident, the more likely that there will be a significant need for
safety and health management during demobilization.
The more unusual or out of the ordinary the incident, the more likely the demobilization plan will
need outside assistance from the private sector, academia, regions, State and Federal agencies.
The affected jurisdiction may have limited, inappropriate, expired, or unserviceable PPE and training.
Respirator-fit test documentation, fit tests with the variety of equipment available at the time of the
incident, and the capability to conduct fit testing during a disaster will be limited. Even if persons are
fit tested at their home agency, proof may not be available onsite at a disaster requiring additional fit
testing.
Cross-training in the use of dissimilar PPE is limited. Responders may not have appropriate training
for the additional equipment available at the time of and issued at the scene of a major disaster to
supplement their initial response cache; it may differ from their home agency equipment.
Immediate response organizations will be required to support the incident in its entirety until Federal-
State safety assets become available.
Local, regional, and State response agencies will have access to specialized resources from public-
and private-sector agencies and academia.
Data enabling the recognition/characterization of hazards associated with the incident may not be
immediately available. Field instrumentation and laboratory analysis may be necessary to fully
characterize hazards.
All safety and health plans should be in place and enforced for day-to-day operations. Catastrophic
incidents will cause the readdressing of day-to-day safety and health policies and plans caused by the
scope, complexity, or uniqueness of the incident(s).
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Aerosol Anthrax)
Resource Organization Estimated
Capacity
Scenario Requirement
Values
Quantity of
Resources
Needed
Type I Safety Officer 1 per shift 3 shifts per day 3 per day
Specialized Safety Officer(s))
1 per team
deployed
20 teams deployed 20
260 National Preparedness Guidelines
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Resource Organization Estimated
Capacity
Scenario Requirement
Values
Quantity of
Resources
Needed
Specialized Subject Matter
Experts
i.e., 1 biological
expert
As required by
incident
Analytical laboratories
100 samples per
day per laboratory
500 samples per day 5 analytical labs
Equipment caches
1 SCBA, PAPR or
P100 respirator per
shift per responders
3 shifts/day
3 days
50 Responders @SCBA
500 Responders @PAPR
450 Responders @P100
450 SCBAs
4,500 PAPRs
4,050 P100s
Respiratory fit-test mobile units
1 per team
deployed
20 teams deployed
20 respiratory
mobile fit test units
Medical Unit
1 medical unit per
5 teams deployed
20 teams deployed 4 medical units
Approaches for Large-Scale Events
All response organizations would need to be included in a single incident command system (ICS). A
single “all-hazards” Safety Officer is designated by the IC to manage all safety operations associated with
the incident. Assistants (e.g. specialized Safety Officers, SMEs, employer representatives, employee
representatives) to the Safety Officer are designated and made part of response teams. All employers
whose personnel are involved in the response are represented in the safety management structure.
Equipment caches are based on local quantities, regional quantities (through mutual aid), State caches
(interstate mutual aid), and national caches (e.g., pre-positioned equipment program). Sources of
equipment and notification/transportation of equipment have been addressed in advance. All responders
need the specified training (e.g., technicians, operations, and specialists) prior to the incident. Federal
responders would follow the National Response Plan (NRP), including the Worker Safety and Health
Support Annex. State and local response plans include worker safety and health coordination that is
consistent with the actions specified under the Worker Safety and Health Support Annex.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Type I Safety
Officer
NIMS
Personnel
300 Nationally
Federal/State/
Local
Activate Responder
Health and Safety
Identify
Safety/PPE Needs
and Distribute PPE
to responders
Ongoing
monitoring of
Target Capabilities 261
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Responder Health
and Safety
Demobilize
Specialized Safety
Officer
Non-NIMS
Personnel
400 Nationally
Federal/State/
Local
Identify
Safety/PPE Needs
and Distribute PPE
to responders
Ongoing
monitoring of
responder health
and safety
Specialized Subject
Matter Experts
Non-NIMS
Personnel
800 Nationally
Federal/State/
Local
Identify
Safety/PPE Needs
and Distribute PPE
to responders
Ongoing
Monitoring of
Responder Health
and Safety
Analytical
laboratories
Non- NIMS
Resource
Organization
150
Nationally
Federal/State/
Local/Private
Sector/
Academia
Identify
Safety/PPE Needs
and Distribute PPE
to responders
Ongoing
Monitoring of
Responder Health
and Safety
Equipment caches Equipment
Federal/State/
Local/Private
Sector/
Academia
Identify
Safety/PPE Needs
and Distribute PPE
to responders
Medical Unit
NIMS
Resource
Organization
1
One per incident,
increased by scope,
complexity and
uniqueness
Federal/State/
Local/Private
Sector
Ongoing
Monitoring of
Responder Health
and Safety
Training Centers Training 25
per State
Federal/State/
Local/Private
Sector/
Academia
Develop and
Maintain Training
and Exercise
Programs
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press
Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. Worker Safety and Health Support Annex. U.S. Department of Homeland Security.
December 2004
262 National Preparedness Guidelines
RESPOND MISSION: RESPONDER SAFETY AND HEALTH
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
5. OSHA Best Practices for Hospital-Based First Receivers of Victims from Mass Casualty Incidents Involving
the Release of Hazardous Substances. Occupational Safety and Health Administration. January 2005
http://www.osha.gov/dts/osta/bestpractices/firstreceivers_hospital.html.
6. Crisis Counseling and Assistance Training Program Guidance. Substance Abuse and Mental Health Services
Administration, National Mental Health Information Center. 2004.
http://www.mentalhealth.samhsa.gov/cmhs/EmergencyServices/progguide.asp.
7. Protecting Emergency Responders, Volume 3: Safety Management in Disaster and Terrorism Response.
National Institute for Occupational Safety and Health/RAND. NIOSH Publication Number 2004–144. May
2004. http://www.cdc.gov/niosh/docs/2004-144.
8. NFPA 1500: Standard on Fire Department Occupational Safety and Health Program. National Fire Protection
Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500.
9. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents. National
Fire Protection Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500.
10. NFPA 1521, Standard for Fire Department Safety Officer. National Fire Protection Association, 2002 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1521
11. NFPA 1581, Standard on Fire Department Infection Control Program. National Fire Protection Association,
2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1581
12. NFPA 1582, Standard on Comprehensive Occupational Medical Program for Fire Departments. National Fire
Protection Association, 2003 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1582
13. NFPA 1583, Standard on Health-Related Fitness Programs for Fire Fighters. National Fire Protection
Association, 2000 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1582
14. NFPA 1584, Recommended Practice on the Rehabilitation of Members Operating at Incident Scene Operations
and Training Exercises. National Fire Protection Association, 2003 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1584
15. Guidelines for HazMat/WMD Response, Planning and Prevention Training. Federal Emergency Management
Agency. April 2003. http://www.wetp.org/Wetp/public/dwloads/HASL_1465dnlfile.PDF.
16. DHS, Office for Domestic Preparedness. Metropolitan Medical Response System (MMRS) Program.
http://fema.mmrs.gov.
Target Capabilities List 263
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE
EMERGENCY PUBLIC SAFETY AND SECURITY
RESPONSE
Capability Definition
Emergency Public Safety and Security Response is the capability to reduce the impact and consequences
of an incident or major event by securing the affected area, including crime/incident scene preservation
issues as appropriate, safely diverting the public from hazards, providing security support to other
response operations and properties, and sustaining operations from response through recovery. Public
Safety and Security Response requires coordination among officials from law enforcement, fire, and
emergency medical services (EMS).
Outcome
The incident scene is assessed and secured; access is controlled; security support is provided to other
response operations (and related critical locations, facilities, and resources); emergency public
information is provided while protecting first responders and mitigating any further public risks; and any
crime/incident scene preservation issues are addressed.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports Emergency Support Function (ESF) #13: Public Safety and Security.
Preparedness Tasks and Measures/Metrics
Activity: Plan for Public Safety and Security Response During Large-Scale, All-Hazards
Events
Definition: Review existing and/or develop new strategies, plans, procedures, programs, or
systems to respond to large-scale, all-hazards events
Critical Tasks
Res.B3d 1.2
Review, revise, and develop public safety policies, protocols, and procedures to be implemented
to effect a command and control structure, consistent with NIMS
Res.B3d 1.2.2
Develop plans and procedures to ensure interoperable communications during public safety and
security response
Res.B3d 1.2.3.1
Enter into interagency agreements and memoranda of understanding with appropriate
surrounding agencies and jurisdictions, with the legal authority of the jurisdiction, to ensure
adequate response and access to supplemental personnel
Res.B3d 1.2.3.2
Identify required resources and enter into contracts, as appropriate, to access and provide
required resources during a crisis response to shelter, feed, and maintain a significant cadre of
public safety and other related first responders
Res.B3d 1.2.1
Review and improve, as appropriate, standard operating procedures for the notification and
mobilization of public safety resources during a crisis response
264 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE
Res.B.3d 1.2.4
Review and improve, as appropriate, standard operating procedures for information sharing to
the public, to the media, and to support agencies
Res.B3d 1.4.1
Review and improve existing planned evacuation routes and staging areas to determine sufficient
public safety resources required to establish and maintain perimeters, safety zones, and public
order as well as facilitate evacuations and/or sheltering-in-place activities
Res.B3d 1.4.2
Review plans for decontamination sites and access to decontamination equipment, including
personal protective equipment for responders
Res.B3d 1.4.3
Ensure hospital and medical supply resources, as well as other key infrastructure, have been
identified, and agreements exist or are drafted regarding the maintenance of security at these
facilities during a crisis response
Res.B3d 1.4.4
Review and develop as appropriate, in coordination with legal counsel, such as the city/county
attorney’s and/or State Attorney General Office, policies regarding public safety enforcement
actions required to maintain the public order during a crisis response, to include teams of
enforcement officers for handling of persons disrupting the public order, violating laws, requiring
quarantine, and so forth
Res.B3d 1.4.1.1
Develop and document, in conjunction with correctional and jail officials, coordination strategies
for managing and possibly relocating incarcerated persons during a crisis response
Res.B3d 1.4.4.1
Identify and enter into agreements to secure the resources needed for the processing and
temporary detention of law violators
Res.B3d 1.4.2.1
Review existing and develop protocols as appropriate for the operation of decontamination sites,
and out-processing areas
Res.B3d 1.4.5
Establish a recovery strategy to access reimbursable opportunities, replenish supplies and
equipment, re-assign personnel, and return to normal operation
Preparedness Measures Metrics
Multi-disciplinary law enforcement and public safety agency planning teams have been
established, per NIMS compliance.
Yes/No
Interoperable communications plans with all necessary parties are in place Yes/No
Plans for providing security for the public and properties on and around an incident site are in
place
Yes/No
Plans incorporate the anticipated security demands of government, non-government, and private
sector stakeholders
Yes/No
Plans for supporting public safety in and around an incident site are in place Yes/No
Plans include establishment of staging areas for law enforcement prior to entering site Yes/No
Systems are in place or available to maintain accountability of personnel, track hot zone
locations, and track resources
Yes/No
Plans for sheltering, housing, and feeding law enforcement personnel are in place Yes/No
Plans for the post-incident provision of temporary prisoner holding facilities and arrest
processing documentation are in place
Yes/No
Plans identify and provide for the resources necessary to maintain operations in an “all hazards”
environment (e.g., electrical generators, personal protective equipment, communications
equipment, etc.)
Yes/No
Plans address demobilization of public safety operations (replenishing supplies, re-assigning
personnel)
Yes/No
Target Capabilities List 265
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE
Activity: Determine appropriate training and exercises necessary to address gaps
Definition: Review existing training programs. Compare needs and gaps against available
training assets.
Critical Tasks
Res.B3d 2.1.1
Identify gaps in personnel training at the awareness and first response operational level, to
include familiarity with the expectations of and demands on the public safety responders as set
forth in agency plans, protocols, and procedures for a crisis response
Res.B3d 2.1.2
Identify existing training resources and opportunities available at the Federal, State, and local
level
Res.B3d 2.1.3 Develop a training strategy for all personnel
Res.B3d 2.2.1
Develop a strategy, in coordination with area jurisdictions, to participate in and/or conduct
exercises which incorporate all existing response requirements, identify gaps, develop
improvement plans, and implement preparedness enhancements
Preparedness Measures Metric
Percent of public safety and security personnel trained at the awareness level 100%
Percent of public safety and security personnel identified in the training strategy as
requiring training at the operational level are trained
100%
Frequency with which exercises to test public safety and security operations are
conducted
Every 12 months
Performance Tasks and Measures/Metrics
Activity: Command and Control Public Safety and Security Response Operations
Definition: In response to a notification for security assets, establish the management and
coordination of the Public Safety and Security Response, from activation through to
demobilization
Critical Tasks
Res.B3d 3.1.1 Identify personnel needed to maintain security support and response
Res.B3d 3.1.3
Establish staging areas for law enforcement to conduct deputization, personnel assignment, and
briefing prior to entering the impacted area.
Res.B3d 3.5 Communicate with other response agencies regarding public safety response
Res.B3d 3.1.2 Deploy appropriate personnel for public safety and security
Res.B3d 3.1.2 Deploy appropriate relief personnel for public safety and security
Res.B3d 3.2 Coordinate public safety and security operations with Incident Command/Unified Command
Res.B3d 3.3.3 Arrange for shelter, housing, and feeding for law enforcement responders
Res.B3d 3.3.2 Arrange for proper sheltering, care, and feeding of detainees
Res.B3d 3.3.4 Utilize available technologies to maintain accountability of personnel, track hot zone locations,
and track resources
266 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE
Performance Measures Metric
Time in which safety and security plans and procedures are implemented Within 1 hour from incident
Percent of first responders at the incident receiving communication about the site-
safety plan
100%
Time in which sufficient relief personnel are deployed to maintain public safety
throughout a long-term incident (relief needed is estimated at 50 percent of total
uniformed (patrol) staffing of a jurisdiction having primary responsibility for the
incident)
Within 12 to 15 hours from
initial deployment
Accountability is maintained, hot zone locations are track, and resources are
tracked
Yes/No
Activity: Activate Public Safety and Security Response
Definition: Upon notification, mobilize and deploy to begin operations
Critical Tasks
Res.B3d 4.1 Conduct a public safety and security response
Res.B3d 4.1.3 Establish or integrate into Incident Command/Unified Command (IC/UC)
Res.B3d 4.1.1 Coordinate and receive instructions from tactical operations
Res.B3d 4.1.2 Ensure that responders have the appropriate equipment to perform assigned tasks
Performance Measures
Metric
Time in which sufficient personnel to perform public safety and security duties are
deployed
Small local incidents: use on-duty and mutual aid personnel
Large-scale incidents: Target should be equal to 50 percent of total uniformed (patrol)
staffing of jurisdiction having primary responsibility for the incident
Within 12 hours from
initial deployment
Percent of responding public safety personnel who are self-sufficient (bring their own
sleeping/eating/ restocking supplies) for a period up to 7 days
100%
Activity: Assess the Incident Scene and Secure the Area
Definition: Upon arriving on scene, assess for immediate rescue needs, for remaining safety and
security threats, and initiate security operations. Identify and implement protective actions for
high priority key facilities or resources that may require heightened security.
Critical Tasks
Res.B3d 5.1 Secure the incident site
Res.B3d 5.2.2
Determine the appropriate emergency medical personnel to respond on-site for injuries and
fatalities
Res.B3d 5.1.1 Identify and establish inner most incident/crime scene perimeters
Target Capabilities List 267
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE
Res.B3d 5.1.2 Document observations regarding the affected area
Res.B3d 5.1.3 Report findings to IC/UC upon deployment of specialized LE teams
Res.B3d 5.2.3 Develop and maintain a rapid intervention group to respond to unexpected occurrences
Performance Measures Metric
Time in which the incident site is secured
Within 30 minutes from initial
units arrival on scene
Hot, warm, and cold zones are identified and segregated Yes/No
On scene personnel accountability system is implemented Yes/No
Activity: Control Traffic, Crowd, and Scene
Definition: Direct/redirect traffic and pedestrians out of the affected area(s). Assess, coordinate,
and establish force protection and perimeter zones, maintain a visible and effective security
presence to deter criminal conduct and maintain law and order
Critical Tasks
Res.B3d 6.1 Identify and establish an incident perimeter and zones
Res.B3d 6.1.1 Identify security zone requirements
Res.B3d 6.2 Establish force protection capacity integrated within incident command system (ICS)
Res.B3d 6.2.1 Provide force protection for emergency response personnel to allow them to operate safely
Res.B3d 6.1.3 Provide and plan for access to the site for skilled support personnel
Res.B3d 3.4 Implement and maintain an on-scene personnel identity management system
Res.B3d 6.2.5 Secure animals during an animal health emergency
Res.B3d 6.1.2 Identify and secure critical sites, including hospital, shelters, points of distribution (PODs) etc.
Res.B3d 6.2.2
Plan and provide protection and security for unoccupied/evacuated properties within and around
the incident site
Res.B3d 6.3 Control traffic and crowds
Performance Measures Metric
Percent of incident site control zones/points that are clearly identified and staffed 100%
Perimeter zones are coordinated jointly by hazardous materials personnel,
fire/rescue, and law enforcement
Yes/No
Time in which all traffic control and alternative ingress/egress routes are identified
and staffed
Within 30 minutes from
initial units arrival on scene
Percent of new or secondary injuries to the public and first responders at or around
the incident site
0%
Percent of damaged buildings and debris blocking emergency response
100%
268 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE
ingress/egress removed
Time in which stoppage of all non-critical cargo and passenger rail, maritime, and
highway transportation into incident area is coordinated
Within 1 hour from incident
Activity: Maintain Public Order
Definition: Provide a visible law enforcement presence at key locations within the affected area.
Protect people and property, and deter criminal activity
Critical Tasks
Res.B3d 7.1 Assess situation for public order related concerns
Res.B3d 7.3
Implement plans for Emergency proclamations, martial law, curfew declarations, and other legal
issues
Res.B3d 7.1.1 Conduct an initial reconnaissance of the area
Res.B3d 7.2 Coordinate with appropriate unit and develop a plan of action
Res.B3d 7.4.1 Conduct tactical deployment
Res.B3d 7.4.2
Use tactical operations teams to conduct searches of high priority unsecured sites to establish
security and detain lawbreakers as necessary
Res.B3d 7.5 Maintain security operations
Res.B3d 7.1.2 Request assets required to provide security
Res.B3d 7.5.1 Provide security for public officials and investigation teams
Res.B3d 7.5.2
Institute and conduct security operations controlling personnel who are allowed to enter damaged
and condemned buildings and the contents that they are allowed to remove
Performance Measures Metric
Time in which search and/or apprehension procedures are initiated and conducted
Within 30 minutes from the
notification or witnessing of
suspected criminal activity
Activity: Conduct Law Enforcement Operations
Definition: Upon notification or suspicion of criminal activity, identify, and take appropriate
enforcement action with lawbreakers at or around the incident site
Critical Tasks
Res.B3d 8.1 Coordinate with investigators to interview witnesses/bystanders in order to identify suspects
Res.B3d 7.4.2
Use tactical operations teams to conduct searches of high-priority unsecured sites to establish
security and detain lawbreakers as necessary
Res.B3d 8.3 Make arrests as necessary
Performance Measures Metric
Target Capabilities List 269
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE
Appropriate and timely enforcement action are taken Yes/No
Activity: Manage Criminal Justice Population
Definition: Manage criminal justice population to include incarcerated persons, those under
criminal justice supervision, and tactically arrested individuals in the affected area
Critical Tasks
Res.B3d 9.1 Establish mobile arrest and processing sites for arrestees
Res.B3d 9.1.1
Provide space in mobile arrest and processing site/area for: finger printing and photos, desk
space, interview area, property storage, secure storage for valuables and/or evidence, isolation
area for violent detainees, and secure area for vehicles
Res.B3d 9.2.1 Process those arrested (photos, fingerprinting) and document arrests
Res.B3d 9.2.2 Set up improvised holding cells to manage detainees
Res.B3d 9.2.3 Detain those arrested (in improvised holding cells)
Res.B3d 9.2.3.1 Provide detainee supervision 24/7 for the length of the incident
Res.B3d 9.2.3.2
Ensure holding facilities have provisions for food, access to drinking water and toilet facilities,
and trash removal
Res.B3d 9.2.3.3
Establish system for documenting, securing, storing, transporting, and releasing detainee
property
Res.B3d 9.2.3.4 Establish system to track detainee movement – in-coming, transfers, and releases
Res.B3d 9.2.3.5 Distribute notification of the destination holding facility
Res.B3d 9.2.3.6 Provide space for Prosecutors/Public Defenders to meet with operations staff and/or detainees
Res.B3d 9.2.4 Transport detainees to secure lock-up facility
Res.B3d 9.2.5
Ensure that established procedures for transfer of detainees during major emergencies are
followed
Res.B3d 9.3.1
Designate alternate facilities to ensure continued operations by local, tribal, State, and Federal
prosecutors/public defenders
Res.B3d 9.3.2
Set up improvised court facilities to ensure local, tribal, State, and Federal court services
continue
Res.B3d 9.3.3
Implement protocols for contacting appropriate parole/probation agencies of any changes in
residency status
Res.B3d 9.3.4
Establish protocols for alternate housing facilities for local, State, and Federally incarcerated
prisoners
Res.B3d 9.3.5 Establish equipment lists and mobile booking kits and store at strategic locations
Res.B3d 9.3.5.1
Inventory mobile booking kits on a regular basis to ensure that equipment and materials have not
been removed or damaged and remain in working order
Res.B3d 9.3.6 Ensure the capacity to run records checks for warrants, holds on detainees, and terrorist lists
270 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE
Performance Measures Metric
Time in which an arrest processing team is identified and equipped to
intake, process, and document a large number of arrests
Within 1 hour from initial
deployment
Time in which temporary holding cells for those arrested are coordinated
and established
Within 2 hours from initial
deployment
Time in which prisoner transport is coordinated and established
Within 2-4 hours from initial
deployment
Time in which alternate facilities for prosecutor/public defenders are
coordinated and established
Within 2 hours from initial
deployment
Time in which alternate facilities for court services are coordinated and
established
Within 2 hours from initial
deployment
Time in which alternate housing facilities for local, State, Federally
incarcerated prisoners are coordinated and established
Within 1 hour from initial
deployment
Activity: Demobilize Public Safety and Security Response Operations
Definition: Return to normal operations
Critical Tasks
Res.B3d 10.1.1
Clear the incident scene upon completion of assigned temporary duties, or as directed by
superiors
Res.B3d 10.1.2 Return local forces to regular service
Res.B3d 10.1.3 Recall temporary assistance resources to staging areas for out processing
Res.B3d 10.3 Conduct decontamination of all out processing personnel and equipment
Res.B3d 10.3.1 Identify public safety and security assets required for decontamination activities
Res.B3d 10.3.2 Coordinate with hazmat personnel to establish decontamination sites
Res.B3d 10.3.3
Coordinate with hazmat personnel to decontaminate affected public safety facilities and
equipment
Res.B3d 10.2.1 Debrief all out processing personnel
Res.B3d 10.4.1 Activate reimbursement process for public safety and security resources
Res.B3d 10.4.2 Receive and process reimbursement requests
Res.B3d 10.4.3 Process compensation claims and related administrative activities
Res.B3d 10.5.1 Rehabilitate and replenish public safety and security resources
Res.B3d 10.5 Reconstitute personnel and equipment
Res.B3d 10.2.2 Participate in incident debriefing
Res.B3d 10.1.4
Identify staff needs dependant upon their upon their level of involvement and/or hours
committed to the incident
Target Capabilities List 271
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE
Res.B3d 10.2
Decontaminate, debrief, and out-process law enforcement personnel prior to leaving the
impacted area
Performance Measures Metric
Time in which public safety personnel are restored to normal or original operations
Within 12 hours from start of
demobilization
Percent of public safety and security response personnel debriefed 100%
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
Emergency Public Safety and Security Response provides the notification of the need
for other capabilities to On-Site Incident Management, and they both provide
situation reports to each other
Fire Incident Response
Support
Emergency Public Safety and Security Response provides force protection to Fire
Incident Response Support, while Fire Incident Response Support reports security
issues to Emergency Public Safety and Security Response
WMD and Hazardous
Materials Response and
Decontamination
Emergency Public Safety and Security Response provides force protection to WMD
and Hazardous Materials Response and Decontamination, while WMD and
Hazardous Materials Response and Decontamination reports security issues to
Emergency Public Safety and Security Response
Explosive Device Response
Operations
Emergency Public Safety and Security Response provides force protection to
Explosive Device Response Operations, while Explosive Device Response
Operations reports security issues to Emergency Public Safety and Security Response
Emergency Triage and Pre-
Hospital Treatment
Emergency Public Safety and Security Response provides force protection to
Emergency Triage and Pre-Hospital Treatment, while Emergency Triage and Pre-
Hospital Treatment reports security issues to Emergency Public Safety and Security
Response.
Search and Rescue (Land-
Based)
Emergency Public Safety and Security Response provides force protection to Search
and Rescue (Land-Based), while Search and Rescue (Land-Based) reports security
issues to Emergency Public Safety and Security Response.
Counter-Terror
Investigation and Law
Enforcement
Emergency Public Safety and Security Response provides information on suspected
terrorist activity to Counter-Terror Investigation and Law Enforcement
Isolation and Quarantine
Emergency Public Safety and Security Response provides perimeter security to
Isolation and Quarantine
Emergency Operations
Center Management
Emergency Public Safety and Security Response provides perimeter security to EOC
Management
Mass Prophylaxis
Emergency Public Safety and Security Response provides perimeter security to Mass
Prophylaxis
Mass Care (Sheltering,
Feeding, and Related
Services)
Emergency Public Safety and Security Response provides perimeter security to Mass
Care
Fatality Management
Emergency Public Safety and Security Response provides perimeter security to
272 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE
Linked Capability Relationship
Fatality Management
Citizen Evacuation and
Shelter-In-Place
Emergency Public Safety and Security Response provides traffic control to Citizen
Evacuation and Shelter-In-Place, and coordinates the evacuation of incarcerated
populations
Target Capabilities List 273
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE
Command and
Control Public
Safety and
Security
Response
Operations
End: Tour ended or
returned to service
Activate Public
Safety and
Security Response
Start: Indication
of incident or
major event
Citizen
Evacuation and
Shelter-in-Place
Planning
Logistics
Comm.
Coordinate
Supervise
Safety
Resource
Requests
Isolation and
Quarantine
Unit(s) dispatched
Assess the
Incident Scene
and Secure the
Area
Control Traffic,
Crowd, and Scene
Conduct Law
Enforcement
Operations
Manage Criminal
Justice Population
Demobilize Public
Safety and
Security Response
Operations
Emergency
Operations
Center
Management
Search and
Rescue (Land-
Based)
Explosive Device
Response
Operations
Mass
Prophylaxis
Mass Care
(Sheltering,
Feeding, and
Related Services)
Fatality
Management
WMD/Hazardous
Materials
Response and
Decontamination
On-Site Incident
Management
Yes
No
Send initial report and resource requests
Provide situation report
Initial perimeter
established
Scene declared safe
for general use
Suspect(s)
apprehended
Transport to
secure lockup
facility
Request appropriate
transport unit(s)
Officers released from scene
Provide traffic control
Provide
perimeter security
Provide force protection
Security issues reported
Ready to secure area
Provide sitreps
Is criminal
activity
suspected?
Notify of need for other
capabilities
Inform of suspected
terrorist activity
Emergency Public Safety and
Security Response
Capability Activity Process Flow
Relationship
Linked
Capabilities
Maintain Public
Order
Law enforcement
presence established
Fire Incident
Response Support
Emergency
Triage and Pre-
Hospital
Treatment
Counter-Terror
Investigation and
Law Enforcement
274 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE
Resource Element Description
Resource Elements Components and Description
Law Enforcement officers for
crowd control
Uniformed/sworn, reserve, volunteer, and in-training officers to control a
large crowd in a high-density area
Law Enforcement officers for
traffic control
Uniformed/sworn, reserve, volunteer, and in-training officers to control
traffic from entering and leaving the affected areas.
National Guard To augment crowd control, traffic control, and hard target security.
Private security company personnel
Supplement personnel to allow local law enforcement to perform law
enforcement duties
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Radiological Dispersal Device scenario. Other
scenarios were reviewed to identify required adjustments or additions to the planning factors and
national targets.
This capability applies to a wide range of incidents and emergencies, including accidental or
deliberate disease outbreaks, natural disasters, and nuclear and conventional events.
If the catastrophic incident results from terrorism, the Homeland Security Advisory System (HSAS)
level will likely be raised regionally, and perhaps nationally. Elevation of the HSAS level requires
additional local, State, and Federal security enhancements that may affect the availability of certain
response resources.
Police will be needed to direct traffic away from the contaminated area, prevent access to the
contaminated area, and support movement of the population out of the contaminated area.
Looting and/or damaging to unattended properties, especially shops and stores by armed hooligans
and criminals should be considered.
Public safety personnel will need to support the evacuation, sheltering, and protection of downwind
populations.
Public safety personnel will support the movement of approximately 35,000 people to shelters.
Temporary housing will be needed.
A decontamination process must be set up. Public safety personnel will be needed to support
movement of the population in and out of the decontamination area.
Scenario-Specific
The use of a radiological dispersion device (RDD) would have local implications on the public safety
and security response teams. The assumption is that an RDD would be dispersed within a downtown
or highly populated areas. With Washington, D.C., as an example, there are approximately 200–250
people in a single block. If this RDD were to affect an area of 36 blocks or more, 7,500–9,000 people
would be affected. It is likely that local, State, and Federal law enforcement agencies would share
resources to help contain the area and aid in crowd control for a high population such as this. Yet the
States would have to balance the resources between preventing affected personnel from entering into
other portions of the State by leaving the site.
Target Capabilities List 275
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECUIRTY RESPONSE
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
Law enforcement
officers for crowd
control
Capacity to control a
large crowd within a
downtown area
Sufficient numbers to regulate
approximately 200 people per
36 blocks
Sufficient uniformed/sworn,
reserve, volunteer, and in-
training officers to accomplish
the task
80% of officers will come from
local sources and 20% will
come from State sources.
Law enforcement
officers for traffic
control
Capacity to control
traffic from both
entering and leaving
the affected areas
Sufficient numbers to regulate
approximately 7,000 people,
depending on automobile
traffic or mass transit numbers
Sufficient uniformed/sworn,
reserve, volunteer, and in-
training officers to accomplish
the task
National Guard
Capacity to
supplement local and
regional law
enforcement agencies
Sufficient to allow local law
enforcement to perform law
enforcement duties
Appropriate guards to augment
law enforcement personnel for
crowd control, traffic control,
and hard target security (at the
World Trade Center, 8,500
were deployed within 24 hours
from the attacks)
Private security
company personnel
Capacity to
supplement local and
regional law
enforcement agencies
Sufficient to allow local law
enforcement to perform law
enforcement duties
Appropriate numbers to
supplement law enforcement
personnel for limited traffic
control and provide target
security for private sector sites
Approaches for Large-Scale Events
To avoid duplication of resources, chemical, biological, radiological, nuclear, or explosive (CBRNE) and
law enforcement resource organizations should cross-train with other capabilities and foster cross-border
cooperation.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Law Enforcement
Officers for Crowd
Control
Personnel As Needed Per Incident State/Local Secure Area
Control traffic,
crowd and scene
276 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC SAFETY AND SECURITY RESPONSE
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Law enforcement
officers for traffic
control
Personnel As Needed Per Incident
State/Local/
NGO
Secure Area
Control traffic,
crowd and scene
National Guard
Federal
Resource
Organization
As Needed Per State State Secure Area
Control traffic,
crowd and scene
Private security
company personnel
Personnel As Needed Per Incident State/Local
Control traffic,
crowd and scene
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press
Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. The Office for Domestic Preparedness Guidelines for Homeland Security: Prevention and Deterrence. U.S.
Department of Homeland Security, Office for Domestic Preparedness. June 2003.
http://www.ojp.usdoj.gov/odp/docs/ODPPrev1.pdf.
5. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S.
Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
6. Compendium of Federal Terrorism Training for State and Local Audiences. Federal Emergency Management
Agency and U.S. Department of Homeland Security. 2004.
http://www.fema.gov/compendium/index.jsp.
7. 2004 Emergency Response Guidebook: A Guidebook for First Responders during the Initial Phase of a
Dangerous Goods/Hazardous Materials Incident. U.S. Department of Transportation.
http://HazMat.dot.gov/pubs/erg/erg2004.pdf.
8. Catalog of Training Programs, 2005–2006. U.S. Department of Homeland Security, Federal Law Enforcement
Training Center (FLETC). 2003–2004. http://www.fletc.gov/cotp.pdf.
9. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
10. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program,
http://mmrs.fema.gov.
Target Capabilities List 277
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
ANIMAL DISEASE EMERGENCY SUPPORT
Capability Definition
Animal Disease Emergency Support is the capability to protect, prevent, detect, respond to, and recover
from threats and incidents that would result in the disruption of industries related to U.S. livestock, other
domestic animals (including companion animals) and wildlife and/or endanger the food supply, public
health, and domestic and international trade. It includes the ability to respond to large-scale national and
regional emergencies as well as to smaller-scale incidents through rapid determination of the nature of the
event, initiation of the appropriate response, containment of the disrupting effects, and facilitation of
recovery.
Outcome
Foreign animal disease is prevented from entering the United States by protecting the related critical
infrastructure and key assets. In the event of an incident, animal disease is detected as early as possible,
exposure of livestock to foreign diseases is reduced, immediate and humane actions to eradicate the
outbreak are implemented, public and animal health and the environment are protected, continuity of
agriculture and related business is safely maintained and/or restored, and economic damage is minimized.
Trade in agricultural products and domestic and international confidence in the U.S. food supply are
safely maintained or restored.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs) and Annexes:
ESF #1: Transportation (movement of supplies, equipment and carcasses)
ESF #2: Communications
ESF #3: Public Works (debris removal)
ESF #5: Emergency Management
ESF #6: Mass Care (animal housing)
ESF #7: Resource Support
ESF #8: Public Health and Medical Services
ESF #10: Oil and Hazardous Materials Response (Environmental Protection)
ESF #11: Agriculture and Natural Resources
ESF #13: Public Safety and Security
ESF #14: Long-Term Community Recovery and Mitigation
ESF #15: External Affairs
Biological Incident Annex
Terrorism Incident Law Enforcement and Investigation Annex
Interim/Draft: Food and Agriculture Incident Annex
278 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B2d 1.1 Plan and prepare to safeguard animal health
Res.B2d 1.1.1 Develop animal safety and security plans, programs, and agreements
Res.B2d 1.5
Develop plans, procedures, protocols, and systems for control of large scale animal disease
events
Res.B2d 1.6 Develop plans, procedures, and protocols for long-term animal health care
Res.B2d 1.5.7 Develop protocols for disposing of infectious agricultural waste
Res.B2d 1.5.5 Develop plans to collect and dispose of infected material to reduce the spread of animal disease
Res.B2d 6.1 Implement programs to safeguard animal health
Res.B2d 1.3
Develop plans, procedures, and policies for coordinating, managing, and disseminating public
information
Pre.B2c 1.1
Facilitate the development of processes to improve security at key points and at access points of
critical infrastructure
Pre.B2a 1.2 Facilitate the development of processes to improve cargo security and screening capabilities
Rec.A2b 3.2 Manage community assistance programs
Rec.C3b 1.1
Develop community recovery, mitigation, and economic stabilization plans, programs, and
procedures
Pre.A1a 5.4 Collect information about threats to the Nation’s food supply
Pro.A1a 5.3.2 Conduct vulnerability assessments to assess vulnerability of potential targets to identified threats
Pro.B1b 4 Conduct surveillance for food and agriculture safety and defense
Pre.A1a 3.5.7 Evaluate intelligence and surveillance activities
Pre.A2a 5.2 Prioritize threats
Pre.A1a 3.5.6 Conduct surveillance and information collection and produce intelligence
Pre.B3a 4 Conduct border control operations
Pre.A1e 3.2.1.4
Inspect materials for potential Chemical, Biological, Radiological, Nuclear, and Explosive
(CBRNE) weapons or precursors
Pre.B3a 3.1
Use advanced information, targeting and technology on the ground, on the water, and in the air to
prevent the entry of terrorists, terrorist weapons, and other high-risk people and goods between
and among States, Tribes, and international trade partners
Pro.A1a 4 Identify critical infrastructure and key assets within the Nation, region, State, or local area
Pro.A1a 5.5.2
Map threat analysis against critical infrastructure to identify and analyze infrastructure asset
vulnerabilities and critical risk
Target Capabilities List 279
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Pro.A1a 5.2 Conduct consequence analysis of critical assets and key resources
Pro.A2a 4.7 Implement deterrence and defense protection measures
Pro.A3a 4.1.1
Implement detection measures such as inspection surveillance, employee monitoring, and
security counterintelligence
Preparedness Measures Metrics
Animal disease emergency support plans include a formal process for activating support
resources
Yes/No
Animal welfare organizations (e.g. ASPCA, Humane Society) and other related
stakeholders are involved in animal disease emergency planning process.
Yes/No
Animal disease emergency plans include provisions for animal welfare Yes/No
Animal disease emergency plans address transportation of live animals, carcasses, people,
pharmaceuticals, and equipment while ensuring bio-security.
Yes/No
Animal disease emergency plans address procedures for the reduction of the spread of
animal diseases (e.g. disposal of contaminated waste, euthanasia of infected animals).
Yes/No
State Veterinary Service is capable of and authorized to record biological, physical, and
chemical agents that can adversely affect animals and their related products
Yes/No
State Veterinary Service is capable of and authorized to rapidly respond to unexpected
pest or disease incursion or other situations that put at immediate risk the sanitary status
of the animal populations
Yes/No
State Veterinary Service is capable of and authorized to prevent the entrance and spread
of unwanted pests and diseases in the State
Yes/No
State Veterinary Service is capable of and authorized to determine, monitor, and verify
the sanitary status of the populations covered under its mandate
Yes/No
State Veterinary Service is capable of and authorized to identify in advance those sanitary
problems covered under its mandate, including animal and public health, the environment,
or the trade of animals or their related products
Yes/No
State Veterinary Service is capable of and authorized to update overall service in
accordance with the latest scientific advances and based on the sanitary norms and
measures of USDA-APHIS, OIE, Codex Alimentarius and the WTO/SPS agreement
Yes/No
State Veterinary Service is capable of and authorized to inform, in an effective and timely
fashion, its users of activities, programs, and sanitary developments
Yes/No
State Veterinary Service is capable of and authorized to ensure that users are in
compliance with the regulatory norms covered under its mandate
Yes/No
State Veterinary Service is capable of and authorized to formulate and adopt regulatory
norms for processes and products covered under its mandate
Yes/No
State Veterinary Service is capable of and authorized to ensure national regulatory norms
covered under its mandate in line with national and international norms, guidelines, and
recommendations
Yes/No
State Veterinary Service is capable of and authorized to negotiate, implement, and
maintain equivalency agreements with other States and USDA on veterinary norms and
processes under its mandate
Yes/No
State Veterinary Service is capable of and authorized to track history, location, and
distribution of animals and their related products covered under its mandate
Yes/No
280 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
State Veterinary Service is capable of and authorized to notify USDA of its State
regulations and sanitary status, in accordance with the procedures established by USDA
Yes/No
National Veterinary Services Laboratory (NVSL), all National Animal Health Laboratory
Network (NAHLN) laboratories, and all State veterinary diagnostic laboratories have
capacity to process diagnostic samples
Yes/No
Plans address the processes for investigating animal disease emergency threats (e.g.
tracing affected animals to determine source, destination, and disposition,: obtaining
samples for lab testing)
Yes/No
Mechanisms for ensuring an early report on suspicious cases (as economic incentives) are
in place
Yes/No
National animal, plant, and health surveillance plan is in place Yes/No
Animal disease emergency plans address the dissemination of accurate, timely, accessible
information to public, media, support agencies and vendors
Yes/No
Communications messages and methods and a plan for dissemination were developed
before the outbreak
Yes/No
Processes are in place to obtain information for tracking the history, location, distribution
of animals and their related products.
Yes/No
Animal disease emergency plans address demobilization (e.g. return personnel and
equipment to normal operations, complete documentation, coordinate long-term support).
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B2d 2.1.4 Conduct training and exercise programs for distribution of prophylaxis for animal health
Res.B2d 2.1.2
Develop and implement training and procedures to enable local veterinary communities to
recognize exposure to CBRNE materials, and to use tools and equipment to detect the presence
of CBRNE materials
ComF 3.2.1 Train the public to be aware and to report suspicious items and behavior
Preparedness Measures Metric
Personnel are proficient in delivering just-in-time training at the Federal, State, and local
levels
Yes/No
Plan has been developed for supplies and/or equipment to be available for an FMD
outbreak in order to enter, store, and retrieve information from the field and at the
coordination center
Yes/No
Plan has been developed for supplies and/or equipment to be available for an FMD
outbreak in order to euthanize animals while meeting optimal humane standards to level
described in performance objectives
Yes/No
Plan has been developed for supplies and/or equipment to be available for an FMD
outbreak in order to move live animals, carcasses, people, pharmaceuticals, and
equipment within, between, and among quarantine zones while ensuring biosecurity
Yes/No
Supplies distribution plan is developed before an incident Yes/No
HSEEP-compliant exercises to test animal disease emergency support operations have
been conducted
Yes/No
Target Capabilities List 281
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Performance Tasks and Measures/Metrics
Activity: Direct Animal Disease Emergency Support Tactical Operations
Definition: In response to a notification of an animal disease, provide the overall management and
coordination of the epidemiological investigations and animal control measures to eradicate the
disease
Critical Tasks
Res.B2d 3.2 Implement plans and procedures for animal health response
Res.B2d 3.3.1 Coordinate animal-health emergency response operations
Res.B2d 3.3.3
Coordinate and provide regional and State resources and procedures for the response to an
outbreak of highly contagious animal and plant diseases
Res.B2d 3.5.1 Conduct internal communications for animal health response
Res.B2d 3.3.2 Coordinate animal safety and biosecurity response
Res.B2d 3.3
Provide coordination and support for animal health care through the Incident Command System
(ICS)
Res.B2d 3.3.4 Coordinate animal health disease outbreak assessment activities
Res.B2d 3.6
Provide coordination and support for implementation of a local, regional, or national distribution
system for mass animal therapeutics and vaccination program
Res.B2d 3.5.3
Coordinate emergency public information regarding animal health issues through the Joint
Information System (JIS)
Res.B2d 3.5.2 Exchange and disseminate data as necessary for appropriate animal treatment
Res.B2d 3.5.5 Coordinate site clean-up
Res.B2d 3.8
Provide personal protective equipment (PPE) to personnel involved in animal health response
site operations and clean-up
Res.B2d 3.3.4.1 Coordinate epidemiological investigations and lab testing for disease outbreaks
Res.B2d 3.5 Establish and maintain information systems across animal-health related response entities
Pro.B1b 3.4.1
Coordinate food and agriculture emergency management plans at the local, State, and national
levels
Pro.B1b 3 Direct and coordinate food and agricultural safety and defense operations
Res.B1c 8.4 Coordinate transportation response
Res.B2d 3.6.1 Allocate, mobilize, and manage resources for animal health operations
Res.B2d 3.6.2 Track and report resources for animal health operations
Performance Measures Metric
Time in which cleaning and disinfection is carried out on premises on which
FMD is presumed or confirmed to exist
Within 48 hours from being so
identified
282 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Time in which wildlife management plan is developed Within 48 hours from the
identification of the first presumptive
positive premises
Time in which a dedicated communications network outside the incident
command system (ICS) is established
Within 7 days from the outbreak
Time in which an assessment of the risk wildlife poses to the transmission
of a foreign animal disease is conducted
Within 7 days from confirmation of
the first positive premises
Time in which research into alternative disease control strategies is initiated Within 7 days from confirmed
diagnosis
Time in which a fair market value indemnity is provided to owners of
destroyed animals and materials
Within 72 hours from destruction
Activity: Activate Animal Disease Emergency Support
Definition: In response to a notification of animal disease, respond, mobilize, and arrive on scene
to begin emergency veterinary operations
Critical Tasks
Res.B2d 4.1 Activate animal health operations
Res.B2d 4.2
Establish and maintain animal health response communication systems across responsible
entities
Res.B2d 4.3 Monitor and coordinate response team’s possessions and deliveries of needed supplies
Performance Measures Metric
Time in which plans are implemented in accordance with the National
Response Plan (NRP/NIMS)
Within 24 hours from establishing
an incident command
Time in which communications plan is implemented Within 24 hours from presumptive
diagnosis
Time in which sufficient veterinary medical field staff and other resources
(veterinarians, animal health technicians, disease specialists, and veterinary
diagnostic labs) are deployed for 3 weeks at a time
Within 24 hours from confirmed
diagnosis
Time in which need for logistical support to aid the operation is identified Within 48 hours from presumptive
diagnosis
Activity: Conduct Animal Health Epidemiological Investigation & Surveillance
Definition: Conduct investigations and surveillance of animal populations to determine the
sources of an animal disease outbreak, the potentially infected animal populations, and verify the
elimination of the disease.
Critical Tasks
Res.B2d 5.2
Conduct ongoing monitoring and surveillance of agricultural and animal health safety and
security
Res.B2d 5.1
Conduct epidemiological investigation as surveillance reports warrant and coordinate Federal,
Target Capabilities List 283
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
State, and local veterinary assets/services
Res.B2d 5.3
Coordinate Federal, State, and local veterinary assets/services
Res.B2d 5.1.7
Determine whether foreign animal disease agent is intentional or accidental
Res.B2d 5.1.6
Conduct animal tracing to determine source, destination, and disposition of affected animals
Res.B2d 5.1.3
Determine whether an emerging infectious animal disease agent or a biological threat agent
consists of single or multiple strains
Res.B2d 5.2.3
Coordinate with vector control experts to conduct surveillance and monitoring of animal
infections until population densities and infection rates return to pre-event levels
Res.B2d 5.1.2.1
Obtain samples for lab testing
Pre.C.2a 5 Search for materials
Pre.C.2a 5.2.1 Dispose of materials suspected of being, or known to be, dangerous
Performance Measures Metric
Time in which status and priority of investigation is assigned to
premises
Within 6 hours from identifying them
through traces
Time in which a foreign animal disease investigation, as verified by
the veterinarian in charge (AVIC), is initiated
Within 8 hours from receiving the initial
report
Single laboratory samples are analyzed within 12–72 hours
(depending on type of analysis)
Yes/No
Number of laboratory samples processed by 90 people and 30 high-
throughput PCR machines per day
10,000
Number of serum samples processed by 15 people with 1 liquid
handling robotic system per day
15,000
Number of laboratory serology samples processed by one technician
(nonrobotics) per day
450
Time in which logistical support is delivered to aid the operation Within 72 hours from arriving at the
laboratory
Time in which case definition using effective epidemiology is
completed
Within 24 hours from presumptive or
confirmed diagnosis
Time in which an investigation of suspected wildlife cases is initiated
by a qualified veterinarian
Within 24 hours from confirmed diagnosis
Time in which joint USDA-DOJ investigation into source of
introduction is initiated
Within 24 hours from confirmed diagnosis
Time in which a surveillance plan is implemented to define the
present extent of outbreak and detect new cases
Within 48 hours from confirmed diagnosis
Inspection for surveillance of susceptible animals at contact premises
and suspect premises is conducted a minimum of three times per
average incubation period of Foot and Mouth Disease (FMD)
Yes/No
Inspection for surveillance of susceptible animals at at-risk premises
is conducted a minimum two times per average incubation period
Yes/No
284 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Time in which trace-forwards and trace-backs to determine primary
and secondary animal exposure to disease and additional contact
premises are conducted
Within 48 hours from time of confirmed
diagnosis in laboratory
Trace-back analysis is conducted for a minimum of two average
incubation periods before the onset of clinical signs of infected
animals
Yes/No
Trace-forward analysis is conducted up to the time that quarantine is
imposed
Yes/No
Number of herds per day at which surveys for trace-out and
epidemiology reporting can be conducted at potentially affected
premises (assuming 670 animals per herd)
400
Time in which the disease is characterized, risk factors are identified,
and mitigation strategies are developed
Within 96 hours from confirmed diagnosis
Time in which disease-free zones are identified using a surveillance
plan
Within 7 days from confirmed diagnosis
Time in which absence of diseases is confirmed through monitoring
and surveillance
Within 6 months from last diagnosis
All responders were monitored for exposure to hazardous materials Yes/No
Screening of affected personnel was conducted Yes/No
Activity: Implement Disease Containment Measures
Definition: Establish isolation and quarantine zones, issue stop movement orders, and initiate
animal vaccination and treatment programs, euthanasia efforts, or other protective measures
designed to control the spread of the disease
Critical Tasks
Res.B2d 6.2
Implement plans, procedures, protocols, and systems for distribution of mass prophylaxis from
the National Veterinary Stockpile (NVS)
Res.B2d 6.3.6
Implement animal control measures, i.e. for infected animals threatening the public’s health (also
includes stray pets/domestic animals and communal wild animals)
Res.B2d 6.1.1 Coordinate and support implementation of protective actions to stop the spread of disease
Res.B2d 6.2.2 Provide human vaccination during animal health emergency if needed
Res.B2d 6.2.1 Conduct strategic vaccinations or treatments of animals
Res.B2d 6.4
Implement plans to collect and dispose of infected material to reduce the spread of animal
disease
Pro.B1b 3.5.2.1 Coordinate cleaning and decontamination of affected food facilities
Res.B2d 5.2.5 Determine wildlife exposure and disposition
Res.B2d 6.6 Conduct hazardous materials response for disinfectants used in animal health response
Res.B2d 6.5 Coordinate and conduct environmental decontamination for animal health response
Res.B2d 8.2.1 Implement protocols for disposing of infectious agricultural waste
Target Capabilities List 285
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Performance Measures Metric
Time in which a control area is established to ensure effective
implementation of quarantine and movement control (Federal
quarantine is maintained until the disease is either eradicated or a
smaller control area is implemented)
Within 12 hours from a presumptive
positive or confirmed positive premises
Time in which bio-security measures are implemented Within 24 hours from the identification of
the first presumptive positive premise
Time in which security is implemented at processing facilities Within 24 hours from confirmation of
diagnosis
Time in which zoning plan is implemented Within 7 days from the outbreak
All entities shared and acted upon intelligence information to protective
measures
Yes/No
Time in which an emergency ring-vaccination program (assuming
vaccination is the selected strategy) is completed
Within 7 days from confirmation of
diagnosis
Time in which a foreign animal disease is eradicated during the event
or exercise (assuming a single-point introduction, and optimal response
conditions)
Within 100 days from first diagnosis
Time in which a foreign animal disease is eradicated during the event
or exercise (assuming a multiple-point introduction, and optimal
response conditions)
Within 12 months from first diagnosis
Last case is diagnosed within 3-12 months depending on circumstances
and methods used (Office International des Epizooties (OIE) standards)
until trade restrictions no longer apply
Yes/No
Percent of exposed individuals who contract the disease during the
epidemic
0%
On-site education for producers, farmers, and responders is provided at
the time of diagnosis and/or euthanasia
Yes/No
Percent of remaining animals affected by the foreign animal disease
upon resumption of normal trade
0%
Market demand for commodities remains stable throughout outbreak Yes/No
Percent of appropriate personnel who are issued personal protective
equipment (PPE)
100%
Percent of responders who are monitored for exposure to hazardous
materials
100%
Contamination source and affected areas are secured Yes/No
Decontamination sites are established Yes/No
Decontamination is conducted in accordance with local protocol for all
contaminated personnel, equipment, and animals
Yes/No
Percent of affected personnel screened 100%
Number of herds vaccinated per day for disease control (assuming 670
cloven-hoofed animals per herd)
400
286 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Activity: Provide Animal Welfare
Definition: Provide affected animals with veterinarian care, husbandry services, food, and
sheltering to minimize suffering while being isolated, quarantined, or undergoing treatment
Critical Tasks
Res.B2d 7.1
Conduct an animal safety and biosecurity response
Res.B2d 7.2
Provide husbandry services
Performance Measures Metric
Number of animals provided with water, feed, protection from the
elements daily
268,000
Activity: Conduct Euthanasia/Disposal
Definition: Provide humane methods to euthanize affected animals to stop the spread of the
disease or alleviate suffering and properly dispose of animal remains
Critical Tasks
Res.B2d 8.1 Euthanize animals to prevent spread of disease
Res.B2d 8.2 Collect and dispose of animal-health response materials
Res.B2d 8.2.1
Coordinate with appropriate agencies to implement disposal methods for agricultural waste,
including carcasses, that reduce the spread of animal disease
Performance Measures Metric
Number of herds per day euthanized and disposed of for disease control using a 10-
person team (assuming 670 animals per herd)
1
Number of herds per day at which appraisal, euthanasia, and/or disposal are carried
out at affected locations for 100 days (assuming 670 animals per herd)
20
Time in which a plan for euthanasia and disposal of infected and susceptible animals
is implemented
Within 24 hours from a
premises being classified as
an infected or contact
remises
Time in which infected animals are disposed of Within 24 hours from
destruction (whenever
possible)
Activity: Demobilize Animal Disease Emergency Support Operations
Definition: Account for all assets utilized and safely return them to their original location and
functions
Critical Tasks
Res.B2d 9.1
Develop an animal health response operation demobilization plan
Target Capabilities List 287
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Res.B2d 9.2
Implement the animal health response operation demobilization plan
Res.B2d 9.2.1
Restore animal health response personnel and equipment to normal operations
Res.B2d 9.2.3
Complete appropriate documentation for demobilization of animal health operations
Rec.C2a 3.1 Coordinate recovery operations
Rec.B3a 3.2 Coordinate establishment of long-term monitoring of the environment
Rec.B.3a 5.1 Conduct long-term environmental impact assessments
Rec.C3a 6.1.3 Provide engineering and other support for structures, public works, and infrastructure systems
Rec.C3a 6.2 Provide economic stabilization, community recovery, and mitigation support and/or financial
restitution to key service sectors (e.g., medical, financial, public health and safety)
Rec.C4a 7.1.1.1 Provide financial management and reimbursement to affected agriculture entities
Rec.C4a 3.3 Coordinate economic stabilization
Performance Measures Metric
Quarantine is lifted following diagnosis of last case within 3-6 months depending on
circumstances and methods used
Yes/No
Percent of personnel and equipment returned to normal operations 100%
Percent of appropriate documentation completed 100%
Linked Capabilities
Linked Capability Relationship
Emergency Operations
Center Management
Animal Disease Emergency Support requests resources from Emergency Operations
Center Management, who then in turn provides the requested resources. Emergency
Operations Center Management and Animal Disease Emergency Support both provide
situational reports to each other.
Food and Agriculture
Safety and Defense
Animal Disease Emergency Support provides information on potential food
contamination to Food and Agriculture Safety and Defense. Food and Agriculture
Safety and Defense provide control measure guidance to Animal Disease Emergency
Support.
Emergency Public Safety
and Security Response
Emergency Public Safety and Security Response provides perimeter security to Animal
Disease Emergency Support
Mass Care (Sheltering,
Feeding, and Related
Services)
Mass Care provides bulk distribution items upon request to Animal Disease Emergency
Support
Laboratory Testing Animal Disease Emergency Support provides samples for testing to Laboratory Testing.
Laboratory Testing provides test results to Animal Disease Emergency Support
Mass Prophylaxis Animal Disease Emergency Support identifies individuals needing prophylaxis from
zoonotic disease
Emergency Public
Information and Warning
Animal Disease Emergency Support provides protective action decisions and
recommendations to Emergency Public Information and Warning.
288 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Linked Capability Relationship
Isolation and Quarantine Animal Disease Emergency Support provides an indication of zoonotic disease(s) to
Isolation and Quarantine.
WMD and Hazardous
Materials Response and
Decontamination
WMD and Hazardous Materials Response and Decontamination provides technical
decontamination to Animal Disease Emergency Support
Volunteer Management
and Donations
Volunteer Management and Donations provides volunteers to Animal Disease
Emergency Support
Economic and
Community Recovery
Animal Disease Emergency Support identifies the need for grants and loans to
Economic and Community Recovery
Responder Safety and
Health
Responder Safety and Health assures the safety of Animal Disease Emergency
Support’s personnel
Environmental Health Environmental Health provides Animal Disease Emergency Support with updates on
environmental hazards
Target Capabilities List 289
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Direct Animal
Health
Emergency
Support Tactical
Operations
End: Animal disease
eradicated
Activate Animal
Health Emergency
Support
Start: Indication
of animal
disease
Emergency
Operations
Center
Management
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Food and
Agriculture
Safety and
Defense
Medical
Surge
Provide containment decisions
Conduct Animal
Health
Epidemiological
Investigations &
Surveillance
Provide Animal
Welfare
Conduct
Euthanasia/
Disposal
Demobilize Animal
Health Emergency
Support
Operations
Ready to implement
immediate containment
Provide lab results
Euthanasia
warranted
Animal remains
disposed
Provide appropriate
treatment
Ready to begin
epidemiological
investigation and
tailored surveillance
Activate appropriate staff and
resources
Disease
eradicated
Perimeter security
provided
Provide sitreps
Bulk food and goods
distributed
Results provided
Provide samples
Mass
Prophylaxis
Identify exposed
(zoonotic disease)
Provide patients
(zoonotic disease)
Emergency
Public
Information
and Warning
P
r
o
v
i
d
e
P
A
D
/
P
A
R
Resources provided
Request resources
Isolation and
Quarantine
I
n
d
i
c
a
t
i
o
n
o
f
z
o
o
n
o
t
i
c
d
i
s
e
a
s
e
Information of
potential food
contamination
Control measure
guidance provided
WMD/
Hazardous
Materials
Response and
Decontamination
D
e
c
o
n
t
a
m
i
n
a
t
i
o
n
p
r
o
v
i
d
e
d
Volunteer
Management
and Donations
Volunteers provided
Economic
and
Community
Recovery
Need for grants and
loans
Implement
Disease
Containment
Measures
Capability Activity Process Flow
Animal Health Emergency Support Capability
Linked
Capabilities
Relationship
Emergency
Public Safety and
Security Response
Laboratory
Testing
Mass Care
(Sheltering,
Feeding, and
Related Services)
290 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource Element Description
Resource Elements Components and Description
USDA Headquarters
Emergency Operations Center
(EOC)
Fully staffed Federal EOCs to support vaccination and/or euthanasia process.
Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per
24-hour period).
USDA Regional Emergency
Operations Center (EOC)
Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per
24-hour period).
APHIS Headquarters
Emergency Operations Center
Fully staffed Federal EOCs to support vaccination and/or euthanasia process.
Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per
24-hour period).
APHIS Regional Emergency
Operations Center (EOC)
Each Federal EOC includes 21 staff to manage the EOC (7 per shift, 3 shifts per
24-hour period).
Homeland Security Operations
Center (HSOC)
State and County EOCs
Fully staffed State and county EOCs to support vaccination and/or euthanasia
process.
Agriculture EOC
Consists of 2 policy administrators, 2 State animal health SMEs, 1 USDA
cooperative extension specialist, 3 industry representatives, 1 market
representative, 1 grain industry representative, 1 crop representative, 2 support
personnel
Incident Command Post
Fully expanded incident command posts (ICPs) to support vaccination and/or
euthanasia process.
National Response
Coordination Center (NRCC)
Personnel: 3 staff per shift; 3 shifts per 24-hour period per center.
Regional Response
Coordination Center (RRCC)
Personnel: 3 staff per shift; 3 shifts per 24-hour period per center.
Emergency Response Teams
(ERT-A)
Personnel: 3 staff per shift; 3 shifts per 24-hour period per center.
Multiple Area Command Personnel: 3 staff per shift; 3 shifts per 24-hour period per center.
Multi-agency coordinating
group
Technical specialist position
Federal, State, tribal, local, or private resources assigned as needed based on their
area of expertise
Veterinary Medical Assistance
Team
Per NIMS, volunteer teams of 60+ veterinarians, technicians, and support
personnel who can be dispatched for 2-week assignments
Animal Health Technician
Personnel to perform a variety of animal healthcare duties to assist veterinarians
in settings
Veterinary Epidemiologist
Specialized personnel (requires Doctor of Veterinary Medicine) to analyze
factors influencing the existence and spread of diseases among humans and
animals, particularly those diseases transmissible from animals to humans.
Personnel hold the degree of Doctor of Veterinary Medicine
Target Capabilities List 291
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource Elements Components and Description
Communications Technicians
Interoperable communications coordinated among local, State, national, private,
and international stakeholders
Trade support personnel
Reporting to Office International des Épizooties (OIE) and information trade
partners
Quarantine personnel
Personnel to implement quarantine and restriction of movement of animals and
related products
Biosecurity personnel Personnel to limit the introduction and spread of diseases
Decontamination personnel
Personnel to render an environment free of diseases and with no adverse impact
on the environment. 1 supervisor needed per 10 staff.
Euthanasia personnel Personnel to euthanize livestock
Euthanasia personnel
supervisors
Personnel to supervise euthanasia process
Animal Welfare Specialist
Personnel to oversee animal welfare during quarantine, housing, euthanasia, and
treatment of animals
Disposal personnel Personnel to dispose of euthanized livestock. 1 supervisor needed per 10 staff.
Livestock appraisal personnel Personnel to appraise livestock prior to euthanasia
Surveillance personnel
Personnel to conduct surveillance activities to find exposed and susceptible
animals; consists of numerators (phone contact) and examiners (ranch visitors)
CBRNE personnel
Specialized personnel (including public health veterinarians and technicians) to
assess and address zoonotic and chemical, biological, radiological, nuclear, or
explosive (CBRNE) issues, with the capacity to identify risk factors for the
spread and prevent the spread of zoonotic disease
Foreign animal disease
personnel
Personnel (animal disease diagnosticians and accredited veterinarians) with the
training to identify and diagnose relevant foreign animal diseases
Specialty Laboratory
Technicians
Personnel to process samples located in National Animal Health Laboratory
Network (NAHLN) laboratories and State animal diagnostic laboratories
Highly Skilled Laboratory
Technicians
located in National Animal Health Laboratory Network (NAHLN) laboratories
and State animal diagnostic laboratories
Administrative Laboratory
Support Personnel
Administrative and laboratory support personnel located in National Animal
Health Laboratory Network (NAHLN) laboratories and State animal diagnostic
laboratories
Personnel trained in risk
communication
Personnel to communicate risk options
Data entry supervisor
1 per 3 staff for data entry into Emergency Management Reporting System
(EMRS);
Data entry For date entry into Emergency Management Reporting System (EMRS)
Equipment for trace-back
investigations
Equipment in which to enter, store, and retrieve information from field and
coordination center; includes cellular phones, barcoding, and global positioning
system (GPS)/geospatial information system (GIS)
292 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource Elements Components and Description
Animal Identification systems
Systems to identify infected, susceptible, exposed, and at-risk herds and animals;
includes tags and/or microchips, paint sticks, brandings, and associated
equipment
Identification officer (recorder)
Personnel to document and record infected, susceptible, exposed, and at-risk
herds and animals
Euthanasia systems
Equipment (e.g., euthanasia solution base, tranquilizers) that enables animal
euthanization while meeting optimal humane standards
Therapeutics Equipment used to treat animals under quarantine
Dispensing personnel
supervisors
Supervisors for personnel dispensing therapeutics
Vaccines Equipment (medicine) needed to vaccinate animals at risk
Vaccinators
Personnel (supervisors and staff) to vaccinate animals; 1 supervisor per 20
vaccinators
Warehousing and distribution
systems
Location to store and distribute pharmaceuticals and related supplies
Trucks/busses/minivans
(Transportation systems and
methods)
Equipment and staff to move live animals, carcasses, people, pharmaceuticals,
and equipment within, between, and among quarantine zones while ensuring
biosecurity
Law enforcement agent FBI agent
Law enforcement officers
Personnel to enforce quarantine, incident security, and personal safety for field
personnel
Wildlife specialists
Trained personnel with the ability and equipment to survey, identify, diagnose,
and control disease in wildlife
Wildlife specialist supervisors Supervisors for wildlife specialists
Wildlife specialists (sample
collectors)
Trained personnel with the ability and equipment to collect samples to identify,
diagnose, and control disease in wildlife
Veterinary Response Team—
livestock
State-credentialed personnel with the ability and equipment to respond to the
needs of livestock in all-hazards incidents
Veterinary Response Team—
companion animals
State-credentialed personnel with the ability and equipment to respond to the
needs of companion animals in response to all-hazards incidents
Information technology support
staff
Personnel, equipment, and supplies to support ICPs
Administrative support
personnel
Personnel to provide procurement, contracts, logistics, etc.
Trainers
Target Capabilities List 293
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the “foreign animal disease” scenario. Other scenarios
were reviewed to identify required adjustments or additions to the planning factors and national
targets.
This capability applies to a wide range of incidents and emergencies, including accidental or
deliberate disease outbreaks, natural disasters, and nuclear and conventional events.
Any event that would adversely affect the supply of electric utilities, access to water and feed, or
access to premises such as large scale natural disasters (hurricanes, floods, blizzards) would impede
communications, surveillance, operations, humane care of animals and delivery of services. If the
roads are non-passable due to a natural disaster, this will affect our ability to get to the affected area,
conduct operations, surveillance and other activities.
Scenario-Specific
Herd size, rate of spread, and risk factors for an epidemic are based on a median herd size of 670
susceptible animals, derived from research models of the spread of FMD.
In the event of a single point of introduction and immediate response, 2,000 herds are expected to be
infected over a 100-day period.
In the event of three points of intentional introduction, up to 60 percent of States may be affected
within 10 days of the attack. This would result in most of the States being quarantined within 2
weeks.
Forty-five percent of the cattle inventory (beef and dairy) is affected = 45 million animals.
Fifty percent of the swine population is affected = 60 million animals.
Twenty percent of small ruminants are affected = 1.8 million animals.
A decision whether to vaccinate will be made and implemented at the beginning of the outbreak.
Quarantine/movement control strategies will have a negative impact on the marketability of
nonsusceptible species (e.g., poultry).
Annual losses will include $20 billion in meat exports and $20 billion in domestic meat production,
plus a 50 percent decline in milk production, with a prolonged period of depression due to lack of
replacement stock and the time it takes to reach lactation age. Income will be lost from hunting
restrictions and concerns over the disease in wildlife.
Wildlife: All cloven-hoofed wildlife species, including zoological collections, are at risk of exposure,
infection, and spread of disease, including deer, feral swine, wild sheep, and goats. This includes
200,000 farmed elk, 65,000 deer, and 350,000 farmed bison.
Distribution will be widespread due to extensive livestock transportation.
Extensive labor costs for surveillance, monitoring, euthanasia, vaccination, animal removal and
husbandry will accrue.
Increased human morbidity and mortality would occur, including adverse impacts on mental health.
High unemployment will occur due to both direct and indirect economic losses of the outbreak, as
well as lost opportunity costs, leading to a prolonged economic depression and loss of global market
share.
Consumer confidence in meat and meat products will plummet and will take time to be restored.
294 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Foreign Animal Disease)
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
USDA Emergency
Operations Center
(EOC)
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
1 USDA EOC
APHIS Emergency
Operations Center
(EOC)
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
1 APHIS Headquarters
Operations Center
2 regional APHIS emergency
operations centers (EOCs)
Homeland Security
Operations Center
(HSOC)
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
1 Homeland Security
Operations Center (HSOC)
State Emergency
Operations Center
(EOC)
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
50 State emergency
operations centers (EOCs)
County emergency operations
centers (EOCs) as needed
Agriculture Emergency
Operations Center
(EOC)
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
100 agriculture emergency
operations centers (EOCs)
nationally
Incident Command
Post
1 command post for
every 100 herds to be
euthanized and/or
vaccinated
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
Geographic distribution of
herds will determine the
number of incident command
posts (ICPs)
20 incident command posts
(ICPs) for herds to be
euthanized
400 incident command posts
(ICPs) for herds to be
vaccinated
National Response
Coordination Center
(NRCC)
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
1 National Response
Coordination Centers
(NRCCs)
Regional Response
Coordination Center
(RRCC)
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
2 Regional Response
Coordination Centers
(RRCCs)
ERT-A Team
2,000 herds to be euthanized
and 40,000 herds to be
vaccinated over a 100-day
period
50 Emergency Response
Teams (ERT-A)
Multiple Area
2,000 herds to be euthanized
50 Multiple Area Commands
Target Capabilities List 295
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
Command and 40,000 herds to be
vaccinated over a 100-day
period
(MACs)
Technical specialist
position
Estimates for a single incident
are based on requirements for
a 3-month period
Technical specialists could be
assigned in their areas of
expertise on an as-needed
basis and could be tasked for
the entire duration of the
incident
Veterinary Medical
Assistance Team
One Team per 2-week
assignments
Estimates for a single incident
are based on requirements for
a 3-month period
3 teams deployed for 2 weeks
on and 4 weeks off
Animal Health
Technician
Estimates for a single incident
are based on requirements for
a 3-month period
Animal health technicians
could be assigned in their
areas of expertise on an as-
needed basis and could be
tasked for the entire duration
of the incident
The number required depends
on required tasks (see below)
Veterinary
Epidemiologist
Estimates for a single incident
are based on requirements for
a 3-month period
500 veterinary
epidemiologists could be
assigned in their areas of
expertise on an as-needed
basis and could be tasked for
the entire duration of the
incident
Communications
Technicians
Estimates for a single incident
are based on requirements for
a 3-month period
100 people to manage
communications for 3-week
periods
Trade support
personnel
Single incident
APHIS Veterinary Services
and International Services;
U.S. Department of State will
be available as needed
Quarantine personnel
Estimates for a single incident
are based on requirements for
a 3-month period
APHIS and State personnel
required for issues related to
quarantine will be available
on an as-needed basis
To enforce quarantine, 6,000
people are needed
Biosecurity personnel
Estimates for a single incident
are based on requirements for
a 3-month period
Biosecurity specialists could
be assigned in their areas of
expertise on an as-needed
basis and could be tasked for
the entire duration of the
incident:
296 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
500 on-farm personnel
50 outreach personnel
Decontamination
personnel
2,000 herds during a 100-day
period
120 supervisors
1,200 staff
Euthanasia personnel
supervisors
2,000 herds during a 100-day
period
60 supervisors for animal
care
Euthanasia personnel
2,000 herds during a 100-day
period
600 animal handlers
Animal Welfare
Specialist
1 animal welfare
specialist per ICP
42,000 herds during a 100-day
period; 420 ICPs
420 specialists
Disposal personnel
2,000 herds during a 100-day
period
60 supervisors
600 staff
Livestock appraisal
personnel
2,000-herds during a 100-day
period
840 persons
Surveillance personnel
40,000 herds during a 100-day
period
500 persons
CBRNE Personnel
2,000 herds during a 100-day
period
50 specialists, including State
public health veterinarians
100 technicians
Foreign animal disease
personnel
40,000 herds during a 100-day
period
500 foreign animal disease
diagnosticians
500 accredited veterinarians
Specialty Laboratory
Technicians
40,000 herds during a 100-day
period; up to 82,000 serum
samples and 24,000 PCR
samples per day
300 specialty technicians
Highly Skilled
Laboratory Technicians
40,000 herds during a 100-day
period; up to 82,000 serum
samples and 24,000 PCR
samples per day
300 highly skilled technicians
Administrative
Laboratory support
personnel
40,000 herds during a 100-day
period; up to 82,000 serum
samples and 24,000 PCR
samples per day
200 administrative and
laboratory support
Personnel trained in
risk communication
42,000 herds during a 100-day
period
100 persons nationwide or 2
per State
Data entry supervisors 1 per 3 data entry staff
42,000 herds during a 100-day
period
50 supervisors nationally
Target Capabilities List 297
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
Data entry staff
42,000 herds during a 100-day
period
500 data entry staff
Equipment for trace-
back investigations
42,000 herds during a 100-day
period
5,000 personal digital
assistant (PDAs)
Computer and internet
capability
Animal Identification
systems
42,000 herds during a 100-day
period
27,000,000 systems
Identification officer
(recorder)
42,000 herds during a 100-
day period
600 officers
Euthanasia systems
2,000 herds during a 100-day
period
Therapeutics
40,000 herds during a 100-day
period
Dispensing personnel
supervisors
2,000 herds during a 100-day
period
10 supervisors
Vaccines
40,000 herds during a 100-
day period
27 million doses of vaccine
Vaccinators
40,000 herds during a 100-
day period
100 supervisors
2,000 vaccinators
Warehousing and
distribution systems
42,000 herds during a 100-
day period
Trucks/buses/
minivans
2,000 herds during a 100-day
period
200 trucks
100 buses
100 minivans
Law enforcement
officer
2,000 herds during a 100-day
period
600 persons
Wildlife specialists
2,000 herds and their
surrounding environs during a
100-day period
500 survey designers
Wildlife specialists
(sample collectors)
2,000 herds and their
surrounding environs during a
100-day period
3,000 sample collectors
Veterinary Response
Team—livestock
2,000 herds during a 100-day
period
60 persons
Veterinary Response
Team—companion
animals
2,000 herds during a 100-day
period
60 persons
298 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
Information technology
support staff
1 person per Incident
Command Post
420 Command posts 420 persons
Administrative support
personnel
Trainers
Approaches for Large-Scale Events
To avoid duplication of resources, CBRNE weapons or devices and hazardous materials (hazmat)
resource organizations should cross-train with other capabilities
To increase throughput in handling samples, laboratory resource organizations should develop new
diagnostic technologies and pursue technology enhancements
For efficient use of national resources in emergencies with finite geographic distribution, animal
treatment teams (livestock) should pursue cross-State border cooperation
For efficient use of personal and economic support to affected communities, personal resource
organizations should use on-farm labor and develop just-in-time training
To simplify the indemnity process and provide a cost-effective alternative to euthanasia and disposal,
indemnity plan resource organizations should pursue the final indemnity rule and consider the sale of
vaccinated animals for slaughter
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
USDA
Headquarters EOC
Federal
Resource
Organization
1 Nationally Federal (USDA)
Direct Tactical
Operations
USDA Regional
EOC
Federal
Resource
Organization
100 Nationally Federal (USDA)
Direct Tactical
Operations
APHIS
Headquarters EOC
Federal
Resource
Organization
1 Nationally Federal (APHIS)
Direct Tactical
Operations
APHIS Regional
EOC
Federal
Resource
Organization
2 Nationally Federal (APHIS)
Direct Tactical
Operations
APHIS Regional
EOC
Federal
Resource
Organization
2 Nationally Federal (APHIS)
Direct Tactical
Operations
State EOC
Resource
Organization
1 Per State State
Direct Tactical
Operations
Agriculture EOC
Resource
2 Per State State
Direct Tactical
Target Capabilities List 299
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Organization Operations
Incident Command
Post (ICP)
Resource
Organization
420 Nationally
Federal/State/
Local
Direct Tactical
Operations
National Response
Coordination
Center
Federal
Resource
Organization
3 Nationally Federal (USDA)
Direct Tactical
Operations
Regional Response
Coordination
Center
Federal
Resource
Organization
6 Nationally Federal (USDA)
Direct Tactical
Operations
Emergency
Response Team
(ERT–A)
Resource
Organization
1 Per State State
Direct Tactical
Operations
Multiple Area
Command (MAC)
Resource
Organization
15 Nationally
Federal/State/
Local
Direct Tactical
Operations
Multi-agency
coordinating group
Resource
Organization
9 Per State State
Direct Tactical
Operations
Technical specialist
position
Personnel As needed Per incident
Federal
(USDA/APHIS)/
State
Direct Tactical
Operations
Veterinary medical
assistance team
NIMS typed
Resource
Organization
12 Nationally
Federal
(DHS/FEMA)
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Veterinary
epidemiologist
Personnel 750 Nationally
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Veterinary
epidemiologist
Personnel 15
Per State
(average)
State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Communications
technicians
Personnel 200 Nationally
Federal
(USDA/APHIS)/
Federal
(DHS/FEMA)
All Activities
Communications
technicians
Personnel 4
Per State
(average)
State All Activities
Communications
technicians
Personnel 4
Per State
(average)
Private Sector All Activities
Trade support
personnel
Personnel
As needed Per incident
Federal
(USDA/APHIS)
Implement Disease
Containment
300 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Quarantine
personnel
Personnel
1
Per Incident
Command Post
Federal
(USDA/APHIS)
Implement Disease
Containment
Measures
Provide Animal
Welfare
Quarantine
personnel
Personnel
3
Per Incident
Command Post
State
Implement Disease
Containment
Measures
Provide Animal
Welfare
Quarantine
personnel
Personnel
12,270 Nationally
Local/Private
Sector
Implement Disease
Containment
Measures
Provide Animal
Welfare
Biosecurity
personnel
Personnel
2 Per State
Federal
(USDA/APHIS,
DOJ)
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Biosecurity
personnel
Personnel
4 Per State State
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Biosecurity
personnel
Personnel
30 Per State
Local/Private
Sector
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Decontamination
personnel
Personnel
1
Per Euthanasia
Incident
Command Post
Federal
(USDA/APHIS)
Conduct
Euthanasia/Disposal
Decontamination
personnel
Personnel
60 Per State State
Conduct
Euthanasia/Disposal
Target Capabilities List 301
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Decontamination
personnel
Personnel
7,200
Nationally,
through just-in-
time training
Local/Private
Sector
Conduct
Euthanasia/Disposal
Euthanasia
personnel
supervisors
Personnel
3
Per State
(average)
State
Conduct
Euthanasia/Disposal
Euthanasia
personnel
Personnel
1,800
Nationally,
through just-in-
time training
Local/Private
Sector
Conduct
Euthanasia/Disposal
Animal welfare
specialist
Personnel
1
Per Incident
Command Post
Federal
(USDA/APHIS)
Provide Animal
Welfare
Disposal personnel
Personnel
1 Per State
Federal
(USDA/APHIS)
Conduct
Euthanasia/Disposal
Disposal personnel
Personnel
2 Per State State
Conduct
Euthanasia/Disposal
Disposal personnel
Personnel
90 Per State
Local/Private
Sector
Conduct
Euthanasia/Disposal
Livestock appraisal
personnel
Personnel
3 Per State
Federal
(USDA/APHIS)
Implement Disease
Containment
Measures
Livestock appraisal
personnel
Personnel
9 Per State State
Implement Disease
Containment
Measures
Surveillance
personnel
Personnel
1
Per Incident
Command Post
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Surveillance
personnel
Personnel
25 Per State State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
CBRNE Personnel
Personnel
1 Per State
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
CBRNE Personnel Personnel
2 Per State State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
302 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
CBRNE Personnel Personnel
12 Per State
Local/Private
Sector
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Foreign animal
disease personnel
Personnel 30 Per State
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Foreign animal
disease personnel
Personnel 30 Per State State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Foreign animal
disease personnel
Personnel 60 Per State
Local/Private
Sector
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Specialty
Laboratory
Technicians
Personnel 25 Nationally
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Specialty
Laboratory
Technicians
Personnel 18
Per State
(average)
State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Highly Skilled
Laboratory
Technicians
Personnel 50 Nationally
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Highly Skilled
Laboratory
Technicians
Personnel 18
Per State
(average)
State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Admin Laboratory
Support
Personnel 25 Nationally
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Admin Laboratory
Support
Personnel 12
Per State
(average)
State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Target Capabilities List 303
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Risk
Communication
Personnel
Personnel
2 Per State
Federal
(USDA/APHIS)
Implement Disease
Containment
Measures
Risk
Communication
Personnel
Personnel
5 Per State State
Implement Disease
Containment
Measures
Risk
Communication
personnel
Personnel
5 Per State
Local/Private
Sector
Implement Disease
Containment
Measures
Data Entry
supervisor
Personnel
1 Per State
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Data Entry
Supervisor
Personnel
1 Per State State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Data Entry
Technicians
Personnel
3 Per State
Federal
(USDA/APHIS)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Data entry
Technicians
Personnel
3 Per State State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Data Entry
Technicians
Personnel
43 Per State
Local/Private
Sector
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Equipment for
trace-back and
trace-forward
investigations
Equipment 30,000 Nationally
Federal
(USDA/APHIS,
DHS/FEMA)/
State/ Local
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Animal
identification
system (individual
tagging element)
Equipment 85 million
Federal
(USDA/APHIS)/
State/ Local
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Identification
Officer
Personnel 1 Per State
Federal
(USDA/APHIS)
Implement Disease
Containment
304 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Measures
Provide Animal
Welfare
Conduct Euthanasia/
Disposal
Identification
Officer
Personnel
1
Per Incident
Command Post
State
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct Euthanasia/
Disposal
Identification
Officer
Personnel
47 Per State
Local/Private
Sector
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct Euthanasia/
Disposal
Euthanasia systems Equipment As needed
Federal
(USDA/APHIS)/
State/ Local
Conduct
Euthanasia/Disposal
Therapeutics Equipment As needed
Federal
(USDA/APHIS)/
State/ Local
Implement Disease
Containment
Measures
Provide Animal
Welfare
Dispensing
personnel
supervisors
Personnel 60 Nationally Federal (USDA)
Conduct
Euthanasia/Disposal
Vaccine dosages Equipment
Up to 85
million
Nationally Federal (USDA)
Implement Disease
Containment
Measures
Vaccinators Personnel 1 Per State Federal (USDA)
Implement Disease
Containment
Measures
Vaccinators Personnel 1
Per Incident
Command Post
State
Implement Disease
Containment
Measures
Vaccinators Personnel 720 Per State
Local/Private
Sector
Implement Disease
Containment
Measures
Target Capabilities List 305
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Warehousing and
distribution
systems
Resource
Organization
As needed Per incident
Federal
(USDA/APHIS,
DHS/FEMA)/
State/ Local
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Trucks/buses/
minivans
Transportation
Equipment
2400 Nationally
Federal
(DHS/FEMA,
DOT)/
State/Local
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Law
Enforcement Agent
Personnel 1 Per State
Federal
(DOJ/FBI)
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Law Enforcement
Officer
Personnel 1
Per Incident
Command Post
State
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Law Enforcement
Officer
Personnel 45 Per State Local
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Wildlife Specialist
Personnel
4 Per State
Federal (USDA,
DOI)
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Wildlife Specialist
Supervisors
Personnel
4 Per State State
Conduct Animal
Health
Epidemiological
Investigations and
Surveillance
Wildlife Specialist
(sample collectors)
Personnel
180 Per State
Local/Private
Sector
Conduct Animal
Health
306 Target Capabilities List
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Epidemiological
Investigations and
Surveillance
Veterinary
Response Team—
livestock
Resource
Organization
6
Per State
affected (1 in-
State and 5 out
of State)
State
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Veterinary
Response Team—
livestock
Resource
Organization
6
Per county
affected (1
county team and
5 out-of-county
teams)
Local
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Veterinary
Response Team—
companion animals
Resource
Organization
6
Per State
affected (1 in-
State and 5 out
of State)
State
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Veterinary
Response Team—
companion animals
Resource
Organization
1
Per county
affected (1
county team and
5 out-of-county
teams)
Local
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Information
technology support
Personnel 50 Nationally
Federal
(USDA/APHIS,
DHS/FEMA)
All Activities
Information
technology support
Personnel 4 Per State State All Activities
Information
technology support
Personnel
20 Per State
Local/Private
Sector
All Activities
Administrative
support personnel
Personnel
4 Per State
Federal
(DHS/FEMA)
All Activities
Administrative
support personnel
Personnel
20 Per State State All Activities
Administrative
support personnel
Personnel
50 Per State
Local/Private
Sector
All Activities
Trainers
Personnel
1 Per State
Federal
(USDA/APHIS)
Implement Disease
Containment
Target Capabilities List 307
RESPOND MISSION: ANIMAL DISEASE EMERGENCY SUPPORT
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Trainers
Personnel
4 Per State State
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
Trainers
Personnel
20 Per State
Local/Private
Sector
Implement Disease
Containment
Measures
Provide Animal
Welfare
Conduct
Euthanasia/Disposal
References
1. Administrative Procedures Guidelines: Resource Typing, Qualifications, Training and Certification Systems,
United States Department of Agriculture, Animal and Plant Health Inspection Service, 2005.
2. Farm Bill 2002. Title 10, Subtitle E: Animal Health Protection Act. CFR42. PL 107-293
3. American Veterinary Medical Association (AVMA) Guidelines for Euthanasia of Animals. AVMA,
Schaumberg, Illinois. 2000.
4. Catastrophic Incident Supplement to the NRP; Department of Homeland Security, 2005.
5. National Mutual Aid Resource Aid and Resource Management. Federal Emergency Management Agency
(FEMA), 2004.
6. National Agriculture Statistics Service (NASS). United States Department of Agriculture, 2005.
http://www.usda.gov/nass/.
7. Schoenbaum, M.A. & Disney, W.T. “Modeling alternative mitigation strategies for a hypothetical outbreak of
foot-and-mouth disease in the United States.” Preventative Veterinary Medicine. 58, 25–52. 2003.
8. Universal Task List, Department of Homeland Security, 2005.
9. Interim Final Rule: Foot and Mouth Disease: Payment of Indemnity (Reg. Plan Seq.No.4) [RIN: 057-AB34].
United States Department of Agriculture, Animal and Plant Health Inspection Service, 2005.
10. Veterinary Services Memo 580.4: Procedures for Investigating a Suspected Foreign Animal Disease / Emerging
Disease Incident. United States Department of Agriculture, Animal and Plant Health Inspection Service,
Veterinary Services, 2004.
308 Target Capabilities List
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Target Capabilities List 309
RESPOND MISSION: ENVIRONMENTAL HEALTH
ENVIRONMENTAL HEALTH
Capability Definition
Environmental Health is the capability to protect the public from environmental hazards and manage the
health effects of an environmental health emergency on the public. The capability minimizes human
exposures to environmental public health hazards (e.g., contaminated food, air, water, solid waste/debris,
hazardous waste, vegetation, sediments, and vectors). The capability provides the expertise to run fate and
transport models; design, implement, and interpret the results of environmental field surveys and
laboratory sample analyses; develop protective guidance where none exists; and use available data and
judgment to recommend appropriate actions for protecting the public and environment. Environmental
Health identifies environmental hazards in the affected area through rapid needs assessments and
comprehensive environmental health and risk assessments. It works closely with the health community
and environmental agencies to link exposures with predicted disease outcomes, provides input in the
development of Crisis and Emergency Risk Communication (CERC) messages, provides guidance on
personal protective measures, and advises on environmental health guidelines.
Outcome
After the primary event, disease and injury are prevented through the quick identification of associated
environmental hazards, including exposure to infectious diseases that are secondary to the primary event
as well as secondary transmission modes. The at-risk population (i.e., exposed or potentially exposed)
receives the appropriate countermeasures, including treatment or protection, in a timely manner. The
rebuilding of the public health infrastructure, removal of environmental hazards, and appropriate
decontamination of the environment enable the safe re-entry and re-occupancy of the impacted area.
Continued monitoring occurs throughout the recovery process in order to identify hazards and reduce
exposure.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports:
ESF #1: Transportation
ESF #3: Public Works and Engineering
ESF #5: Information and Planning
ESF #6: Mass Care, Housing and Human Services
ESF #8: Public Health and Medical Services
ESF #10: Oil and Hazardous Materials Response
ESF #11: Agriculture and Natural Resources
ESF #14: Long Term Community Recovery and Mitigation
Worker Safety and Health Support Annex
Nuclear/Radiological Incident Annex
Catastrophic Incident Annex
Oil and Hazardous Materials Incident Annex
310 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
General Environmental Health
Res.B3c 1.1.1
Provide environmental health input to the development of plans or the jurisdictional planning
process (evaluation and revision)
Res.B3c 1.1.1.1
Develop plans and protocols for coordinating the environmental health function into
response activities (evaluation and revision)
Res.B3c 1.1.2
Identify the appropriate environmental health official and insure their inclusion in the
incident command staff
Res.B3c 1.1.2.1
Identify an ‘Environmental Health Coordination Unit’ and develop a mechanism for their
inclusion in the appropriate coordination organization (e.g., ICP, EOC, JFO)
Res.B3c 1.1.3 Integrate and supervise a plan for environmental monitoring
Res.B3c 1.1.4.1
Develop capacity for the personnel and resources necessary to create and maintain geo-coded
databases of key environmental health infrastructure and to effectively share information
during emergency response
Res.B3c 1.1.6
Develop a plan to coordinate the various elements of environmental health among Federal,
State, and local response
Res.B3c 1.1.5 Identify appropriate expertise needed for all aspects of environmental health response
Res.B3c 1.1.7 Develop inputs into the Crisis and Emergency Risk Communication (CERC) plan
Res.B3c 1.1.4 Coordinate to insure interoperable and redundant communication equipment
Res.B3c 1.1.3.1
Coordinate environmental health efforts (e.g., response work, database management of
environmental sample results, interpretation of results, and risk communication)
Res.B3c 1.1.3.2
Coordinate with the appropriate agencies for the analysis and database management of
environmental samples and for the interpretation of results and risk communication
Res.B3c 1.1.3.3 Coordinate with public and private laboratories to ensure redundancies of capability
Res.B3c 1.1.3.4 Resolve confidentiality issues for sharing of information from laboratory results
Potable Water Supplies
Res.B3c 1.2.2
Develop and maintain all-hazards emergency response procedures and protocols for
assessment of Public Water Utility, Alternative Water Supplies (Hauled Water, Bulk Water,
Bottled Water), Unregulated systems (individual wells), and Temporary or mobile treatment
systems (Reverse Osmosis Purification Unit, Portable onsite treatment)
Res.B3c 1.2.3
Develop standard operating procedures (SOPs) for prioritizing the provision of potable water
to affected populations and key facilities.
Res.B3c 1.2.4
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
safety and integrity of potable water supply and delivery system
Res.B3c 1.2.1.1
Develop emergency guidelines and operation criteria for limited operations (boil water or do
not drink order) and plan for dissemination to public and policyholders in cooperation with
water utilities
Target Capabilities List 311
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 1.2.4.1
Develop and maintain intrastate mutual aid agreements with water providers and relevant
health and environment entities for assistance in disaster response/emergency events
(WARN, mutual aid)
Res.B3c 1.2.4.2
Develop and maintain interstate agreements with water providers and relevant health and
environment entities for assistance in disaster response/emergency events (EMAC)
Res.B3c 1.2.5
Develop and maintain a geo-coded database of all Safe Drinking Water Act (SDWA)
drinking water facilities
Food Supplies
Res.B3c 1.3.1
Develop capacity for the personnel and resources necessary to create and maintain a geo-
coded database of the food supply and delivery system
Res.B3c 1.3.2
Ensure the existence of MOUs or other contractual agreements needed to share resources
such as food inspection personnel, equipment, and databases
Res.B3c 1.3.3
Address mechanisms to recommend the closing of facilities or operations, and address non-
compliance with recommendations in environmental health plans
Res.B3c 1.3.4
Address mechanisms to re-open food supply and delivery operations and facilities in
environmental health plans
Res.B3c 1.3.2.1
Conduct hazard needs assessment and staffing surge requirements in the area of food supply
and delivery
Res.B3c 1.3.2.2
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
safety and integrity of food supply and delivery system
Res.B3c 1.3.2.3 Develop materials and personnel to conduct just-in-time training for food protection
Res.B3c 1.3.2.4
Coordinate with public and private laboratories to develop plans for the lab testing necessary
to ensure safety of the food supply and delivery system
Res.B3c 1.3.5
Ensure that environmental COOP planning addresses personnel and resources necessary to
ensure the safety of the food supply and delivery system and mechanisms to prioritize
response actions
Res.B3c 1.3.6
Develop capacity for rapid communications and data sharing (including geo-coded data)
during emergency response
Wastewater Management
Res.B3c 1.4.1 Develop and maintain all-hazard emergency response plans, procedures, and programs for
the collection, treatment, and disposal of waste water (liquid waste and sewage) during
emergency events to include Public Waste Water Utility, Alternative Waste Water (portable
toilets, temporary lagoons, waste hauling), Unregulated systems (individual septic tanks),
and Land applications
Res.B3c 1.4.2
Develop and maintain all-hazards emergency response procedures and protocols for
assessment of the following types of facilities: Public Waste Water Utility, Alternative
Waste Water, (portable toilets, temporary lagoons, waste hauling), Unregulated systems
(individual septic tanks) and Land applications
Res.B3c 1.4.1.1
Develop standard operating procedures (SOPs) for the prioritization of the collection,
treatment, and disposal of waste water (liquid waste and sewage) for affected populations
and priority facilities (e.g., shelters, hospitals, etc).
Res.B3c 1.4.3.1
Develop and maintain intrastate mutual aid agreements with waste water collection,
treatment, and disposal organizations and relevant health and environment entities for
assistance in disaster response/emergency events (WARN, mutual aid)
312 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 1.4.3.3
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
safety and integrity of wastewater systems
Res.B3c 1.4.3.2
Develop and maintain interstate agreements with waste water collection, treatment, and
disposal organizations and relevant health and environment entities for assistance in disaster
response/emergency events (EMAC)
Res.B3c 1.4.4
Develop and maintain a geo-coded database of all waste water facilities (e.g., treatment
plants, lift stations, etc.)
Vector Surveillance
Res.B3c 1.5.1 Develop plans, procedures, and programs for vector control
Res.B3c 1.5.2
Develop plan for assessing local vector control infrastructure prior to event and how it has
been damaged during the event
Res.B3c 1.5.3 Develop plan to assist local vector control while they rebuild capabilities
Res.B3c 1.5.1.1
Develop disease specific emergency response plan for vector control including; insect,
arthropod and rodent vectors
Res.B3c 1.5.1.2
Compile and review existing emergency vector control guidelines to include surveillance and
control of insect, arthropod and rodent vectors.
Res.B3c 1.5.1.3
Develop new emergency vector control guidelines where none currently exist that include
surveillance and control of insect, arthropod and rodent vectors.
Res.B3c 1.5.1.4
Develop communications plan for vector control to include control measures for the public
and public agencies
Res.B3c 1.5.4
Develop, at the local level, the capability to create a geo-coded data base of all geographic
locations assessed for vectors including locations that were treated, e.g., larvicides, spraying,
etc.
Res.B3c 1.5.3.1
Develop Environmental Health Strike Team of appropriately trained personnel to perform
vector control operations
Res.B3c 1.5.2.1
Assemble an assessment and inventory of current capacity, both public and private, to
perform vector control
Building Environment
Res.B3c 1.6.1
Develop plans, procedures, and protocols for providing environmental health support during
re-entry operations
Res.B3c 1.6.1.1 Develop procedures and guidelines for building re-entry
Res.B3c 1.6.2
Assess power supply and generators for priority structures and identify alternative power
sources
Res.B3c 1.6.1.2
Develop a plan with checklist for evaluating re-entry and re-occupancy of facilities (e.g.,
homes, educational, institution and health care facilities) that establishes evaluation process,
assessment criteria, and indicators of safe re-occupation
Res.B3c 1.6.3
Develop communications plan for safety and environmental related hazards associated with
re-entry and re-occupation of homes and facilities
Res.B3c 1.6.4
Develop and implement a monitoring system to determine status of rehabilitation efforts and
health and safety issues associated with re-entry and re-occupancy
Res.B3c 1.6.4.1 Develop capacity to assess community structures and determine safe operations
Res.B3c 1.6.5
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
Target Capabilities List 313
RESPOND MISSION: ENVIRONMENTAL HEALTH
safety of building environments
Outdoor Environment
Res.B3c 1.7.1
Conduct research and establish health-risk based tolerance thresholds for key contaminants;
including updating existing methods and developing new ones where none exist
Res.B3c 1.7.2.1 Identify susceptible and vulnerable populations
Res.B3c 1.7.3
Develop and maintain a geo-coded database of potential hazards (e.g., refineries, chemical
plants, mines, medical waste depositories, etc.)
Res.B3c 1.7.4 Inventory monitoring and sampling capabilities
Res.B3c 1.7.5 Develop an all-hazards communications plan
Res.B3c 1.7.6.1
Develop MOUs between and among public and private laboratories to provide redundant
capabilities
Res.B3c 1.7.3.1 Conduct geo-coded baseline monitoring for all environmental media
Res.B3c 1.7.2 Conduct environmental vulnerability assessments
Res.B3c 1.7.6.2
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
safety of outdoor environments
Res.B3c 1.7.7 Coordinate with appropriate remediation teams for all contingencies
Support for Mass Care
Res.B3c 1.8.1
Develop plans, procedures, and programs for environmental health support of mass care and
sheltering facilities
Res.B3c 1.8.1.1
Develop mass care and sheltering guidelines that include safety/ food/air/water/wastewater
sanitation/solid and biomedical waste requirements for all mass care facilities to include:
shelters, housing, ice/food distribution, feeding sites, and other care facilities
Res.B3c 1.8.1.2
Develop mass care and sheltering guidelines that include food safety and sanitation
requirements
Res.B3c 1.8.2
Develop shelter guidelines that include requirements for provision of safe drinking water
from all sources and that include recommendations for alternate sources
Res.B3c 1.8.3
Develop shelter guidelines that include requirements for sanitation and number of portable
toilets (e.g., toilets, porta-potties, and hand washing facilities)
Res.B3c 1.8.3.1
Identify sources and pre-arrange for delivery and emptying of toilets, porta-potties, and hand
washing facilities
Res.B3c 1.8.4
Provide input into plans, procedures, and protocols to ensure individual/gross
decontamination of persons and pets prior to admittance to shelters and other mass care
facilities, medical and alternate care facilities, reception centers, animal shelters and other
places as needed
Res.B3c 1.8.3.2
Conduct building/facility inspections in advance to identify food/sanitation capability and
suitability of structures identified as mass care and shelter facilities (e.g., housing, shelters,
feeding and care facilities)
Res.B3c 1.8.5 Develop a geo-coded database of all pre-designated mass care and shelter operations
Res.B3c 1.8.5.1 Update geo-coded database of all mass care and shelter operations
Res.B3c 1.8.6
In coordination with Mass Care and shelter operations, ensure that field communication plan
includes environmental health personnel
314 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 1.8.7
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
environmental health support to mass care and shelter response
Support for Solid Waste/Debris Disposal
Res.B3c 1.9.1
Develop plans, procedures, programs, and guidance for environmental health support of
waste management and debris removal
Res.B3c 1.9.2 Develop and provide technical inputs for waste management and debris removal guidelines
Res.B3c 1.9.2.1
Participate in the emergency response planning process for managing the type and quantities
of waste generated by the incident and cleanup efforts
Res.B3c 1.9.2.2
Participate in the emergency response planning process for the safe removal and disposition
of waste and debris
Res.B3c 1.9.3
Participate in the development of communications plans, procedures, and guidance for waste
management and debris removal
Res.B3c 1.9.4 Develop a geo-coded database of all waste management facilities
Res.B3c 1.9.5
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
safety of solid waste/debris disposal
Support for Hazardous Waste Response
Res.B3c 1.10.3 Participate in the communications planning process for hazardous materials incidents
Res.B3c 1.10.1
Provide technical assistance, consultation, and support in the development of plans for
transporting hazardous materials
Res.B3c 1.10.1.1 Participate in the identification of facilities for the management of hazardous materials
Res.B3c 1.10.1.2
Participate in the determination of environmental health issues and concerns for transporting
hazardous materials
Res.B3c 1.10.2 Participate in the development of a geo-coded database of hazardous materials facilities
Res.B3c 1.10.4
Develop Environmental Health Strike Team of appropriately trained personnel to ensure
safety of hazardous materials management and decontamination
Preparedness Measures Metrics
Drinking water safety is addressed in the comprehensive environmental health emergency
response plan
Yes/No
Emergency plans to assess emergency water supply for impacted populations and key
facilities are place to ensure:
Two liters per person per day
Bathing/washing/cooking 20 liters per person per day
Yes/No
Waste water disposal is addressed in the comprehensive environmental health emergency
response plan
Yes/No
Emergency plans to assess emergency waste water disposal for impacted populations and
key facilities are in place to ensure:
One portable toilet per 25 people
Gray water disposal
Yes/No
Food safety is addressed in the comprehensive environmental health emergency response
plan
Yes/No
Target Capabilities List 315
RESPOND MISSION: ENVIRONMENTAL HEALTH
Environmental health aspects of waste management and debris removal are addressed in the
comprehensive emergency response plan
Yes/No
Vector control is addressed in the comprehensive environmental health emergency response
plan
Yes/No
Environmental health issues and concerns during hazardous materials incidents are
addressed in the comprehensive emergency response plan
Yes/No
Safe solid waste disposal/debris management is addressed in the comprehensive
environmental health emergency response plan
Yes/No
Safe re-entry and re-occupation is addressed in the comprehensive environmental health
emergency response plan
Yes/No
Sanitation/hygiene/safety issues for mass care facilities are addressed in the comprehensive
environmental health emergency response plan
Yes/No
Risk communication is addressed in the comprehensive environmental health emergency
response plan and pre-event messages are developed
Yes/No
Priority structures have been identified and assessed Yes/No
Percent of Safe Drinking Water Act (SDWA) drinking facilities included in geo-coded
database
100%
Geo-coded database includes non- Safe Drinking Water Act (SDWA) systems
Yes/No
Geo-coded database includes community wastewater facilities
Yes/No
Geo-coded database includes food operations
Yes/No
Percent of waste water facilities (e.g., treatment plants lift stations, etc.) included in geo-
coded database
100%
Geo-coded database includes mass care and shelter operations
Yes/No
Geo-coded database includes vector control
Yes/No
Geo-coded database includes educational and institutional facilities (including associated
chemical, biological, and radiological hazards)
Yes/No
Geo-coded database includes hazardous materials facilities (including associated chemical,
biological, and radiological hazards)
Yes/No
Percent of waste management facilities included in geo-coded database
100%
Geo-coded database includes environmental laboratories
Yes/No
Geo-coded database is distributed to State and local emergency operations Yes/No
Geo-coded environmental samples database is capable of cataloging results by collection
medium (such as water, drinking water, soil, air, animal vectors)
Yes/No
Frequency with which geo-coded database of potential hazards is updated
Every 12 months
Frequency with which baseline monitoring database is updated
Every 12 months
Frequency with which environmental vulnerability assessments are updated
Every 3 months
Frequency with which plans, procedures, programs, and guidance for environmental health
support of waste management and debris removal are reviewed, exercised, and updated
Every 12 months
316 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Contamination survey instrumentation is available Yes/No
Comprehensive environmental health assessment is completed for pre-selected facilities and
structures
Yes/No
Percent of States that include emergency vector control training in their public health
pesticide certification program
100%
Percent of local vector control programs, both public and private, able to provide geo-coded
data
50%
Frequency with which geo-coded vector control database is updated Every month
Frequency with which vector control geo-coded database and updates are distributed to State
and local emergency operations
Every month
Geo-coded environmental samples database is capable of cataloging results by collection
medium (e.g., water, drinking water, soil, air, animal vectors)
Yes/No
Comprehensive environmental health assessment is completed for pre-selected facilities and
structures
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B3c 2.1 Develop training programs for providing environmental health support
Res.B3c 2.5 Identify and train personnel to develop and maintain geo-coded environmental health databases
Res.B3c 2.3
Ensure that environmental health emergency planning is fully integrated and exercised with the
jurisdictional emergency plan
Res.B3c 2.2.10 Provide training to ensure environmental health support to hazardous materials responders
Res.B3c 2.2.2
Develop and conduct emergency response training relevant to environmental health in drinking
water systems to field staff and managers of State/local drinking water programs and drinking
water utilities
Res.B3c 2.2.4
Develop and conduct emergency response training relevant to all waste water systems including
field staff and managers of State/local waste water programs, waste water utilities, public
health, and emergency management
Res.B3c 2.2.5
Include emergency vector control response training to field staff and managers of State/local
programs having responsibility for vector control in public health pesticide applicators’
certification
Res.B3c 2.2.3
Develop and deliver environmental health emergency food safety response training to field staff
and managers of food programs
Res.B3c 2.2.8
Develop and conduct emergency response training to field staff and managers of State/local
programs having responsibility for safety/food/air/water/wastewater sanitation assessments of
mass care operations
Res.B3c 2.2.8.1
Develop and conduct environmental health training to pre-designated managers, responders and
volunteers of mass care operations
Res.B3c 2.2.10.1
Provide appropriate hazardous materials response training to field staff and managers of
State/local programs having involvement in hazardous materials response
Res.B3c 2.2.3.1 Identify and train volunteers in emergency food safety
Res.B3c 2.2.3.2 Provide training to regulated entities within the food delivery system
Target Capabilities List 317
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 2.2.3.4 Develop materials and personnel to conduct just-in-time training for food protection
Res.B3c 2.2.2.1
Develop and conduct emergency response training relevant to all drinking water systems
including field staff and managers of State/local drinking water programs, drinking water
utilities, public health, and emergency management
Res.B3c 2.4 Develop exercise programs for providing environmental health support
Preparedness Measures Metric
Frequency with which emergency response training is provided to field staff and managers
of State and local environmental health programs
Every 12 months
Training addresses the range of environmental health issues Yes/No
Training has been provided to ensure environmental health support to hazardous materials
responders
Yes/No
Training on food safety is provided to responders and volunteers Yes/No
Training on environmental health is provided to pre-designated managers, responders, and
volunteers of mass-care operations
Yes/No
Percent of solid waste and debris and disposal workers adequately trained and protected
(PPE)
100%
Performance Tasks and Measures/Metrics
Activity: Direct Environmental Health Operations (Command and Control)
Definition: In response to notification of environmental hazards, provide overall mobilization,
management of assessment, and coordination and support of Environmental Health activities
through demobilization
Critical Tasks
Res.B3c 3.1
Coordinate the environmental health function into response activities
Res.B3c 3.1.1
Develop an incident-specific plan to coordinate the various elements of environmental health
among Federal, State, and local response
Res.B3c 3.1.3
Determine and ensure the coordination for the analysis and database management of
environmental samples, including those for which other agencies are responsible for the
interpretation of results and risk communication
Res.B3c 3.1.4
Provide environmental health support and coordination for Crisis and Emergency Risk
Communication
Res.B3c 3.1.4.1
Develop Crisis and Emergency Risk Communication information for dissemination through the
Joint Information Center to media, public, partners and stakeholders
Res.B3c 3.1.4.2 Identify and communicate environmental health risk issues to the affected population
Res.Bc3 3.1.5
Provide input on forecasting and planning aspects as part of the Incident Command System (ICS)
for environmental health needs in the subsequent operation period
Res.Bc3 3.2
Provide support and coordinate environmental health resources to address potable water supply
issues
Res.Bc3 3.3 Provide support and coordinate environmental health resources to address waste water issues
Res.Bc3 3.4 Provide support and coordinate environmental health resources to address mass care issues
318 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.Bc3 3.5
Provide support and coordinate environmental health resources to address debris and waste
management issues
Res.Bc3 3.6
Provide support and coordinate environmental health resources to address responder safety and
health (link to capability)
Res.Bc3 3.7
Provide support and coordinate environmental health resources to address hazardous materials
(CBRNE) issues
Res.Bc3 3.8
Provide support and coordinate environmental health resources to address vector control
response issues
Res.Bc3 3.10
Provide support and coordinate environmental health resources to address medical care issues to
include exposure assessment, toxicological consultation, dose assessment, secondary exposure,
medical waste management
Res.Bc3 3.11
Provide support and coordinate environmental health resources to address food and agricultural
safety and defense
Res.Bc3 3.12
Provide support and coordinate environmental health resources to address animal-health
emergency support issues
Res.Bc3 3.13 Provide support and coordinate environmental health resources to address food supply issues
Res.Bc3 3.14
Provide support and coordinate environmental health resources to address safe re-entry and re-
occupancy of community, homes, and facilities
Res.Bc3 3.15 Provide support and coordinate environmental health resources to address outdoor environmental
issues
Performance Measures Metric
Time in which technical information, support and consultation is provided for the creation
of Crisis and Emergency Risk Communication messages
Within 60 minutes
from request
Percent of time that environmental health technical information, support and coordination
is provided in response to a request or an identified need
100%
Percent of time that environmental health resources are deployed in response to a request
or an identified need
100%
Time in which environmental health input is provided for the forecasting and planning
aspects of the Incident Action Plan (IAP)
Within 60 minutes
from request
Activity: Activate Environment Health
Definition: Identify required experts and mobilizes personnel to begin environmental health
assessments and response activities
Critical Tasks
Res.B3c 4.1
Identify environmental health specialties required to assess and support response
Res.B3c 4.2
Mobilize environmental health personnel
Res.B3c 4.3
Mobilize environment health resources
Performance Measures Metric
Target Capabilities List 319
RESPOND MISSION: ENVIRONMENTAL HEALTH
Appropriate environmental health specialties have been identified or put on stand-
by
Yes/No
Time in which environmental health personnel are mobilized Within 24 hours from incident
Activity: Ensure Safety of Potable Water Supplies
Definition: Conduct health assessments and take actions necessary to ensure that the public has
sufficient access to safe potable water for drinking, washing, and ice
Critical Tasks
Res.B3c 5.1 Provide initial damage assessment of drinking water infrastructure
Res.B3c 5.2 Request needs for equipment and personnel through emergency operations, Emergency
Management Assistance Compact, federal assistance, or mutual aid agreements
Res.B3c 5.2.1 Deploy personnel and equipment to repair, conduct assessments, provide technical assistance and
conduct monitoring of drinking water supplies and systems
Res.B3c 5.1.1 Develop prioritization list of activities to provide potable water to affected populations and key
facilities
Res.B3c 5.1.2 Conduct ongoing and follow-up assessment of systems to include facility assessments, equipment
needs assessments, water sampling, and laboratory analysis and personnel needs
Res.B3c 5.3 Conduct ongoing repairs, technical assistance, and monitoring for all water systems
Res.B3c 5.4 Disseminate water communication messages to appropriate groups considering population and
cultural differences
Performance Measures Metric
Time in which initial assessments for water system needs for affected populations
and priority facilities are conducted
Within 12 hours from
establishment of
communications
Time in which all public water facilities are assessed Within 14 days from incident
Percent of time that State and local drinking water regulations are met for drinking
water at point of use or entry into the distribution system to include the following
systems: (1) Public Water Utility; (2) Alternative Water Supplies (Hauled Water,
Bulk Water, Bottled Water); (3) Unregulated systems (individual wells); (4)
Temporary or mobile treatment systems (ROPU, Portable onsite treatment)
100%
Activity: Ensure Safety of Food Supplies
Definition: Conduct health assessments and take actions necessary to ensure that the food
supply meets the health and safety codes of local jurisdiction
Critical Tasks
Res.B3c 6.1
Identify high risk foods, food supplies and systems, facilities, and transport mechanism
(temporary providers) that may pose hygiene or safety issues because of the event
Res.B3c 6.2
Conduct initial assessments of food facilities using Emergency Guidelines and Operation Criteria
or applicable code
Res.B3c 6.2.1 Conduct field surveys to assess damage to food facilities
320 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 6.2.2 Assess safety and integrity of food supply delivery and transport mechanisms
Res.B3c 6.2.3
Ensure that the safety and integrity of food supply and delivery is considered when conducting
community infrastructure assessments
Res.B3c 6.2.4
Record and report assessments through automated systems (e.g., scanned forms or handhelds) to
develop reports for follow-ups and tracking of common and related issues
Res.B3c 6.3 Determine safety of response activities
Res.B3c 6.4 Establish priorities for response activities
Res.B3c 6.5 Activate COOP/COG plans
Res.B3c 6.6 Address compromised safety and integrity issues of the food supply an delivery system
Res.B3c 6.7.1 Provide just-in-time training for volunteers
Res.B3c 6.7 Activate volunteers
Res.B3c 6.8
Ensure proper food handling in non-traditional operations activated during emergency response,
and ensure best practices
Res.B3c 6.8.1 Ensure proper food salvage of at risk foods and beverages or potentially exposed food products
Res.B3c 6.8.2
Recommend the closing of facilities or operations when appropriate and address non-compliance
with recommendations
Res.B3c 6.9
Provide Crisis and Emergency Risk Communication to public entities on topics such as the safe
disposal of damaged or contaminated food in coordination with Emergency Public Information
and Warning
Res.B3c 6.9.1 Ensure Crisis and Emergency Risk Communication to regulated entities
Res.B3c 6.10
Conduct environmental investigations of disease outbreaks possibly related to food-borne
exposure supported by information systems that comply with the Public Health Information
Network Functional Area Outbreak Management
Res.B3c 6.10.1 Clear facilities or operations for resumption of services when appropriate
Performance Measures Metric
Time in which assessment of priority food facilities is initiated using emergency
guidelines and operation criteria applicable to the affected area
Within 24 hours from
incident
Food safety personnel participate in infrastructure assessment Yes/No
Activity: Ensure Safety of Wastewater Management
Definition: Conduct health assessments and take actions necessary to ensure that waste water is
properly managed and disposed
Critical Tasks
Res.B3c 7.1 Provide initial damage assessment of waste water collection, treatment and disposal facilities
Res.B3c 7.2
Request needed equipment and personnel through emergency operations, Emergency
Management Assistance Compact, Federal assistance, or mutual aid agreements
Res.B3c 7.2.1
Deploy personnel and equipment to repair, conduct assessments, provide technical assistance and
conduct monitoring of waste water systems
Target Capabilities List 321
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 7.1.1
Develop prioritization list of activities to provide waste water collection, treatment and disposal
facilities to affected populations and priority facilities (e.g., shelters, hospitals, etc.)
Res.B3c 7.1.2
Conduct ongoing and follow-up assessment of systems to include facility assessments,
equipment needs assessments, waste water sampling, and laboratory analysis and personnel
needs
Res.B3c 7.3 Conduct ongoing repairs, technical assistance, and monitoring for all waste water systems
Res.B3c 7.4
Disseminate waste water communication messages to appropriate groups considering population
and cultural differences
Performance Measures Metric
Time in which initial assessments are conducted for waste water system needs for
affected populations and priority facilities (e.g., shelters, hospitals, etc.)
Within 12 hours from
establishment of
communications
Time in which all public waste water facilities are assessed Within 14 days from incident
Percent of time that State and local waste water regulations are met for waste water
to include the following systems: (1) Public Waste Water Utility; (2) Alternative
Waste Water (portable toilets, temporary lagoons, waste hauling); (3) Unregulated
systems (individual septic tanks); (4) Land application
100%
Percent of affected populations provided with adequate temporary sewage disposal
alternatives
(1 portable toilet per 20 persons or access to pit latrines provided to all personnel
according to The Sphere Project Minimum Standards in Disaster Response
guidelines)
100%
Activity: Provide Vector Surveillance
Definition: After vector is identified, mobilize and equip control personnel with appropriate
personal protective equipment and direct control strategies and application of vector control
substances
Critical Tasks
Res.B3c 8.1 Provide vector control
Res.B3c 8.1.1 Assist in the coordination of vector control response
Res.B3c 8.2
Establish a vector control technical expertise team for surveillance and monitoring of animal
infections until population densities and infection rates return to pre-event levels
Res.B3c 8.3
Conduct assessment of insect, animal and rodent vectors to include population densities,
infectivity rates, and human risk potential
Res.B3c 8.4
Coordinate emergency vector control measures to the extent needed to supplement local capacity
and reduce risk to pre-event levels
Res.B3c 8.3.1 Monitor vectors
Res.B3c 8.4.1 Develop plan to work with local vector control to assist while they rebuild capabilities
Performance Measures Metric
Time in which initial assessment of insect, animal, and rodent vectors
is completed
Within 72 hours from incident
confirmation
322 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Percent of vectors mitigated 85%
Time in which animal control measures are initiated Within 96 hours from incident
Frequency with which database with areas treated for vector control is
updated
Every 48 hours
Frequency with which geo-coded database is updated with all
locations assessed or treated for vectors during incident
Every 48 hours
Activity: Ensure Safety of Building Environments
Definition: Conduct health assessments and take actions necessary to ensure that buildings can
be safety re-entered
Critical Tasks
Res.B3c 9.1 Provide environmental health support on assessing buildings for re-entry
Res.B3c 9.1.1
Assist assessments to collect and analyze data needed to determine safe re-entry and re-
occupancy of community, homes and facilities
Res.B3c 9.2 Coordinate with NIOSH/OSHA/Hazmat to identify facilities that are safe for re-entry
Res.B3c 9.1.2 Assess community structures and issue recommendations for safe operations
Res.B3c 9.3
Provide geo-coded status report of community, homes, facilities, and structures identified as safe
or unsafe to re-enter and re-occupy
Res.B3c 9.1.3 Assess rehabilitation of community, homes, facilities, and structures
Res.B3c 9.4 Monitor re-entry operations
Performance Measures Metric
Percent of affected communities, homes, educational, institutional and health care facilities
monitored in accordance with established evaluation processes and criteria
100%
Frequency with which data is analyzed during the incident to determine status of safe re-
entry and re-occupancy of community, homes, and facilities
Every 12 hours
Time in which a geo-coded system is implemented to determine status of rehabilitation
efforts and health and safety issues associated with reentry and re-occupancy
Within 72 hours
from the incident
Documentation is maintained for assessments conducted Yes/No
Frequency with which geo-coded status report of community, homes and facilities identified
as safe or unsafe to re-enter and re-occupy are updated
Every 12 hours
Activity: Ensure Safety of Outdoor Environments
Definition: Conduct health assessments and take actions necessary to ensure that areas can be
safety re-entered
Critical Tasks
Res.B3c 10.1 Design and conduct appropriate environmental sampling programs
Res.B3c 10.2
Geo-code all environmental samples and make them publicly available in a timely manner where
appropriate
Target Capabilities List 323
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 10.1.1
Provide health impact assessment of sampling results from various environmental sources to
include: water, air, surfaces and soil via comparison to baseline results and/or preexisting
standards and make them publicly available in a timely manner where appropriate
Res.B3c 10.3 Recommend and/or lead remediation efforts for individual property owners and communities
Res.B3c 10.4
Establish a sampling plan relevant to the event
Performance Measures Metric
Time in which the sampling plan is developed
Within 24 hours from
incident
Time in which the sampling plan is initiated
Within 72 hours from
incident
Time in which the initial findings and response recommendations are summarized and
disseminated
Within 96 hours from
incident
Time in which a full characterization and recommendations based upon the initial
assessments are developed
Within 14 days from
incident
Activity: Provide Environmental Health Support to Mass Care Response
Definition: Conduct health assessments and take actions necessary to ensure that mass care
facilities provide safe food, water, sanitation, and environment
Critical Tasks
Res.B3c 11.1 Coordinate environmental health assessments of mass care and shelter operations
Res.B3c 11.1.1
Monitor the environmental health impact of changing population levels and circumstances in
mass care and shelter operations
Res.B3c 11.2
Conduct initial comprehensive environmental assessments (safety/food/water/wastewater
sanitation) of mass care and shelter operations to ensure compliance with guidelines
Res.B3c 11.2.2 Assess safety of potable water at mass care facilities-shelters, feeding centers, and sources of ice
Res.B3c 11.2.3
Assess safety of food supply at mass care facilities-shelters, feeding centers, food/ice distribution
centers
Res.B3c 11.2.4
Assess safety of wastewater management (including toilets, on-site systems and hand washing
facilities) at mass care facilities
Res.B3c 11.3 Provide vector control to mass care and shelter facilities
Res.B3c 11.4 Assess building safety for mass care and shelter facilities
Res.B3c 11.5
Provide environmental health support to sold waste/debris removal at mass care and shelter
facilities
Res.B3c 11.6 Conduct follow-up environmental health assessments (safety/food/air/water/wastewater
sanitation) of mass care operations
Performance Measures Metric
Time in which a sanitation assessment of drinking water at mass care facilities, shelters, and
feeding centers is completed to ensure the water quality meets EPA standards
Within 48 hours
from onset of shelter
operation
Time in which comprehensive environmental assessments (water, air, sanitation, food, and
safety) at mass care facilities, shelters, feeding centers, and food/ice distribution centers are
Within 48 hours
from onset of shelter
324 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
completed to ensure: (1) Safe water – 7.7-15 liters/day; (2) Cot spacing (overcrowding)– 3.5
m2; (3) Minimum 1 toilet/20 persons, etc.
operation
Frequency with which geo-coded database is updated with all mass care operations Every 12 hours
Activity: Provide Environmental Health Support to Solid Waste/Debris Removal
Definition: Conduct health assessments and take actions necessary to ensure that solid waste
management and debris removal activities are conducted in a manner that protects public and
environmental safety
Critical Tasks
Res.B3c 12.1 Provide environmental health assessment of waste management and debris removal practices
Res.B3c 12.1.1 Provide environmental health assessment of waste and debris in impacted areas
Res.B3c 12.2 Monitor waste management and debris removal operations
Res.B3c 12.2.1 Ensure the appropriate collection and management of waste and debris
Res.B3c 12.3
Provide technical assistance and consultation for the environmental health aspects of waste
management and debris removal
Performance Measures Metric
Time in which assessment of waste management and debris removal operations for
environmental health concerns is initiated
Within 24 hours from
incident
Time in which monitoring of waste management and debris removal operations and
practices is initiated
Within 24 hours from
incident
Frequency with which geo-coded database is reviewed and updated after the
collection and disposal process begins
Every 24 hours
Activity: Provide Environmental Health Support to Hazardous Materials
Management/Decontamination
Definition: Conduct health assessments and take actions necessary to ensure that hazardous
materials management and decontamination activities are conducted in a manner that protects
public and environmental safety
Critical Tasks
Res.B3c 13.1
Participate in response to hazardous materials incidents by providing environmental health
technical assistance, consultation, and support
Res.B3c 13.2
Ensure that initial and follow-up assessments of environmental media impacted by hazardous
materials incidents are conducted
Res.B3c 13.3
Provide technical assistance, consultation, and support in the investigation of hazardous materials
incident
Res.B3c 13.4
Provide geo-coded locations and results for environmental samples following hazardous
materials incidents
Res.B3c 13.3.1
Provide technical assistance, consultation, and support during damage assessments following
hazardous materials incidents
Target Capabilities List 325
RESPOND MISSION: ENVIRONMENTAL HEALTH
Res.B3c 13.2.2
Assist in conducting assessments to identify environmental health hazards, threats, vulnerabilities
and risks to facilities involved in the production, storage or distribution of hazardous materials
Res.B3c 13.5
Provide environmental health technical assistance, consultation, and support and coordination in
the management of environmental contaminants associated with hazardous materials incidents
Res.B3c 13.6
Provide technical assistance, consultation, and support in establishing and monitoring access
restrictions/quarantine to contaminated areas during hazardous materials incidents
Res.B3c 13.7 Provide technical assistance, consultation, and support regarding decontamination procedures
Res.B3c 13.8 Provide technical assistance, consultation, and support for plume modeling and evacuation
Res.B3c 13.7.1 Provide technical assistance, consultation, and support for decontamination operations
Performance Measures Metric
Time in which technical assistance, consultation, and support to hazardous materials
responders is initiated
Within 24 hours from
incident
Time in which technical assistance, consultation, and support for damage assessments
during hazardous materials incidents is initiated
Within 48 hours from
incident
Linked Capabilities
Linked Capability Relationship
Emergency Operations
Center Management
Environmental Health provides information to EOC Management for situational
awareness about environmental hazards that require response (clean-up, evacuation, etc)
and/or that impact responder health and safety. Environmental Health makes
recommendations on mitigation to decision makers in the EOC. Environmental Health
also requests resources from the logistics section within the EOC.
Citizen Evacuation and
Shelter-In-Place
Environmental Health provides protective action recommendations to Citizen
Evacuation and Shelter-In-Place
Mass Care (Sheltering,
Feeding, and Related
Services)
Environmental Health provides oversight to Mass Care (Sheltering, Feeding, and
Related Services) operations to ensure safe food, clean air and water, and necessary
waste disposal and other sanitation requirements.
Animal Disease
Emergency Support
Environmental Health provides an environmental health threat assessment to Animal
Disease Emergency Support.
Epidemiological
Surveillance and
Investigation
Epidemiological Surveillance and Investigation identifies potential vectors to
Environmental Health. Environmental Health findings inform epidemiological
investigations and targeted surveillance.
Food and Agriculture
Safety and Defense
Environmental Health provides information on potential contaminated soil and water to
be monitored. Environmental Health tasks related to eradication of crop diseases/pests,
integrity of the food producing industry, and removal and disposal of potentially
compromised food are listed in Food and Agriculture Safety and Defense
Emergency Public
Information and Warning
Environmental Health provides information and recommends protection and mitigation
strategies to be included in public releases to Emergency Public Information and
Warning.
Restoration of Lifelines Environmental Health provides information on environmental hazards to Restoration of
Lifelines.
326 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Linked Capability Relationship
WMD and Hazardous
Materials Response and
Decontamination
Environmental Health cooperates with WMD and Hazardous Materials Response and
Decontamination on when and how to perform decontamination, after appropriate
samples have been taken and returned for lab analysis.
Responder Safety and
Health
Environmental Health comprises many of the “SMEs” referenced in Responder Safety
and Health who will do environmental testing to inform what types of PPE are needed
and what hazards exist for responders entering an environment.
Economic and
Community Recovery
Environmental Health provides information regarding safe return to previously
dangerous areas. Environmental Health also conducts long-term monitoring and
remediation of contaminated sites.
Target Capabilities List 327
RESPOND MISSION: ENVIRONMENTAL HEALTH
Resource Element Description
Resource Elements Components and Description
Environmental Health Task Force
(General)
A Federal, State, Regional or Local task force comprising personnel with
expertise in environmental health functional elements (e.g., water, food,
debris and waste management, vector control, air) trained and equipped to
address environmental health issues. Task force is capable of collecting
general indoor and outdoor samples, conducting rapid needs assessments,
coordinate environmental health risk-based advice to the emergency
response community. Task force will identify and address environmental
health issues of concern to the impacted populations. Support the public
health planning and forecasting team. The size of the task force may be
scaled for the particular response. Local officials are responsible for
identifying all personnel even though the task force is composed of
personnel from all levels of government.
Personnel: 6 members, 1 lead
Environmental Health Strike Team
(Radiological)
A team trained and equipped to conduct environmental health assessments;
address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on radiological environmental health issues;
and consult with environmental health subject matter expert(s) as needed.
Team includes a health physicist to advise on a wide range of radiation
exposure and relevant actual or potential health effect issues. Team
includes trained radiological monitoring personnel to monitor the exposed
population for radiation contamination and assist with decontamination.
Personnel: 6 members, 1 lead; includes health physicist and trained
radiological monitoring personnel
Environmental Health Strike Team
(Food)
A team trained and equipped to conduct environmental health assessments;
address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on food environmental health issues; and
consult with environmental health subject matter expert(s) as needed.
Local officials are responsible for identifying all personnel even though
the strike team is composed of personnel from all levels of government.
Personnel: 6 members, 1 lead
Environmental Health Strike Team
(Potable Water)
A team trained and equipped to conduct environmental health assessments;
address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on potable water environmental health issues;
and consult with environmental health subject matter expert(s) as needed.
Personnel: 14 members, 1 lead;
Environmental Health Strike Team
(Potable Water) – Technical
Assistance
Provides technical assistance and message to private homeowners with
wells.
Personnel: 6 members, 1 lead
Environmental Health Strike Team
(Debris and Waste Management)
A team trained and equipped to conduct environmental health
assessments; address environmental health issues; compile, geo-code, and
interpret data; provide public health advice on debris and waste
management environmental health issues; and consult with environmental
health subject matter expert(s) as needed.
Personnel: 6 members, 1 lead;
Environmental Health Strike Team A team trained and equipped to conduct environmental health assessments;
328 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Resource Elements Components and Description
(Vector Control) address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on vector control environmental health issues;
and consult with environmental health subject matter expert(s) as needed.
Team has experience and training in trapping, identification and control
measures and is knowledge of notifications that need to be done before
control can commence (e.g., beekeepers, no spray registries etc.). Local
officials are responsible for identifying all personnel even though the strike
team is composed of personnel from all levels of government.
Personnel: 6 members, 1 lead;
Environmental Health Strike Team
(Hazardous Materials)
Environmental Health Strike Team
(Air) – outdoor
A team trained and equipped to conduct environmental health assessments;
address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on outdoor air environmental health issues;
and consult with environmental health subject matter expert(s) as needed.
Personnel: 8 members, 1 lead
Environmental Health Strike Team
(Air) – indoor air
A team trained and equipped to conduct environmental health assessments;
address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on indoor air environmental health issues; and
consult with environmental health subject matter expert(s) as needed.
Personnel: 6 members, 1 lead
Environmental Health Strike Team
(Wastewater)
A team trained and equipped to conduct environmental health assessments;
address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on wastewater environmental health issues;
and consult with environmental health subject matter expert(s) as needed.
Personnel: 14 members, 1 lead;
Environmental Health Strike Team
(Shelter)
A team trained and equipped to conduct environmental health assessments;
address environmental health issues; compile, geo-code, and interpret data;
provide public health advice on mass shelter environmental health issues;
and consult with environmental health subject matter expert(s) as needed.
Local officials are responsible for identifying all personnel even though
the strike team is composed of personnel from all levels of government.
Personnel: 6 members, 1 lead;
Environmental Health Lead
Coordinator
An environmental health professional trained and equipped to assume the
environmental command component of incident response, or in applicable
situations, assume incident command responsibilities. The coordinator
will also supervise the activities of the environmental health task force and
request strike team assets as needed. Local officials are responsible for
identifying the coordinator even though the coordinator may be Federal,
State, or local.
Environmental Health Liaison An environmental health professional trained and equipped to represent
environmental health concerns within the incident command structure.
Planning Assumptions
This capability applies to a wide range of incidents and emergencies including accidental or
deliberate disease outbreaks, natural disasters, nuclear and conventional events. Specific assumptions
on consequences are based on the Natural Disaster – Major Earthquake Scenario.
Target Capabilities List 329
RESPOND MISSION: ENVIRONMENTAL HEALTH
The capacity estimates and staffing formulas used in this capability are based on broad assumptions
that may or may not reflect conditions in an actual emergency.
Members of response organizations are on a reserve/volunteer call-up status. They will require some
time to assemble and must be relieved after some reasonable amount of time.
A progress rate of at least 10% improvement is expected in deriving capability requirements.
Power restoration will not occur immediate but will begin to increase after 2 weeks.
Funding and resources are abundantly available.
Potable Water:
Environmental Health Strike Team – Potable Water – Team consist of 15 members, 1 Team Lead and
14 members, 14 members make up 7 Units (2 person per Unit).
All potable water systems initially inoperable.
Team size and make up will vary given the complexity of operations assessed.
Mobile laboratories will be requested to match the number of samples taken. Note: The Laboratory
Target Capability function should contain this requirement.
Primary function of Teams is to assess damage, make recommendations, provide technical assistance
and maintain the safety of potable water.
Initial Damage Assessments
: 49 large regulated water supply systems (prioritized from large
municipal to smaller systems); strike team is 7 Units of 2 people, each Unit can do 1 assessments per
day; each strike team can do 7 systems per day; Need 1 team to accomplish all assessments in 1 week.
Initial Damage Assessments: 1,960 smaller regulated water supply systems; strike team is 7 Units of
2 people, each Unit can do 5 assessments per day; each strike team can do 35 per day; Need 4 teams
to complete all assessments in 2 weeks.
Temporary bulk water distribution site assessments
: 504 distribution sites, strike team is 7 Units of 2
people; each Unit can do 6 site assessments per day; each strike team can do 42 sites per day; Need 2
teams to accomplish all assessments in 2 days.
Individual homeowner wells will not be an initial priority but will be require technical assistance.
Assistance needs will increase water teams after 2 weeks when broader community power is restored.
One small team of SMEs will be needed to develop public service messages and provide technical
assistance. 7 person team consisting of 1 team lead and 6 team members.
Mobile water treatment unit assessments will be needed for 294 priority facilities, strike team is 7
Units of 2 people, each Unit can do 6 site assessments per day; each strike team can do 42 sites per
day; Need 2 teams to accomplish all assessments in 2 days. Sites will need to be evaluated before
beginning operation therefore immediate assessments are required. Need 1 team to complete all
assessments over 1 week.
Waste Water:
Environmental Health Strike Team – Waste Water – Team consist of 15 members, 1 Team Lead and
14 members, 14 members make up 7 Units (2 person per Unit).
All waste water systems initially inoperable.
Team size and make up will vary given the complexity of operations assessed.
Mobile laboratories will be requested to match the number of samples taken. Note: The Laboratory
Target Capability function should contain this requirement.
49 large regulated waste water systems , strike team is 7 Units of 2 people, each Unit can do 1
assessments per day; each strike team can do 7 per day; Need 1 teams to accomplish all assessments
in 1 week.
1,960 smaller regulated waste water supply systems. 7 Units of 2 people, each Unit can do 5 site
assessments per day; each strike team can do 35 sites per day; Need 2 teams to accomplish all
assessments in 2 weeks.
330 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
588 temporary lagoons and holding facilities assessed , 7 Units of 2 people, each Unit can do 6 site
assessments per day; each strike team can do 42 sites per day; Need 2 teams to accomplish all
assessments in 2 weeks.
196 land application sites are established and assessed, strike team is 7 Units of 2 people, each Unit
can do 4 site assessments per day; each strike team can do 28 sites per day; Need 1 teams to
accomplish all assessments in 1 week.
Food
12 hour operational period (work shift).
1.5 million meals per day needed.
Food for shelters will be prepared off site in 45 centralized kitchen facilities/commissary, 3 strike
teams (consisting of 6 people) doing 45 inspections a day.
575 field kitchens and 1,875 mobile kitchens. These will require 30 strike teams (consisting of six
people each) at a frequency of every other day for a total of 7560 inspections (I hour inspection) to be
completed in one week.
Restaurants will not be allowed to reopen for an extended period of time (2 weeks).
Assume 10,000 preexisting regulated food facilities (including restaurants) (per 1 million people) .
There will be a need for eh strike team (food) to perform initial assessment and/or ensure closure of
these facilities. 40 EH strike teams (consisting of 6 people) can do 10,080 inspections (1 hour
inspection time) in 2 weeks.
In order to maintain span of control of teams, 12 team leaders and two lead coordinators would be
need to be identified.
Shelters
Shelters will mostly be of temporary facilities (tent cities) assuming previously identified structures
have been damaged due to earthquake, located close to affected population.
1,152 shelters, each capable of caring for 250 people – the average population per shelter will rise
with a catastrophic event (estimated 1000 residents per shelter vs 250) because fewer facilities (400
shelters) will be available than the preplanning estimation. It is assumed that shelters are located in
Host communities and that each shelter has existing basic sanitation (water/wastewater) and will not
require environmental support for water/wastewater.
A team of 6 emergency health strike team (shelter) members can assess 2 shelters in one day.
Frequency of inspections should be every other day.
Planning for needs of EH strike teams (shelter) is based on first 30 days. There will be continued
need for additional teams for displaced populations in FEMA trailer parks, ongoing shelters, etc.
100 of the 400 shelters are special needs. Companion animal needs should be addressed.
In order to maintain span of control of teams, 100 team leaders and ~16 lead coordinators would be
need to be identified
After the acute response period, the need for temporary living quarters (FEMA temporary housing)
will require further environmental health services
Some previously identified structures will not be able to be shelters due to actual or potential damage.
Timely logistical support to shelters and feeding sites will be essential and required for a sustained
period of time.
An immediate and sustained need for bulk distribution of relief supplies will be required.
Requirements will depend on the nature of the human needs produced by the incident.
Populations likely to require mass care services include the following: 1) Primary victims (with
damaged or destroyed homes) 2) Secondary and tertiary victims (denied access to homes) 3)
Transients (visitors and travelers within the affected area) 4) Emergency workers (seeking feeding
support, respite shelter(s), and lodging).
Target Capabilities List 331
RESPOND MISSION: ENVIRONMENTAL HEALTH
Vector Surveillance:
6 counties affected
Prior indication of West Nile in the area
3 of 6 counties have pre-existing mosquito and rodent control programs, currently non-operational.
Vector surveillance
: Senior public health entomologist responsible for receiving surveillance data and
updating surveillance daily; 1 five-person field team per county for combination mosquito and rodent
surveillance, consisting of 2 medical entomologists, 1 rodent control specialist and 2 general field
technicians with equipment to collect and identify mosquitoes and rodents and with access to back-up
labs at state or federal levels to test mosquitoes for West Nile and other arboviruses; each field team
needs 2 vehicles (SUV or pick-up) for access to sampling sites in field and transport of samples back
to labs at least twice a day; for access to remote sampling sites, one ATV per pick-up may be needed.
Shelter vector surveillance
: One public health entomologist will liaison with the generalist task forces
stationed at each shelter to advise on vector surveillance and receive surveillance data
Vector control
: Recommendations are made to Incident Command for specific requirements to
mitigate any vector issues; control measures will be contracted out to an operational unit with that
capability
Indoor and Outdoor Air Quality:
While 1,000,000 buildings will be damaged, re-entry will only be attempted at 1% of the buildings
within the first month
Outdoor air quality monitoring
: Four two-person units per county equipped with appropriate PPE and
mobile air monitors for all outdoor air quality concerns (including, but not limited to PM, VOCs,
PAHs, asbestos, and mold spores). Units will consist of 2 environmental health scientists with
training in outdoor air quality monitoring. Units will have the capability to respond to acute point
source events as well as general air quality concerns over the affected region. Units will have access
to back-up labs at state or federal levels to process samples. Counties will be surveyed daily or every
other day throughout the first 30-60 days, and then regularly (weekly or biweekly) throughout the
recovery period to monitor for long-term events or problems. Where roads are passable, the EPA’s
TAGA can be used for supplemental large-scale air monitoring efforts.
Indoor air quality monitoring
: Two three-person Units per county equipped with appropriate PPE and
indoor air monitors to perform air quality assessments and make recommendations for re-entry into
1,000 damaged buildings within the first month. Units will consist of three environmental health
scientists with training in indoor air monitoring. Units will have access to back-up labs at state or
federal levels to process samples.
Air quality modeling and assessments
: Two environmental health risk assessors with experience in
air pollutant risk assessment will receive data as compiled by the air monitoring strike teams and
make recommendations on exposure guidelines and health risks presented by indoor and outdoor air
quality. For circumstances where air contamination must be modeled to forecast future hazards and
vulnerabilities (e.g., the potential distribution of a plume), a team of three mathematical modelers
with the appropriate training and modeling software should be available for this forecasting function
Building Environments (Utilizes EH General Task Force):
Assessments occur after building is deemed structurally sound
Performed by the EH General Task Force, a multi-disciplinary team composed of seven
environmental health scientists with a variety of specialties including but not limited to, food safety,
industrial hygiene, engineering, environmental health and safety, environmental health specialist,
sanitarian, etc. One member of the Task Force is designated a team leader. The six working
personnel of the Task Force will be subdivided into three teams of two that will conduct field
assessments.
332 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
The Task Force assists in the assessment of building environments, e.g., educational facilities,
hospitals, institutions, and homes, for the presence of critical components affecting health, as
appropriate to each structure. These components include sanitation, wastewater conveyance, vector
control, indoor air quality, potable water, absence of hazards, etc.
Residences, schools (500 students), hospitals (500 beds), institutions (100 person occupancy, e.g.,
jails) are representative buildings that vary in complexity of operation.
Each team of two should be able to assess 16 homes per day; 2 schools per day; 1 hospital per day; or
3 institutions per day. These assessments will scale up by a factor of three for the whole Task Force.
This team also possesses the multi-disciplinary ability to assist in the assessment of buildings for
emergency sheltering needs, and should be able to be used in this capacity.
Assume that of the 1,000,000 buildings damaged, only 1% will be re-occupied within the first 30
days. The Task Force will assess 1,000 buildings in this time frame, of which 10 are jails, 5 hospitals,
4 schools and the rest are homes (981).
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Natural Disaster – Major Earthquake Scenario)
Resource
Organization
Estimated Capacity Scenario
Requirement Values
Quantity of
Resources
Needed
Environmental Health
Task Force (General)
Task force can assess:
• Homes: 48 per day
• Schools: 6 per day
• Hospitals: 3 per day
• Institutions: 9 per day
In 30 days, need to assess:
• 10 institutions
• 5 hospitals
• 4 schools
• 981 homes
1 Task Force
Environmental Health
Strike Team (Food)
Strike Team can inspect:
• 45 centralized kitchen
facilities/commissary
per daily
• 7,560 field and mobile
kitchens per week
• 10,080 regulated
facilities in two weeks
Need to inspect:
• 45 centralized kitchen
facilities/commissary
• 575 Field kitchens and
1,875 mobile kitchens
every 48 hours
• 10,000 preexisting
regulated facilities (per
one million people)
3 teams for
centralized kitchens
30 teams for field
kitchens
40 teams for
regulated facilities
Environmental Health
Strike Team (Potable
Water)
Strike Team can inspect:
• 7 large regulated water
supply systems per day
per team
• 35 small regulated water
supply systems per day
per team
• 42 mobile water
treatment units per day
per team
• 42 temporary bulk water
distribution sites per day
per team
Need to inspect:
• 49 large regulated water
supply systems in 1
week
• 1,960 smaller regulated
water supply systems in
2 weeks
• 294 Mobile water
treatment units assessed
as opened over 1week
• 504 temporary bulk
water distribution sites
within 2 days
1 team for large
systems
4 teams for smaller
systems
1 team for mobile
units
2 teams for bulk sites
Target Capabilities List 333
RESPOND MISSION: ENVIRONMENTAL HEALTH
Resource
Organization
Estimated Capacity Scenario
Requirement Values
Quantity of
Resources
Needed
Environmental Health
Strike Team (Potable
Water) – Technical
Assistance
Team of 7 provides private
homeowners with wells with
technical assistance and
messaging,
Provides messaging and
technical assistance over a 2
week period
1 team
Environmental Health
Strike Team (Debris and
Waste Management)
Team can assess 45 square
miles per day for general
waste and debris assessment
900 square miles to be
assessed within 10 days
2 teams
Environmental Health
Strike Team (Vector
Control)
One county can be surveyed
throughout a 30 day period
Six counties surveyed
throughout a 30 day period
6 teams
Environmental Health
Strike Team (Hazardous
Materials)
Strike Team can inspect:
• 45 hazardous materials
facilities per day, and
• 3 hazardous materials
release incident per team
Need to inspect:
• 30,000 hazardous
materials facilities
within 20 days, and
• 50 hazardous materials
release incidents at peak
34 teams
17 teams
Environmental Health
Strike Team (Air) –
outdoor air
One-fourth of the geographic
area of a county can be
surveyed throughout a 30
day period for outdoor air
quality by a unit of 2
members
Six counties surveyed
throughout a 30-day period
6 teams of 8
members (4 units) for
outdoor air
monitoring
Environmental Health
Strike Team (Air) – indoor
air
80 buildings can be surveyed
for re-entry air quality over a
30-day period by a unit of 3
members
1,000 buildings surveyed in
a 30-day period
6 teams of 6
members (2 units) for
indoor air monitoring
Environmental Health
Strike Team (Wastewater)
Strike Team can inspect:
• 7 large regulated waste
water supply systems per
day
• 35 small regulated waste
water supply systems per
day
• 42 temporary waste
water lagoons per day
• 196 land application sites
per day
Need to inspect:
• 49 large regulated water
supply systems in 1
week
• 1,960 smaller regulated
waste water supply
systems in 2 weeks
• 588 temporary lagoons
assessed in 2 weeks
• 28 land application sites
are established and
inspected in 1 weeks
1 team for large
systems
2 teams for smaller
systems
2 teams for lagoons
1 team for land sites
Environmental Health
Strike Team (Shelter)
1 strike team per average
1000 shelter residents
400,000 affected population 100 teams
Environmental Health
Lead Coordinator
1 Lead Coordinator per 12
Strike Teams
260 Strike Teams 22 Lead Coordinators
Environmental Health
Liaison
1 per EOC 1 per EOC
334 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Environmental
Health Task Force
(General)
Personnel,
Training &
Equipment
1
Per 250,000
population or per
county/jurisdiction
Local
All Activities
Environmental
Health Strike Team
(Radiological)
Personnel,
Training &
Equipment
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Provide
Environmental
Health Support to
Hazardous
Materials
Management and
Decontamination
Environmental
Health Strike Team
(Food)
Personnel,
Training &
Equipment
1
1 per 125,000
population
Local
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Ensure
Safety of Food
Supplies
Environmental
Health Strike Team
(Potable Water)
Personnel,
Training &
Equipment
1
1 per 500,000
population
State
(environmental
protection
department,
public health
department)
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Ensure
Safety of Potable
Water Supplies
Environmental
Health Strike Team
(Debris and Waste
Management)
Personnel,
Training &
Equipment
1 Per 45 square miles
Local
(environmental
health
department)
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Provide
Environmental
Health Support to
Solid Waste/Debris
Removal
Environmental
Health Strike Team
(Vector Control)
Personnel,
Training &
Equipment
1
1 per county or
jurisdiction
Local
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Provide
Target Capabilities List 335
RESPOND MISSION: ENVIRONMENTAL HEALTH
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Vector Control
Environmental
Health Strike Team
(Hazardous
Materials)
Personnel,
Training and
Equipment
1
1 per 200,000
population
Local
(environmental
protection
department)
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Provide
Environmental
Health Support to
Hazardous
Materials Facilities
Surveillance and
Hazardous
Materials Incident
Response
Environmental
Health Strike Team
(Air) – Outdoor air
Personnel,
Training &
Equipment
1
1 per county or
jurisdiction
Federal (EPA)
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Ensure
Safety of Outdoor
Environments
Environmental
Health Strike Team
(Air) – indoor air
Personnel,
Training &
Equipment
1
1 per county or
jurisdiction
Federal (EPA)
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Ensure
Safety of Building
Environments;
Environmental
Health Strike Team
(Wastewater)
Personnel,
Training &
Equipment
1
1 per 500,000
population
State
(environmental
protection
department,
public health
department)
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Ensure
Safety of
Wastewater
Management
Environmental
Health Strike Team
(Shelter)
Personnel,
Training &
Equipment
1
Per 1000 sheltered
persons
Local
Direct
Environmental
Health Operations;
Activate
Environmental
Health; Provide
Environmental
Health Support to
Mass Care
336 Target Capabilities List
RESPOND MISSION: ENVIRONMENTAL HEALTH
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Response
Environmental
Health Lead
Coordinator
Personnel &
Training
1 Per 12 Strike Teams Local All Activities
Environmental
Health Liaison
Personnel &
Training
1
Per EOC or
jurisdiction
All Activities
References
1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html
2. National Response Plan (NRP). Department of Homeland Security. December 2004.
3. National Incident Management System (NIMS). Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf
4. National Mutual Aid and Resource Management Initiative, Resource Typing Definitions - I, Federal Emergency
Management Agency. January 2004.
5. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
6. Medical Personnel Exposed to Patients Contaminated with Hazardous Waste. Occupational Safety and Health
Administration standard interpretation. March 1992.
7. Accidental Radioactive Contamination of Human Food and Animal Feeds: Recommendations for State and
Local Agencies. Food and Drug Administration.
8. CDC Interim Plague Response Plans and Guidelines. Version 7. Centers for Disease Control and Prevention
Epidemic/Epizootic West Nile Virus in the US: Guidelines for Surveillance Prevention and Control. August
1998.2003. http://www.cdc.gov/ncidod/dvbid/westnile/resources/wnv-guidelines-aug-2003.pdf/11/2002.
9. Manual of Protective Action Guides and Protective Actions for Nuclear Incidents. EPA 400R9200, US
Environmental Protection Agency. 1991. (Revised guidance due to be issued late 2005/early 2006 will include
Protective Action Guides for water)
10. CDC Interim Tularemia Response Plans and Guidelines. Version 6/24/2002.
Target Capabilities List 337
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
EXPLOSIVE DEVICE RESPONSE OPERATIONS
Capability Definition
Explosive Device Response Operations is the capability to coordinate, direct, and conduct improvised
explosive device (IED) response after initial alert and notification. Coordinate intelligence fusion and
analysis, information collection, and threat recognition, assess the situation and conduct appropriate
Render Safe Procedures (RSP). Conduct searches for additional devices and coordinate overall efforts to
mitigate chemical, biological, radiological, nuclear, and explosive (CBRNE) threat to the incident site.
Outcome
Threat assessments are conducted, the explosive and/or hazardous devices are rendered safe, and the area
is cleared of hazards. Measures are implemented in the following priority order: ensure public safety;
safeguard the officers on the scene (including the bomb technician); collect and preserve evidence; protect
and preserve public and private property; and restore public services.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
Terrorism Incident Law Enforcement and Investigation Annex
ESF #10: Oil and Hazardous Materials Response
ESF #13: Public Safety and Security
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B2c 1.1 Develop, distribute, and maintain National Guidelines for Bomb Technicians
Res.B2c 1.2
Develop effective procedures and programs including standardized training to counter terrorist
events, employing weapons of mass destruction (WMD), suicide bombers, Vehicle Borne
Improvised Explosive Devices (VBIED), and Radio Controlled Improvised Explosive Devices
(RCIED)
Res.B2c 1.1.1
Maintain programs to ensure public safety bomb technicians are certified, and re-certified by FBI
Hazardous Devices School (HDS)
Res.B2c 1.1.2
Maintain programs to ensure all public safety bomb squads remain accredited by the FBI
according to National Guidelines for Bomb Technicians
Res.B2c 1.3
Develop and maintain plans that coordinate explosive device response in multi-jurisdictional
areas which protect critical infrastructure and key resources from terrorist threats
Res.B2c 1.4 Develop and maintain programs to measure gaps in explosive device response capability
Res.B2c 1.5
Develop and maintain programs to share explosive device response information, effective
practices, and lessons learned
338 Target Capabilities List
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Res.B2c 1.6
Assist public safety bomb squads and teams in achieving increased capability to counter terrorist
events with goal of a Type I rating
Preparedness Measures Metrics
Percent of bomb squads accredited by the FBI to standards set by the National Bomb Squad
Commanders Advisory Board (NBSCAB)
100%
Effective plans for Explosive Device Response Operations are in place Yes/No
Plans address standardized education to certify bomb technicians (e.g. FBI Hazardous Devices
School, National Bomb Squad Commanders Advisory Board).
Yes/No
Plans address onsite treatment of devices (e.g. deactivation, disruption, disabling,
containerizing for transport).
Yes/No
Plans address communications requirements (e.g. establish onsite command, control,
communications and intelligence operations).
Yes/No
Effective plans, tactics, techniques, and procedures to respond to suicide bombers are in place Yes/No
Effective plans, tactics, techniques, and procedures to respond to vehicle borne improvised
explosive devices are in place
Yes/No
Effective plans, tactics, techniques, and procedures to respond to radio controlled improvised
explosive devices are in place
Yes/No
Effective plans, tactics, techniques, and procedures to respond to improvised devices that
contain chemical, biological, and radiological components (Weapons of Mass Destruction) are
in place
Yes/No
Current mutual aid agreement that permits sharing of personnel and/or equipment is in place (if
necessary)
Yes/No
Squads obtain the equipment and training to receive a Type I or II rating Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B2c 2.1.6
Train public safety personnel to recognize explosive hazards, device components and precursors
and take appropriate action to maintain public safety
Res.B2c 2.1.8
Train public safety personnel and private sector security to effectively operate during explosive
device incidents
Res.B2c 2.3 Provide bomb threat awareness training and information to general public and private sector
Res.B2c 2.1.1
Establish in-service training programs for bomb squads that meet or exceed minimum
recommendations set in the National Guidelines for Bomb Technicians
Res.B2c 2.1.2
Initially train, certify, and re-certify public safety bomb technicians using curriculum designed,
developed and delivered by the NBSCAB and the FBI Hazardous Devices School (HDS)
Res.B2c 2.1.3
Initially accredit, and re-accredit public safety bomb squads using the curriculum developed by
the NBSCAB and the FBI Hazardous Devices School (HDS)
Res.B2c 2.1.4
Design, develop and deliver specialized training for public safety bomb squads and bomb
technicians in cooperation with FBI Hazardous Devices School (HDS)
Target Capabilities List 339
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Res.B2c 2.1.5
Design, develop and deliver explosive device response capability enhancement training and
technical assistance for public safety bomb squads and bomb technicians to coordinate national
prevention and protection efforts in cooperation with the DHS
Res.B2c 2.1.9
Design, develop, and deliver training in post-blast investigation consistent with the Bomb Scene
Investigation Concept that includes a qualified bomb technician as part of the post-blast
investigation team
Res.B2c 2.1.7
Obtain DHS certification and approval for use of Homeland Security Grant funds for selected
training and technical assistance
Res.B2c 2.2.1 Validate effectiveness of plans, procedures, and programs through realistic practical exercises
Preparedness Measures Metrics
Effective training and exercise programs for responding to suicide bombers are in place Yes/No
Effective training and exercise programs for responding to Vehicle Borne Improvised
Explosive Devices (VBIED) are in place
Yes/No
Effective training and exercise programs for responding to Radio Controlled Improvised
Explosive Devices (RCIED) are in place
Yes/No
Effective training and exercise programs for responding to improvised devices that
contain chemical, biological, and radiological components (Weapons of Mass
Destruction) are in place
Yes/No
Percent of certified bomb technicians trained and exercised in all required areas 100%
Effective tactics, techniques, procedures, and training are standardized and shared within
the bomb squad community
Yes/No
Effective practices and training are reinforced as needed during practical exercises that
accurately replicate threats and operating conditions
Yes/No
Percent of public safety personnel trained in explosive device awareness 100%
Percent of squads that meet or exceed the continuing minimum training set in the National
Guidelines for Bomb Squad Technicians
100%
General public and private sector are provided with bomb threat awareness training as
needed
Yes/No
All bomb squad training (including techniques, tactics, and procedures) is consistent with
and enhances training delivered by the FBI Hazardous Devices School (HDS)
Yes/No
Performance Measures and Metrics and Critical Tasks
Activity: Direct Explosive Device Response Operations
Definition: In response to notification of a potential exploding device, provide management and
coordination of Explosive Device Response Operations capability, through demobilization
Critical Tasks
Res.B2c 3.1
Establish onsite command, control, communications, and intelligence (C3I) operations for
explosive device response operations
Res.B2c 3.2
Coordinate with Incident Command (IC) to establish perimeter control (hot, warm, cold zones)
340 Target Capabilities List
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
commensurate with hazard magnitude
Res.B2c 3.3 Coordinate with appropriate unit and develop a plan of action
Res.B2c 3.3.1 Utilize canine, physical, and technical search techniques to secure inner perimeter
Performance Measures Metrics
Time in which onsite command and control communications (C3) is established and real
time tactical information is shared
Note: If C3 and info-share are established, bomb squad will demonstrate ability to
“join” rather than establish the network
Within 15 minutes from
arrival onsite
Activity: Activate Public Safety Bomb Squad
Definition: In response to activation, mobilize and arrive at the incident scene to begin operations
Critical Tasks
Res.B2c 4.2 Notify and activate Public Safety Bomb Squad Personnel
Res.B2c 4.3 Determine needed personnel and equipment based on information provided
Res.B2c 4.4.1 Assemble properly equipped bomb squad team at designated location
Res.B2c 4.5 Reassess personnel and equipment needs upon arrival
Performance Measures Metric
Time in which Bomb Squad personnel is notified by dispatch Within 15 minutes from time
of recognition of explosive
device threat by on-scene first
responders
Time in which determination is made as to personnel and equipment that needs to
be dispatched
Within 15 minutes from
notification
Time in which required personnel and equipment are enroute to the scene Within 30 minutes from initial
notification
Activity: Search and Assess Site
Definition: Once on scene and equipped, provide rapid assessment of assigned Bomb Squad
work areas, recommend search priorities/tactics to management, and begin search operations
utilizing canine, physical, and technical (e.g. electronic, robotic) search techniques
Critical Tasks
Res.B2c 5.1.1 Interview on-scene commander and any witnesses with direct observation of the device
Res.B2c 5.1 Conduct an initial reconnaissance of the area
Res.B2c 5.2 Implement emergency assessment procedures
Res.B2c 5.3 Conduct improvised explosive device threat analysis
Res.B2c 5.3.1 Determine appropriate operational procedures based on reconnaissance and initial assessments
Res.B2c 5.4 Provide positive explosive identification and safety guidance
Target Capabilities List 341
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Res.B2c 5.5 Notify proper Federal agencies if device is a suspected WMD
Performance Measures Metric
Time in which initial cordon is verified Within 1 hour from arrival
at incident scene
Time in which Operational Threat Assessment is complete Within 1 hour from arrival
at incident scene
Activity: Render Safe Onsite
Definition: Once on scene, establish site perimeters based on Standard Operating Procedures
(SOP) and threat, conduct IED onsite response and isolate device(s) from potential remote
detonation commands, clear the onsite area for render safe operations, and ensure compliance
with Radiological Assistance Program, Federal Radiological Emergency Response Plan, National
Response Plan for radiological IEDs
Critical Tasks:
Res.B2c 6.3 Conduct improvised explosives device (IED) onsite response
Res.B2c 6.1 Isolate device(s) from remote detonation commands
Res.B2c 6 Render device safe
Res.B2c 6.5 Identify appropriate off-site location if off-site render safe operations are necessary
Res.B2c 6.5.1
Prepare device to be transported to secondary location if off-site render safe operations are
necessary
Res.B2c 6.3.1
Ensure compliance with Radiological Assistance Program plan (RAP), Federal Radiological
Emergency Response Plan (FRERP) and National Response Plan for radiological IEDs
Res.B2c 7.4 Document and preserve evidence
Res.B2c 7.4.2 Initiate and advise crime scene investigative/forensic team
Performance Measures Metric
Time in which public Safety Bomb Squad verifies and assesses site perimeters based on
standard operating procedures (SOP) and threat
Note: If perimeters were previously established Bomb Squad will verify
Within 1 hour from
arrival onsite
Diagnostics and render safe procedures are conducted as appropriate for threat and device
type by function
Yes/No
Activity: Conduct Recovery, Removal, and Transport Operations
Definition: Collect and transport device and/or components for further processing of hazardous
elements
Critical Tasks
Res.B2c 7.1 Conduct onsite processing of device components and containerize for transportation
Res.B2c 7.2 Transport and escort components to a secure site
Res.B2c 7.3 Conduct off-site render safe and/or emergency destruction of device/explosives
342 Target Capabilities List
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Res.B2c 7.4.1 Document and preserve evidence
Res.B2c 7.5
Assess further the functional characteristics of the device as they relate to response safety
considerations (i.e. serial bomber)
Res.B2c 6.3.1
Ensure compliance with Radiological Assistance Program plan (RAP), Federal Radiological
Emergency Response Plan (FRERP) and National Response Plan for radiological IEDs
Res.B2c 7.4 Document and preserve evidence
Performance Measures Metric
Device and/or components are prepared for transport to a safe and secure site for
processing and/or disposal within time period determined by bomb technicians
on the scene, in accordance with public safety considerations
Yes/No
Activity: Demobilize Explosive Device Removal Operations
Definition: Upon completion of assigned mission, conduct 100% accountability of personnel and
equipment, reconstitute as required and disengage from incident site, and either be placed on
standby or redeploy to headquarters and stand-down
Critical Tasks
Res.B2c 8.1 Conduct 100% accountability of personnel and equipment
Res.B2c 8.2
Coordinate with Incident Command (IC) and Emergency Operations Center (EOC) to redeploy
Public Safety Bomb Squad
Res.B2c 8.3 Conduct debriefing for Bomb Squad personnel
Res.B2c 8.4 Conduct debriefing, when necessary, for all on-scene emergency personnel
Performance Measures Metric
Percent of on-scene Bomb Squad personnel provided a debriefing after every
incident
100%
Other responders are debriefed Yes/No
Additional Bomb Squad personnel who were not at the scene are briefed Yes/No
Linked Capabilities
Linked Capability Relationship
On-Site Incident Management Explosive Device Response Operations integrates itself into the local Incident
Command/Unified Command system. Explosive Device Response Operations
provides Incident Command/Unified Command with situation status reports and
threat/consequence information from which Incident Command determines,
coordinates, and controls response actions. On-Site Incident Management also
provides additional resources as requested by Explosive Device Response
Operations.
Emergency Public Safety and
Security Response
Explosive Device Response Operations determines and provides Emergency
Public Safety and Security Response with threat information and safe distance
recommendations for establishing a safety perimeter to include hot, warm, and
Target Capabilities List 343
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Linked Capability Relationship
cold zones and any safety corridors that need to be established for movement of
explosive devices.
Counter-Terror Investigation
and Law Enforcement
Explosive Device Response Operations follows procedures for preservation of
evidence and chain of custody of evidence. Explosive Device Response
Operations turns site over to Counter-Terror Investigation and Law Enforcement
after neutralizing the threat.
WMD and Hazardous Materials
Response and Decontamination
Explosive Device Response Operations turns over remains of device to WMD
and Hazardous Materials Response and Decontamination for further treatment,
as necessary.
Communications Explosive Device Response Operations must have the ability to transmit/receive
secure voice, data and images between inter-agency law enforcement community
344 Target Capabilities List
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Direct Explosive
Device
Response
Operations
End: End mission,
reconstitute, and return to
normal/standby operations
Activate Public
Safety Bomb
Squad
Search and
Assess Site
Render
safe
onsite?
Demobilize
Explosive Device
Removal
Operations
Conduct
Recovery,
Removal, and
Transport
Operations
Render Safe
Onsite
No device
found
Located &
characterized
device
Device
rendered safe
Request
appropriate
approval for
transport
Scene safe for
re-entry
Determine
resources to be
dispatched
On-Site Incident
Management
WMD/Hazardous
Materials
Response
and
Decontamination
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Start:
Indication of
bomb threat
Yes
No
Capability Activity Process Flow
Explosive Device Response
Operations Capability
Linked
Capabilities
Relationship
Determine perimeter
(hot, warm, cold zones)
Turn over evidence
Turn over remains of
device
Scene turned over
to Hazmat and LE/
forensic team
Area declared safe for normal access
Resources provided
Decide to activate based on information available/
scene
Develop render safe plan
Provide sitreps
Provide site assessment to management
Communications
Resources provided
Emergency
Public Safety
and Security
Response
Counter-Terror
Investigation and
Law Enforcement
Target Capabilities List 345
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Resource Element Description
Resource
Elements
Components and Description
Bomb Squads Type I
Per NIMS, a Type I level accredited bomb squad is capable of handling multiple
incidents. Type I teams from these squads must have render safe capabilities
including a remote (robotic) vehicle capable of handling a vehicle borne IED.
Squads trained and equipped to work in a CBRN environment.
Bomb Squads Type II
Per NIMS, a Type II level accredited bomb squad is capable of handling multiple
incidents. Type II teams from these squads must have render safe capabilities
including a remote (robotic) vehicle which may not be capable of handling a vehicle
borne IED. Squads trained and equipped to work in a CBRN environment.
Bomb Squads Type III
Per NIMS, a Type III level accredited bomb squad is capable of handling a single
incident. Type III teams from these squads must have basic render safe capabilities
without a remote (robotic) vehicle. Squads may be trained, but not equipped to work
in a CBRN environment.
FBI Special Agent Bomb
Technician
ATF Explosive
Enforcement Officers
DHS Office for Bombing
Prevention
DHS/TSA Explosives Unit
National Guard EOD
DoD/Military EOD
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability factors were
developed from an in-depth analysis of the Improvised Explosives Device scenario. Other scenarios
were reviewed to identify required adjustments or additions to the planning factors and national
targets.
It is noted that the specific placement of existing bomb squads has been driven by bombing activity
levels in the past, and the issue of adding new bomb squads or the rapid expansion of existing bomb
squads is currently managed through a “Needs Survey” process by the FBI, based on standards set by
the National Bomb Squad Commanders Advisory Board (NBSCAB) for the purpose of maintaining
the optimum levels of qualified and experienced bomb squad personnel. The Needs Survey is further
defined in the National Guidelines for Bomb Technicians.
General guidance -- Coverage of high density population and critical infrastructure/key resources
(CI/KR) locations by Type I level bomb squad teams is being added as a factor in the “Needs Survey”
process, detailed in the National Guidelines for Bomb Technicians. Other Locations – Type I, II, or
III based on population, population density, critical infrastructure requirements, and additional factors
as defined in the “Needs Survey” process
All situations must be assessed by the bomb technician on the scene as to time sensitive
considerations. Safety issues take precedence over time considerations.
346 Target Capabilities List
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
In catastrophic level Vehicle Borne Improvised Explosive Device (VBIED) situation where full
remote capabilities are available, it is desired to have the technological potential for diagnostics and
execution of the disruption tools within one hour from time of arrival on the scene.
Large Vehicle Bombs require Type I teams minimum
Radio Controlled Improvised Explosive Device (RCIED) require Type II team minimum, plus
Electronic Countermeasures (ECM) training and equipment meeting standards set by NBSCAB
Suicide Bomber(s) require Type III team minimum
Effective response times are directly related to threat identification and communicative chain to
dispatch.
Response timelines are dependent on location of event relative to placement of capability.
A system is in place to ensure the timely receipt of intelligence or device information to assist those
responding to the threat.
Bomb Squad – A bomb response organization consists of at least one bomb response team (see the
definition of a “bomb response team”), accredited by the FBI Hazardous Devices School to standards
set by the National Bomb Squad Commanders Advisory Board.
Bomb Response Team – A sub-unit within a bomb squad, consisting of at least two certified bomb
technicians and a full set of equipment meeting minimum standards for bomb squad operations.
Military EOD units are not currently resource typed within NIMS but are available to respond to
incidents in the community either to assist the “accredited” bomb squad, or respond to the incident in
an area without State/local bomb squad presence.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Bomb Squads
(Type I, II, and III)
NIMS Typed
Resource
Organization
458 Nationally State/Local All activities
FBI Special Agent
Bomb Technician
Personnel 140 Nationally, across
56 Field Offices
Federal
(DOJ/FBI)
All activities
ATF Explosive
Enforcement
Officers
Personnel 30 Nationally Federal
(DOT/ATF)
All activities
DHS Office for
Bombing
Prevention
Federal
Resource
Organization
1 Nationally
Federal
(DHS)
Develop and
Maintain Plans,
Procedures,
Programs, and
Systems
Develop and
Maintain Training
and Exercise
Programs
DHS/TSA
Explosives Unit
Personnel 32 Nationally
Federal
(DHS)
All activities
(Airline/
Target Capabilities List 347
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Airport support)
National Guard
EOD
Federal
Resource
Organization
Federal
(DoD/U.S.
National
Guard)
All activities
DoD/Military EOD Federal
Resource
Organization
Federal (DoD) All activities
References
1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html
2. Homeland Security Presidential Directive/HSPD-19, “Combating Terrorist Use of Explosives in the United
States”. February 12, 2007.
3. National Bomb Squad Commander's Advisory Board (NBSCAB). http://www.nbscab.org
4. Hazardous Devices School (HDS), Federal Bureau of Investigation, Redstone Arsenal, Alabama.
5. National Guidelines for Bomb Technicians, FBI Bomb Data Center Special Technicians Bulletin 87-4, Revised
6/01.
6. National Strategic Plan for U.S. Bomb Squads, November 2005.
7. NFPA 471: Recommended Practice for Responding to Hazardous Materials Incidents, National Fire Protection
Association, 2002 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=471.
8. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents, National
Fire Protection Association, 2002 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472.
9. NFPA 1561: Standard on Emergency Services Incident Management System, National Fire Protection
Association, 2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561.
10. National Response Plan (NRP). Department of Homeland Security. December 2004.
11. National Incident Management System (NIMS). Department of Homeland Security. March
2004.http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf
12. National Mutual Aid and Resource Management Initiative, Resource Typing Definitions- I. Federal Emergency
Management Agency. January 2004. http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf
13. Standardized Equipment List. The Interagency Board. 20.
http://www.iab.gov/downloads/IAB%202004%20SEL.pdf
14. Homeland Security Exercise and Evaluation Program (HSEEP), Volume II: Exercise Evaluation and
Improvement. Office for Domestic Preparedness, Department of Homeland Security. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf
15. 2004 Emergency Response Guidebook: A Guidebook for First Responders during the Initial Phase of a
Dangerous Goods/Hazardous Materials Incident. Department of Transportation. 2004.
http://HazMat.dot.gov/erg2004/erg2004.pdf
16. Energetic Materials Research and Training Center (EMRTC). New Mexico. http://www.emrtc.nmt.edu
17. Emergency Response to Terrorism: Basic Concepts. U.S. Department of Justice and Federal Emergency
Management Agency. 2004
348 Target Capabilities List
RESPOND MISSION: EXPLOSIVE DEVICE RESPONSE OPERATIONS
18. Bomb Squad Response to Suicide Bombers and Vehicle Borne Improvised Explosive Devices-Categories and
Strategies, NBSCAB, January 2006.
19. Bureau of Alcohol, Tobacco, Firearms and Explosives, Federal Explosives Law and Regulations, ATF P 5400.7
(09/00).
Target Capabilities List 349
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
FIRE INCIDENT RESPONSE SUPPORT
Capability Definition
This capability provides coordination and implementation of fire suppression operations, which include
the following tasks: assessing the scene, assigning resources, establishing an incident command system
(ICS) consistent with the National Incident Management System (NIMS), communicating the status of
the situation, requesting additional resources, establishing a safe perimeter, evacuating persons in danger,
rescuing trapped victims, conducting fire suppression, determining the cause of the fire(s), and ensuring
the area is left in a safe condition. This capability further includes support necessary to prepare the
community and reduce vulnerabilities in the event of a major event.
Outcome
Dispatch and safe arrival of the initial fire suppression resources occur within jurisdictional response time
objectives. The first unit to arrive initiates the Incident Command System (ICS), assesses the incident
scene, communicates the situation, and requests appropriate resources including any necessary mutual aid
or cross-discipline support. Firefighting activities are conducted safely and fire hazards are contained,
controlled, extinguished, and investigated, and the incident is managed in accordance with emergency
response plans and procedures.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
The capability supports Emergency Support Function (ESF) #4: Firefighting.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B2a 1.1
Develop plans, programs, and agreements on fire-related public safety protection activities,
including region-wide or interstate automatic and mutual aid response protocols
Res.B2a 1.2.5 Develop firefighting capability needed based on risk and threat assessment
Res.B2a 1.2.2
Develop procedures and protocols for coordinating protective action communications with at-risk
population on-scene
Res.B2a 1.2.6
Conduct fire code inspections and coordinate with appropriate personnel for building inspections
and compliance strategies
Res.B2a 1.1.1 Conduct fire education and life safety training and education programs
Res.B2a 1 Develop plans, procedures, and equipment guidelines to support firefighting response operations
Res.B2a 1.1.3 Conduct building plan reviews to reduce or eliminate hazards
Res.B2a 1.2.3 Develop plans for establishing alternative water supply
Preparedness Measures Metrics
350 Target Capabilities List
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Firefighting plans and procedures address ICS and are integrated with onsite incident
management
Yes/No
Plans include special risk requirements (e.g., alternative water supply) Yes/No
Regional and interstate mutual and automatic aid agreements are in place Yes/No
Specialized equipment needed for high-rise firefighting (e.g., 1-hr. bottles, high-rise
packs, litters for evacuating injured, high-rise communication systems) is available
Yes/No
Specialized equipment for subway firefighting and search and rescue is available Yes/No
Preplans and maps for subway system and standard operating procedure (SOP) for
dispatching companies to subway egress points to assist in search and rescue and
evacuation (departments with subway systems) are in place
Yes/No
Access to aerial units for deployment to roofs or high-rises (departments with high-rises)
is available
Yes/No
Stocked and garaged spare apparatus to surge total number of companies by 25 percent
over normal first-line staffing (large cities) are available
Yes/No
Procedures and protocols for coordinating protective action communications with at-risk
population on-scene are in place
Yes/No
Procedures to ensure safety of operating personnel are in place Yes/No
Procedures addressing demobilization are in place Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B2a 2.1 Develop and implement firefighting training program
Res.B2a 2.1.3
Develop and implement training to enable fire rescue and emergency medical services to
recognize the presence of chemical, biological, radiological, nuclear, or explosive (CBRNE)
materials
ResB2a 2.2
Develop and implement firefighting exercise program
Preparedness Measures Metric
Frequency with which training is provided in strategies for large-scale incidents Every 12 months
Frequency with which training is provided in flammable liquid/bulk fuel storage
firefighting (for jurisdictions with ports, refineries, storage, and shipment facilities for
flammable liquids and gases)
Every 12 months
Frequency with which training is provided in high-rise fires (for jurisdictions with high-
rises)
Every 12 months
Frequency with which training is provided in mass transit fires (for jurisdictions with
subways and/or commuter rail or light rail)
Every 12 months
Frequency with which training is provided in shipboard firefighting (for jurisdictions with
deep-water ports)
Every 12 months
Frequency with which training is provided in wilderness/urban interface firefighting Every 12 months
Target Capabilities List 351
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Performance Tasks and Measures/Metrics
Activity: Activate Fire Incident Response Support
Definition: Receive alarm signal and respond to incident site
Critical Tasks
Res.B2a 4.2.1 Establish and implement on-scene management for firefighting (utilizing ICS)
Res.B2a 4.1 Receive notification of incident
Res.B2a 4.3 Respond to scene with initial fire suppression resource assignment
Res.B2a 4.4 Arrive on scene
Performance Measures Metric
Time in which first fire suppression resource arrives on scene (at least 90% of
the time)
Within 4 minutes from call
Initial resource assignment is assembled in accordance with NFPA 1710 and
NFPA 1720 (National Fire Protection Association Standards)
Yes/No
Personnel accountability system is implemented upon arrival Yes/No
Time in which tactical operations are initiated Within 2 minutes from arrival on
scene
Activity: Size Up (Assess Site)
Definition: Observe scene and provide situation report
Critical Tasks
Res.B2a 5.1.1 Observe incident site upon arrival and conduct initial size-up (site assessment)
Res.B2a 5.1.4 Provide verbal situation report
Res.B2a 5.2.1 Communicate need for additional resources
Performance Measures Metric
Time in which situation report is provided to additional responding
personnel/units
Within 2 minutes from arrival on
scene
Activity: Direct Fire Incident Response Support Tactical Operations
Definition: In response to indication of fire, provide coordination and management of Fire
Incident Response Support through demobilization
Critical Tasks
Res.B2a 3.2.1 Coordinate with On-Site Incident Management
Res.B2a 3.3.1 Assign a Safety Officer to oversee firefighting operations
352 Target Capabilities List
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Res.B2a 3.2.5 Establish initial Rapid Intervention Company (iRIC)
Res.B2a 3.2.2 Establish objectives for conducting firefighting operations at incident scene
Res.B2a 3.4.2 Assess resource requirements
Res.B2a 3.4.2.1 Coordinate fire attack, victim rescue, and ventilation operations
Res.B2a 3.2.3 Coordinate fire suppression operations
Res.B2a 3.5.1 Notify other agencies as required by law
Res.B2a 3.5.2 Communicate internal incident response information
Res.B2a 3.2.4 Develop a water supply plan
Res.B2a 3.3.4 Maintain personnel accountability system
Res.B2a 3.3.2
Provide for responder safety, in coordination with Safety Officer, including responder
rehabilitation
Performance Measures Metric
Time in which incident command for firefighting operations is
established
Within 5 minutes from arrival on scene
Rapid Intervention Crew is established prior to start of interior structural
firefighting operations
Yes/No
Time in which to request local mutual aid Within 60 minutes from arrival on scene
Time in which other agencies are notified of incident as required by law Within 30 minutes from arrival on scene
Time in which responder rehabilitation is established Within 30 minutes from arrival on scene
Activity: Search Scene and Rescue
Definition: Upon arrival on scene, initiate search for trapped or endangered victims, remove
victims to safe area, and request or provide medical treatment appropriate to the injuries/burns
they might have received
Critical Tasks
Res.B2a 6.5.1 Initiate search for endangered, trapped, or injured victims
Res.B2a 6.5.2 Remove endangered, trapped, or injured victims to safe area
Res.B2a 6.5.5 Initiate or request treatment for victims
Performance Measures Metrics
Primary and secondary search is completed within appropriate time give the size of
structure, available resources, and incident conditions
Yes/No
Activity: Contain and Control
Definition: Upon arrival on scene, engage in fire suppression operations to contain, control, and
extinguish fire, initiate search for trapped or endangered victims, remove victims to safe area,
and request or provide appropriate medical treatment.
Target Capabilities List 353
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Critical Tasks
Res.B2a 6.1.1 Deploy primary and back-up fire attack lines
Res.B2a 6.1 Implement fire attack plan
Res.B2a 6.2 Conduct firefighting operations
Res.B2a 6.2.2 Establish large master stream to contain spread of fire
Res.B2a 6.2.5 Establish collapse zones and protect critical infrastructure
Res.B2a 6.5.3 Incorporate additional resources to contain, control, and extinguish fire
Res.B2a 6.3 Establish plan and alternate water supply
Res.B2a 6.3.1 Implement plan and alternate water supply if needed
Res.B2a 6.5.4 Assist in removal of affected individuals from the incident site
Res.B2a 6.5.5 Initiate or request treatment for victims
Res.B2a 6.6 Provide ongoing situation reports
Performance Measures Metric
Tactics employed were commensurate with incident Yes/No
Fire is contained and extinguished within time appropriate for size of structure, available
resources, and incident conditions
Yes/No
Sufficient size and quantity of hand lines are deployed for type and size of structure and
volume of fire present
Yes/No
Time in which sufficient volume of alternate water supply in the event of loss of domestic
water supply is established
Within 30 minutes
from loss of supply
Activity: Conduct Overhaul Operations
Definition: Locate and extinguish hot spots and hidden fire in void spaces
Critical Tasks
Res.B2a 7.2 Locate hot spots and hidden fire in void spaces
Res.B2a 7.3 Preserve incident scene for fire investigators and/or law enforcement
Res.B2a 7.1 Conduct fire overhaul operations
Performance Measures Metric
Percent of hot spots located and extinguished 100%
Percent of heavily involved areas opened up, from which materials are removed from the
structure, and are thoroughly soaked, as appropriate
100%
Activity: Conduct Cause and Origin
Definition: Conduct on-site investigation to determine origin of fire and possible cause
354 Target Capabilities List
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Critical Tasks
Res.B2a 8.2 Collect and preserve non-contaminated evidence
Res.B2a 8.3 Collect and preserve contaminated evidence
Res.B2a 8.4 Investigate fires
Performance Measures Metric
Time in which other agencies are notified of incident in compliance with
applicable laws
Within 30 minutes from size-up
Time in which qualified Fire Investigator arrives on-site Within 60 minutes from
notification
Cause of fire is determined Yes/No
Activity: Demobilize Fire Incident Response Support
Definition: Upon completion of activities, prepare apparatus and personnel to leave incident site
and return to service
Critical Tasks
Res.B2a 9.1 Inventory equipment and apparatus
Res.B2a 9.2 Clean and repair equipment and apparatus prior to return to service
Res.B2a 9.3 Participate in incident debriefing
Performance Measures Metric
Capability is demobilized as specified in demobilization plan Yes/No
Time in which equipment and apparatus are inventoried Within 30 minutes from start of
demobilization
Time in which equipment and apparatus are cleaned and prepared to return to
service
Within than 60 minutes from
start of demobilization
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
Fire Incident Response Support receives and provides situation reports from/to On-
Site Incident Management to communicate immediate protective actions with at-
risk population
Emergency Public Safety and
Security Response
Fire Incident Response Support requests Emergency Public Safety and Security
Response to establish perimeter and crowd control
WMD and Hazardous
Materials Response and
Decontamination
Fire Incident Response Support provides victims to WMD and Hazardous Materials
Response and Decontamination for decontamination
Target Capabilities List 355
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Linked Capability Relationship
Emergency Triage and Pre-
Hospital Treatment
Fire Incident Response Support transfers patients to Emergency Triage and Pre-
Hospital Treatment for medical care and transport.
Fatality Management Fire Incident Response Support provides notification of fatalities to Fatality
Management for tracking and processing.
Counter-Terror Investigation
and Law Enforcement
Fire Incident Response Support requests Counter-Terror Investigation and Law
Enforcement investigate evidence
Mass Care (Sheltering,
Feeding, and Related
Services)
Fire Incident Response Support requests Mass Care and provide assistance and
services to displaced victims.
356 Target Capabilities List
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Direct
Firefighting
Operations and
Support Tactical
Operations
End: Fire resources
returned to service
Activate
Firefighting
Operations and
Support
Size Up (Assess
Site)
Conduct Overhaul
Operations
On-scene ready to
assess site
Contain and
Control
Fire extinguished
Conduct Cause
and Origin
Scene released
to investigators
Demobilize
Firefighting
Operations and
Support
Scene released
by investigators
Start: Indication
of fire
WMD/Hazardous
Materials
Response and
Decontamination
Fatality
Management
Mass Care
(Sheltering,
Feeding,
and Related
Services)
On-Site Incident
Management
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Ready to begin fire
control operations
Capability Activity Process Flow
Fire Incident Response Support
Linked
Capabilities
Relationship
Resources requested
Live victims rescued and sent for on-scene
medical care and remains recovered
Scene declared safe
Area declared safe for normal access
T
r
a
n
s
f
e
r
d
i
s
p
l
a
c
e
d
p
e
r
s
o
n
s
Notify of
potential evidence
Notify of remains
Transfer patients
Provide victims/remains
for decontamination
Request perimeter and
traffic/crowd control
Provide sitreps
Resources provided
Unit(s) dispatched
Search Scene and
Rescue
Victims removed
to safe area
Emergency
Public Safety and
Security Response
Emergency
Triage and Pre-
Hospital
Treatment
Counter-Terror
Investigation and
Law Enforcement
Target Capabilities List 357
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Resource Element Description
Resource Elements Components and Description
Type 1 Engine Strike Team Per NIMS. Includes fire engines, staff, and Strike Team Leader.
Type 1 Fire Truck-Aerial Strike
Team
To assist with delivering foam solution for bulk tank fires or provide elevated
streams to assist in controlling moored shipboard fire and assist boarding
efforts
Type 1 Foam Tender To supply foam concentrate for 65-minute application (8,000 gallons assuming
2 120-foot diameter tanks) NFPA 11
Type 1 Fire Boat Strike Team Supplies ship fire-fighting capability and augments water supply to land-based
units
U.S. Coast Guard (USCG)
National Strike Team (NST)
Per NIMS. There are three 40-member NST Teams in the Nation: the Atlantic
Strike Team in Fort Dix, NJ; the Gulf Strike Team in Mobile, AL; and the
Pacific Strike Team in Novato, CA.
Type 1 Mobile Communications
Unit
Per NIMS
Type 1 breathing apparatus
support
Self-contained breathing apparatus (SCBA) filling capability with compressor
Field mobile mechanic Provides repair capacity
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Toxic Chemical Event scenario. Other scenarios
were reviewed to identify required adjustments or additions to the planning factors and national
targets.
The capability must perform in conjunction with hazardous materials (HazMat) operations, public
safety jurisdictions, emergency medical services (EMS), on-scene incident management, search and
rescue, and emergency management functions across all 15 scenarios.
The majority of response assets will be used during the response.
Fixed fire suppression systems are destroyed by explosions.
Several operational response areas are in effect at the same time: port, refinery, and downwind.
Water-based oil release may extend beyond the 96-hour time allotment.
Victims must be rescued within 4 hours and recovered within 4 days.
All fires are extinguished within 4 days.
The response phase is 96 hours.
Local response time is 0–2 hours.
Regional response time is 2–12 hours.
State response time is 12–24 hours.
Federal response time is 24+ hours.
“Zero hour” (incident clock) is the time of incident occurrence.
Domestic water supply is not affected; the water supply is adequate to deliver 50,000 gallons per
minute (GPM) in affected areas.
358 Target Capabilities List
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
Fire suppression operations are conducted separately from EMS, HazMat, search and rescue, and so
forth.
Distribution of resources for fire operations and support should be compliant, at a minimum, with the
requirements of NFPA 1710, 1720, and 1201.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Toxic Industrial Chemical)
Resource
Organization
Estimated
Capacity
Scenario
Requirement Values
Quantity of Resources
Needed
Fire Incident Response Support for a major event would be addressed with an appropriate
combination of existing resources from multiple jurisdictions and levels of government sufficient to
meet risk and threat assessment based needs
Approaches for Large-Scale Events
Strategies listed will accomplish objectives for large-scale events.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number of
Units
Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Fire Incident Response Support for a major event would be addressed with an appropriate combination of
existing resources from multiple jurisdictions and levels of government sufficient to meet risk and threat
assessment based needs
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. White House, Office of the Press
Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S.
Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf
5. NFPA 422: Guide for Aircraft Accident/Incident Response Assessment. National Fire Protection Association.
2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=422.
6. NFPA 471: Recommended Practice for Responding to Hazardous Materials Incidents. National Fire Protection
Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=471.
7. NFPA 1001: Standard for Fire Fighter Professional Qualifications. National Fire Protection Association. 2002.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1001.
8. NFPA 1021: Standard for Fire Officer Professional Qualifications. National Fire Protection Association. 2003.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1021.
Target Capabilities List 359
RESPOND MISSION: FIRE INCIDENT RESPONSE SUPPORT
9. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection
Association. 2003. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561.
10. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1600.
11. NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Career Fire Departments. National Fire Protection
Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1710 .
12. NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Volunteer Fire Departments. National Fire
Protection Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1720.
13. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents, National
Fire Protection Association, 2002 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472.
14. NFPA 1201: Standard for Providing Emergency Services to the Public, National Fire Protection Association,
2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1201.
15. NFPA 1403: Standard on Live Fire Training Evolutions, National Fire Protection Association, 2002 edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1403.
16. NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications
Systems, National Fire Protection Association, 2002 edition.
17. NFPA 1901: Standard for Automotive Fire Apparatus, National Fire Protection Association, 2003 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1901.
360 Target Capabilities List
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Target Capabilities List 361
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
WMD AND HAZARDOUS MATERIALS
RESPONSE AND DECONTAMINATION
Capability Definition
Weapons of Mass Destruction (WMD) and Hazardous Materials Response and Decontamination is the
capability to assess and manage the consequences of a hazardous materials release, either accidental or as
part of a terrorist attack. It includes testing and identifying all likely hazardous substances onsite;
ensuring that responders have protective clothing and equipment; conducting rescue operations to remove
affected victims from the hazardous environment; conducting geographical survey searches of suspected
sources or contamination spreads and establishing isolation perimeters; mitigating the effects of
hazardous materials, decontaminating on-site victims, responders, and equipment; coordinating off-site
decontamination with relevant agencies, and notifying environmental, health, and law enforcement
agencies having jurisdiction for the incident to begin implementation of their standard evidence collection
and investigation procedures.
Outcome
Hazardous materials release is rapidly identified and mitigated; victims exposed to the hazard are rescued,
decontaminated, and treated; the impact of the release is limited; and responders and at-risk populations
are effectively protected.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports Emergency Support Function (ESF) #10: Oil and Hazardous Materials Response.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B2b 1.1
Develop plans, programs, agreements, and requirements for responding to hazardous material
incidents
Res.B2b 1.2 Develop plans, programs, criteria, and protocols for conducting decontamination
Res.B2b 1.3.1
Pre-identify resources (personnel and equipment) to provide rapid initial size- up of hazardous
materials incident
ResB2b 1.4
Assist in developing a communications plan for hazardous materials in emergencies, related to
specific hazards, health guidance, educational materials, etc.
Res.B2b 1.5 Ensure plans are in place for self-presenting contaminated victims off-site (e.g., hospitals)
Preparedness Measures Metrics
WMD/HazMat Response and Decontamination plans are based on a formal assessment
of risks and vulnerabilities.
Yes/No
Risk analysis is completed for potential hazmat vulnerabilities, including fixed facilities Yes/No
362 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
and transportation-related emergencies
Frequency with which Emergency Response Plan is reviewed Every 12 months
Local Emergency Planning Commission is functional Yes/No
Frequency with which pre-planned hazards and targets are reviewed and updated Every 12 months
Plans for pre-identified and equipped hazmat personnel to respond to hazmat incident
and provide initial rapid hazmat incident size-up within 30 minutes from notification (<
2hrs if regional resource) are in place
Yes/No
Hazmat personnel are equipped and trained for weather prediction and hazard pluming Yes/No
Redundant hazmat response teams and equipment are available (or accessible through
mutual aid agreements) to provide resiliency in the event of a large-scale incident
Yes/No
WMD/HazMat plans address substance identification equipment (e.g. bases, vapors,
liquids, solids, biologicals like white powder).
Yes/No
WMD/HazMat plans address personnel needs (e.g. work/rest cycles, medical,
psychological, financial assistance, etc).
Yes/No
WMD/HazMat plans address demobilization (e.g. debrief personnel, repackage
equipment).
Yes/No
Jurisdiction’s hazmat team(s) has current protocol to coordinate with emergency
medical services (EMS) on victim care post-decontamination (identification of
substance, administration of antidotes, etc.)
Yes/No
Jurisdiction’s hazmat team(s) has current protocol to coordinate with law enforcement
for evidence collection and crime scene control
Yes/No
Emergency response and command vehicles and Incident Command Posts are equipped
with Emergency Response Guidebook, NIOSH pocket guidebook, and discipline-related
references relevant to the region
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B2b 2.1.1 Develop and implement training related to detection and reporting of hazardous material
Res.B2b 2.1.2
Provide appropriate hazmat response training to field staff and managers of State/local
programs having involvement in hazmat response
ResB2b 2.2
Develop and implement exercise programs for WMD/hazardous materials response and
decontamination
Preparedness Measures Metric
Percent of police, fire, EMS , first responders (other than those assigned to hazmat
responses) that are trained to hazmat awareness level
100%
Percent of first responders assigned to hazmat operations that are trained to hazmat
operations level (in accordance with 1910.120 (g) or NFPA 472)
100%
Percent of personnel assigned to hazmat technician responsibilities who are trained to
the hazmat technician level (in accordance with 1910.120 (g) or NFPA 472)
100%
Percent of personnel assigned to hazmat specialist responsibilities who are trained to the 100%
Target Capabilities List 363
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
hazmat specialist level (in accordance with 1910.120 (g) or NFPA 472)
Percent of personnel assigned to manage hazmat who are trained to hazmat management
level (in accordance with 1910.120 (g), NFPA 471 and NFPA 472) for detection
equipment, including flammability, toxicity, radiations, chemical warfare agents
(CWAs) and biologicals
100%
Percent of personnel assigned to manage hazmat who are trained to hazmat management
level (in accordance with 1910.120 (g), NFPA 471 and NFPA 472) for substance
identification equipment, for bases and vapors, liquids, solids and biologicals (white
powder)
100%
Hazmat personnel are equipped and trained for weather prediction and hazard pluming Yes/No
Jurisdiction’s hazmat team(s) trains regularly with EMS to ensure proper coordination
of victim care post-decontamination (identification of substance, administration of
antidotes, etc.)
Yes/No
Jurisdiction’s hazmat team(s) trains regularly with law enforcement to ensure proper
coordination for evidence collection and crime scene control
Yes/No
Performance Tasks and Measures/Metrics
Activity: Direct WMD and Hazardous Material Response and Decontamination Tactical
Operations
Definition: In response to notification of WMD/hazmat event or contamination, provide
management and coordination of hazmat response and decontamination operations through
demobilization and/or transition to recovery operations.
Critical Tasks
Res.B2b 3.1
Receive alert/activation order for WMD and Hazardous Materials Response and
Decontamination
Res.B2b 3.2 Establish and implement on-scene management for hazmat material response
Res.B2b 3.2.4
Provide a hazmat technical expertise team for emergency operations for both industry and
public
Res.B2b 3.4.7 Implement a hazmat response (e.g., implement plans, programs, agreements, and requirements)
Res.B2b 3.2.7
Coordinate technical, administrative support, personnel, facilities, communications, and
information
Res.B2b 3.2.6.2
Provide required Personal Protection Equipment to WMD/hazmat responders in coordination
with safety officer
Res.B2b 3.2.5.4 Develop a site safety plan
Res.B2b 3.2.6.1
Observe the scene and review/evaluate hazard and response information as it pertains to the
safety of all persons on the scene and responding
Res.B2b 3.2.6 Coordinate with safety officer to ensure the safety of on-scene WMD/hazmat responders
Res.B2b 3.4.7 Coordinate and support decontamination activities on-site
Res.B2b 3.4.7.4 Coordinate with and provide technical guidance to entities performing off-site decontamination
Res.B2b 3.4.7.5
Coordinate with hospitals to develop plans for managing/decontaminating self-presenting
contaminated victims
364 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Res.B2b 3.2.8 Coordinate resource management of hazmat equipment, supplies, and personnel
Res.B2b 3.4.7.6 Request decontamination technical assistance resources
Res.B2b 3.2.6.3
Coordinate with safety officer to brief hazmat branch/group personnel on-site-specific
occupational safety and health issues involving hazmat/WMD releases
Res.B2b 3.4.7.7 Issue instructions for self-decontamination, where appropriate, expedient and possible
Performance Measures Metric
Number of loss-time injuries (per deployment) of WMD/hazmat
Response and Decontamination personnel during rescue efforts
<1
Time in which tactical plan is developed, based on the incident action
plan (IAP), and for implementation by the State, region, and/or local
WMD/hazmat Response and Decontamination
Within 2 hours from arrival on scene
Activity: Activate WMD and Hazardous Material Response and Decontamination
Definition: In response to activation, mobilize and arrive at the incident scene to begin
operations.
Critical Tasks
Res.B2b 4.1 Initiate WMD/hazmat procedures
Res.B2b 4.2 Assemble personnel and equipment at designated location
Res.B2b 4.3 Transport team (personnel and equipment) to scene
Res.B2b 4.3.1 Conduct initial approach and positioning of responders
Res.B2b 4.3.2 Implement/integrate WMD/hazmat resources into ICS organization
Res.B2b 3.2.5.5 Initiate initial public protective actions (PPA)
Performance Measures Metric
Team is coordinated/incorporated into ICS upon arrival Yes/No
Time in which initial hazmat size-up is completed Within 30 minutes from notification of
incident
Time in which regional assets (e.g., Type I hazmat Team or Type III or
IV Incident Management team) arrive on scene, if requested by IC
Within 2 hours from asset request
Time in which State assets (e.g., Type I hazmat Team or Type II or III
Incident Management team) arrive on scene, if requested by IC
Within 12 hours from asset request
Time in which Federal assets (e.g., Type I hazmat Team or Type I or II
Incident Management team) arrive on scene, if requested by IC
Within 24 hours from asset request
Time in which Radiological Emergency Preparedness Program (REPP)
Response Teams appropriate for the incident size involving a
radiological hazard are deployed
Within 24 hours from asset request
Time in which Radiological Assistance Program (RAP) Teams are
deployed
Within 2 hours from asset request
Target Capabilities List 365
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Activity: Identify the Hazard
Definition: Upon arriving on scene, begin to assess site, sample, identify, and characterize
WMD/hazmat and contamination situation, conduct hazard analysis to determine potential
consequence and risk, develop plans for safety and hazmat/decontamination operations, and set
up hazmat zones.
Critical Tasks
Res.B2b 5.1.1
Notify law enforcement for guidance on collection and management of evidence from potential
crime scenes
Res.B2b 5.1 Initiate hazmat response
Res.B2b 5.2 Survey the incident scene
Res.B2b 5.2.1 Identify hazmat and the extent/scope of the incident
Res.B2b 5.5.3 Analyze weather forecast to conduct hazard zone prediction
Res.B2b 5.2.2 Conduct contamination surveys
Res.B2b 5.2.3 Assess hazmat release situation
Res.B2b 5.2.3.1 Conduct oil and hazmat assessment
Res.B2b 5.5.2
Monitor movement of hazardous releases and formulate predictions on dispersion and
characteristics over time
Res.B2b 5.5 Characterize consequences and risk
Res.B2b 5.3 Identify and establish perimeter and hazmat zones (hot, warm, cold)
Res.B2b 5.4 Conduct ongoing assessments and predictions
Performance Measures Metric
Time in which area is isolated and public access is controlled Within 15 minutes from arrival on scene
Time in which hazardous materials or category involved are
identified
Within 30 minutes from arrival on scene
Activity: Assess Hazard and Evaluate Risk
Definition: Assess the hazards present, evaluate the level of risk to both responders and the
public, and develop and Incident Action Plan (IAP) to address the response problem
Critical Tasks
Res.B2b 5.5.1 Collect, prioritize, and manage data and information from all sources
Res.B2b 5.5.1.1
Develop incident monitoring and sampling strategy based upon a realistic assessment of
operational hazards
Res.B2b 5.5.1.2 Conduct sampling operations
Res.B2b 5.5.1.3
Identify, classify, and verify suspected non-biological WMD/hazmat samples through the use of
at least two (preferably three) different instrument technologies
Res.B2b 5.5.2
Use plume dispersion models and other analytical tools to generate ongoing WMD/hazmat
dispersion assessments
366 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Res.B2b 5.5
Implement risk evaluation process that adequately addresses the risk of various actions to both
responders and the public
Res.B2b 3.2.5.1
Develop and implement an Incident Action Plan (IAP) specific to WMD/hazmat issues based
upon the risk evaluation process
Res.B2b 5.3
Establish and identify visually an isolation perimeter (outer perimeter) to isolate the area and
deny entry
Res.B2b 5.3.1
Establish a hot zone (inner perimeter) to identify high hazard area(s) where responders will
operate
Res.B2b 5.3.2 Establish other hazard control zones, based upon scope and nature of the event
Res.B2b 5.3.3
Make offensive or defensive reconnaissance operations, as necessary, to gather intelligence on
the situation
Res.B2b 5.4 Conduct ongoing assessments and predictions
Performance Measures Metric
Time in which preliminary estimate of number of victims exposed
to toxic/hazardous material and source identification is obtained
Within 2 hours from arrival on scene
Time in which the at-risk population is identified and protective
action recommendations are made
Within 1 hour from arrival on scene
Time in which the WMD/hazmat elements of the overall IAP are
developed
Within 1 hour from arrival on scene
Activity: Conduct Rescue Operations
Definition: Once on-scene and equipped with protective and response equipment, implement
rescue operations.
Critical Tasks
Res.B2b 6.1 Determine the nature and priority of rescue operations and the numbers involved
Res.B2b 6.1.1 Identify personnel and equipment requirements to initiate rescue operations
Res.B2b 6.2 Implement safe and effective tactics to accomplish rescue operation objectives
Res.B2b 6.2.1 Extricate and rescue victims within the hot zone
Res.B2b 6.2.2 Coordinate rescue efforts with law enforcement to ensure safety of rescuers
Res.B2b 6.3 Implement secondary public protective actions (PPAs)
Res.B2b 6.3.1 Identify personnel and equipment requirements to initiate product/agent control operations
Res.B2b 6.3.2 Implement safe and effective tactics to accomplish product/agent control objectives
Res.B2b 6.3.3 Implement safe and effective tactics to support product/agent control objectives
Performance Measures Metric
Time in which contaminated victims are rescued from
contaminated area
Within 2 hours from arrival on scene
Target Capabilities List 367
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Activity: Conduct Mitigation Activities
Definition: Once on scene and equipped with protective and response equipment, implement
operations plan to minimize contamination.
Critical Tasks
Res.B2b 7.1.3 Identify appropriate PPE based on suspected hazardous material
Res.B2b 7.1.1 Coordinate with safety officer to monitor responders for exposure to hazmat
Res.B2b 7.1.2
Coordinate with safety officer to monitor and control the operating time of rescuers assigned to
the hot zone to minimize rescuer exposure
Res.B2b 7.1 Secure the contamination source and affected areas
Res.B2b 7.2 Monitor and track compliance with containment requirements
Performance Measures Metric
Time in which implementation of initial action plan and
objectives is initiated
Within 4 hours from arrival on scene
Time in which hazmat/WMD contamination is contained Within 12 hours from arrival on scene
Activity: Conduct Decontamination and Clean-up /Recovery Operations
Definition: Upon arrival on scene and with the requisite equipment, initiate response operations
to reduce the level of on-scene contamination, minimize the potential for secondary
contamination beyond the incident scene, and ensure an effective transition to clean-up and
recovery operations.
Critical Tasks
Res.B2b 8.1 Identify assets required for decontamination activities
Res.B2b 8.2
Identify the type of contaminants, nature of response operations, and the required type/level of
decontamination operations
Res.B2b 8.4.5
Implement plans, procedures, and protocols to ensure on-site individual gross decontamination
of persons and household pets affected by the incident
Res.B2b 8.4.6
Provide a means to allow medical treatment facilities and shelter managers to readily identify
people who have received gross decontamination
Res.B2b 8.3.1 Establish decontamination sites for victims
Res.B2b 8.4.1 Screen affected persons
Res.B2b 8.4 Implement emergency decontamination operations
Res.B2b 8.4.2
Decontaminate victims exposed to chemical, biological, radiological, nuclear, or explosive
(CBRNE) materials
Res.B2b 8.4.7 Implement technical decontamination operations for injured, contaminated victims
Res.B2b 8.4.7.1 Implement technical decontamination of human remains
Res.B2b 8.4.8
Implement technical decontamination operations in support of WMD/hazmat entry and
response activities
Res.B2b 8.4.9 Implement decontamination operations to address incident-specific scenarios and requirements
368 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Res.B2b 8.4.9.1 Decontaminate pets, if resources are available
Res.B2b 8.5.1 Coordinate livestock decontamination
Res.B2b 9.2.3 Monitor clean areas within the contamination control line
Res.B2b 9.2.2 Monitor the exit points for hazmat contaminate movement outside the isolation zone
Res.B2b 9.2.4
Coordinate with environmental authorities to ensure the appropriate decontamination area
clean-up and disposal of waste materials
Res.B2b 9.2 Decontaminate affected facilities and equipment used for technical decontamination
Res.B2b 9.4.1 Perform clean-up operations
Res.B2b 9.4.2 Implement hazmat disposal plan
Performance Measures Metric
Victims are provided maximum amount of privacy within site and
situational constraints
Yes/No
Percent of victims provided clothing, blankets, and protection from the
elements as needed
100%
Time in which technical decontamination of first responders on-site is
performed (depending on substance)
Within 2 hours from end of work
period
Time in which technical decontamination of off-site victims (e.g., at
hospitals and designated decontamination stations) is performed
(depending on substance)
Within 2 hours from arrival
Time in which technical decontamination of household pets off-site (e.g.,
at designated decontamination stations) is performed (depending on
substance)
Within 2 hours from arrival
Time in which technical decontamination of human remains is performed Within 24 hours from end of work
period
Time in which technical decontamination of facilities and equipment is
performed
Within 24 hours from end of work
period
Activity: Demobilize WMD and Hazmat Response and Decontamination
Definition: Upon completion of response phase transition to recovery operations, inventory
equipment, complete paperwork, pursue rehabilitation, and conduct post-event analysis (e.g.,
lessons learned) in accordance with incident demobilization plan.
Critical Tasks
Res.B2b 10.1.1
Transfer command for emergency response phase to authority having jurisdiction (AHJ) for
post-emergency clean-up and recovery operations
Res.B2b 10.1.2
Work through IC/UC to ensure that incident-specific evidence collection and investigation
protocols are clearly understood and communicated to all responders
Res.B2b 10.1 Inventory WMD/hazmat equipment cache and restore to service
Res.B2b 10.2 Demobilize WMD/hazmat base of operations
Res.B2b 10.3 Arrange transportation for demobilized WMD/hazmat personnel and equipment
Res.B2b 10.4.1 Implement a formal post-incident analysis process (based upon local procedures)
Target Capabilities List 369
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Res.B2b 10.4 Debrief WMD/hazmat capability personnel
Res.B2b 10.4.2 Conduct and incident critique for incident responders
Performance Measures Metric
Time in which equipment cache is re-inventoried and packaged for
transport
Within 12 hours from start of
demobilization process
Time in which base of operations is returned to original conditions Within 12 hours from start of
demobilization process
Percent of WMD/hazmat Response and Decontamination task force
debriefed
100%
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
WMD and Hazmat Response and Decontamination integrates itself into the local Incident
Command/Unified Command system.
Emergency Public
Safety and Security
Response
WMD and Hazmat Response and Decontamination relies upon Emergency Public Safety
and Security Response assistance to secure WMD/hazmat and decontamination sites,
safely divert public from the area, and to provide security support for the WMD/hazmat
and decontamination base of operations.
Fire Incident
Response Support
WMD and Hazmat Response and Decontamination coordinates with Fire Incident
Response Support to decontaminate on-site victims and coordinates with hazmat on
tactics to monitor and minimize release of hazardous materials during firefighting
operations.
Environmental Health WMD and Hazmat Response and Decontamination relies upon Environmental Health to
monitor environmental public safety from decontamination and other hazmat response
operations.
Citizen Evacuation
and Shelter-In-Place
WMD and Hazmat Response and Decontamination relies upon Citizen Evacuation
assistance to help plan for and implement the protective actions recommended by the IC
in consultation with the WMD/hazmat team to both protect and decontaminate evacuees.
Emergency Triage and
Pre-Hospital
Treatment
WMD and Hazmat Response and Decontamination relies upon Emergency Triage and
Pre-Hospital Treatment to transfer care of victims that have been decontaminated from
WMD/hazmat.
Fatality Management WMD and Hazmat Response and Decontamination notifies Fatality Management of
location of decontaminated remains encountered from WMD/hazmat exposure.
Laboratory Testing WMD and Hazmat Response and Decontamination provides Laboratory and Testing with
samples for testing.
370 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Direct WMD/
Hazardous
Materials
Response and
Decontamination
Tactical Operations
End: Hazmat resources
returned to normal
operations
Activate WMD/
Hazardous
Materials
Response and
Decontamination
Start: Indication
of hazmat
incident
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Environmental
Health
Citizen Evacuation
and
Shelter-In-Place
Dispatch unit(s)
Conduct Mitigation
Activities
Conduct Rescue
Operations
Ready to begin
onsite evaluation
On-Site Incident
Management
Environment monitored
Ready to begin
onsite operations
Demobilize WMD/
Hazardous
Materials
Response and
Decontamination
Victims ready for
decontamination
Fatality
Management
Provide perimeter,
force protection, and
traffic/crowd control
Provide PAD
Decontamination
completed
Responders and
equipment ready
for decontamination
Linked
Capabilities
Relationship
Capability Activity Process Flow
WMD/Hazardous Materials Response
and Decontamination Capability
Provide sitreps
Zones established
Issue PAD/PARs
Mitigate contaminant
Conduct medical assessment
Transfer environment and equipment
decontamination to recovery
Provide samples
Receive PAR
Assess and treat victims
Decontaminated
remains transferred
Identify the
Hazard
Assess Hazard
and Evaluate Risk
Conduct
Decontamination
and Clean-Up/
Recovery
Operations
Hazard identified
Coordinate to
decontaminate victims and
monitor/minimize release of
hazardous materials
Emergency
Public Safety and
Security Response
Fire Incident
Response Support
Emergency
Triage and Pre-
Hospital
Treatment
Laboratory
Testing
Target Capabilities List 371
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Resource Element Description
Resource Elements Components and Description
Type III Hazmat Entry Team
Per NIMS
Type II Hazmat Entry Team
Per NIMS
Type I Hazmat Entry Team
(extrication)
Per NIMS, with capabilities for extrication
Type I Hazmat Entry Team
(decontamination)
Per NIMS, with capabilities for decontamination
EPA Radiological Emergency
Response Team (RERT)
The (RERT), based in EPA's Office of Radiation and Indoor Air and regional
offices, responds to emergencies involving releases of radioactive materials by
providing environmental measurement and guidance activities; monitoring,
sampling, and laboratory activities; and providing State and local authorities
with advice on protecting local residents from exposure to harmful radiation
levels.
Federal Radiological Monitoring
and Assessment Center
(FRMAC)
The Department of Energy (DOE) FRMAC coordinates Federal radiological
monitoring and assessment activities with those of State and local agencies.
Hazmat Information/Research
Group/Team
Reference/research function performs the compiling and interpretation of
technical information related to products, agents, containers, excreta and
provides relevant information to the hazmat Branch Director or Group
Supervisor.
Hazmat Medical Group/Team
Part of the logistics section for the provision of medical services for response
personnel
Hazmat Resources Group/Team
The "resources group" technically would be within the planning section and be
termed the resources unit and would reside outside of the hazmat structure.
Resources on the scene would be assigned to the staging area manager.
Hazmat Liaison Officer
Hazmat Specialists
Single resources that will be assigned as needed and defined in
29CFR1910.120
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Toxic Industrial Chemical scenario. Other scenarios
were reviewed to identify required adjustments or additions to the planning factors and national
targets.
This capability applies to a wide range of incidents and emergencies, including those caused by an
improvised nuclear device, aerosol anthrax, a blister agent, a nerve agent, and a radiological dispersal
device. Additional measures and metrics need to be developed for a nuclear incident.
If decontamination is ongoing during the early stages of a catastrophic incident, persons undergoing
decontamination will have logistical, medical, and mental health needs that will need to be addressed
quickly.
372 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Decontamination priorities will be set up using the following priorities, in order of importance: life
safety, incident stabilization, and property conservation.
All fires are extinguished in 4-day response phase.
Water-based oil release may extend beyond the 96-hour limit. Assets will be on scene, but
containment operations may not be able to begin immediately on arrival.
Three operational response areas: port, refinery, and downwind
The response phase is 96 hours.
Local response time: 0–2 hours
Regional response time: 2–12 hours
State response time: 12–24 hours
Federal response time: 24+ hours
“Zero hour” (incident clock) = time incident occurred
Unconstrained need: consider all assets required for response, do not factor response time or asset
availability into planning.
Planning factors are based on scenario and planning assumptions for a level III hazardous materials
(hazmat) incident, where there are 1,000 injuries, 350 deaths, 25,000 sheltered, 10,000 evacuated, and
100,000 self-evacuated. About half of equipment and facilities are damaged (of three refineries). Two
ships sank, the port was damaged near improvised explosive device (IED) sites, and property was
damaged in the downwind area.
A significant number of individuals exposed to a plume cloud or contaminant agent will flee the
scene before first responders arrive. It may prove difficult to determine which of those individuals
require decontamination, and to ensure such individuals present themselves for decontamination.
The United States has approximately 64 nuclear stations supported by the Radiological Emergency
Preparedness Program (REPP). No less than 30 REPP response teams should be able to respond to an
“improvised nuclear device” scenario within 24 hours.
Quantity of resources is achievable through mutual aid.
Each jurisdiction is expected to sponsor and support community emergency response teams (CERTs).
The projected effects of contamination resulting from a catastrophic incident are generally based on
an estimated population density of 2,000 people per square mile, but may increase for major urban
areas.
Large-gathering situations (e.g. National Security special events, sporting events, conventions, etc.)
create higher localized population densities.
Biological agents typically have delayed symptoms. As such there will rarely be an on-site incident
requiring response when a biological agent is released.
Health care facilities are the most likely locations for managing a biological incident.
Secondary contamination will be a major concern. Hospital emergency rooms may close if patients
are admitted without proper decontamination. Other secondary contamination issues include control
of runoff of fluids used in decontamination, and the handling of contaminated clothing and personal
effects. In addition, the secondary contamination of first responders, even those wearing personal
protective equipment, can occur during the removal of patients from a hazardous area, during the
performance of basic life support functions, or when initial responders are unaware that a hazardous
material is involved.
The psychological dimensions of being exposed to a contaminant, and subsequent decontamination
may present social management challenges and concerns. Of greatest concern are the short- and
long-term psychological consequences resulting from actual exposure to chemical, biological, and
radiological substances, and which subsequently produce negative health effects. Short-term stress
symptoms may be a prelude to long-term, debilitating, post-traumatic stress disorder.
Target Capabilities List 373
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Toxic Industrial Chemical)
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of
Resources Needed
Type 1 Hazmat Entry
Team (extrication)
Can conduct:
3 victim extrications
per hour per team
12 victim
extrications over a
4-hour period per
team
1,000 injuries (downwind area)
350 deaths
2 response areas: port and
downwind. Note: cannot respond
in level A in a fire environment
(this excludes refinery response
area).
4-hour rescue phase
Type 1 hazmat Entry Team
(extrication)
Type 1 hazmat Entry
Team
(decontamination)
Can conduct:
10 victims
decontaminated/ per
hour per team (5-
man team)
40 victims
decontaminated per
team in a 4-hour
rescue phase
1,000 injuries (downwind area)
350 deaths
Two response areas: port and
downwind. Note: cannot respond
in level A in a fire environment
(excludes refinery response area).
4-hour rescue phase
Type 1 hazmat Entry Team
(decontamination)
EPA Radiological
Emergency Response
Team (RERT)
Phase I CMRT
Phase II CMRT
4-hour readiness posture (6-10
hour response time)
Up to 500 members, round-the-
clock operations capacity, 24-36
hour response time
Federal Radiological
Monitoring and
Assessment Center
(FRMAC)
2-hour call-up (working hours), 4-
hour call-up (non-working hours)
27 teams in 8 DOE regions
Hazmat
Information/Research
Group/Team
1 team per 12-hour
shift for all response
areas
96-hour response phase (8 shifts)
1 Hazmat
Information/Research
Group/Team
Hazmat Medical
Group/Team
1 team per 12-hour
shift per response
area
96-hour response phase (8 shifts)
2 response areas: port and
downwind
1 Hazmat Medical
Group/Team
Hazmat Resources
Group/Team
1 team per 12-hour
shift per response
area
96-hour response phase (8 shifts)
2 response areas: port and
downwind
1 Hazmat Resources
Group/Team
Hazmat Liaison Officer
1 officer per 12-hour
shift per response
area
96-hour response phase (8 shifts)
2 response areas: port and
downwind
hazmat Liaison Officer
Hazmat Specialists
1 specialist per
response area per
12-hour shift
96-hour response phase (8 shifts)
2 response areas: port and
downwind
Hazmat Specialists
374 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number
per x)
Lead Capability
Activity
supported by
Element
Type I Hazmat
Entry Team
(extrication)
NIMS-Typed
Resource
Organization
20
Per UASI Area,
based on risk
Local (City)
Identify and
Evaluate On Scene
Conduct Rescue
Operations
Type I Hazmat
Entry Team
(extrication)
NIMS-Typed
Resource
Organization
1 Per county Local (County)
Identify and
Evaluate On Scene
Conduct Rescue
Operations
Type I Hazmat
Entry Team
(decontamination)
NIMS-Typed
Resource
Organization
20 Per UASI Area Local (City)
Identify and
Evaluate On Scene
Conduct On-site
Gross
Decontamination
Conduct On-site
Technical
Decontamination
Type I Hazmat
Entry Team
(decontamination)
NIMS-Typed
Resource
Organization
1 Per county Local (County)
Identify and
Evaluate On Scene
Conduct On-site
Gross
Decontamination
Conduct On-site
Technical
Decontamination
EPA Radiological
Emergency
Response Team
(RERP)
Federal Team 1 Nationally Federal (EPA)
Identify and
Evaluate On Scene
Conduct Mitigation
Activities
Federal
Radiological
Monitoring and
Assessment Center
(FRMAC)
Federal
Organization
27 Nationally Federal (DOE)
Identify and
Evaluate On Scene
Conduct Mitigation
Activities
Hazmat
information/
research
group/team
Non-NIMS
Resource
Organization
2 Per UASI Area Local (City)
Direct Tactical
Operations
Hazmat medical
group/team
Non-NIMS
Resource
Organization
2
Per UASI Area
Local (City)
Conduct Rescue
Operations
Hazmat resources
group/team
Non-NIMS
Resource
2
Per UASI Area
Local (City)
Direct Tactical
Operations
Target Capabilities List 375
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number
per x)
Lead Capability
Activity
supported by
Element
Organization
Hazmat liaison
officer
Personnel 2 Per UASI Area Local (City)
Direct Tactical
Operations
Hazmat specialist Personnel 1 Per county Local (County)
Identify and
Evaluate On Scene
Conduct Mitigation
Activities
References
1. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S.
Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
5. Hazardous Materials Emergency Planning Guide. National Response Team. 2001.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
6. NFPA 471: Recommended Practice for Responding to Hazardous Materials Incidents. National Fire Protection
Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=471.
7. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents. National
Fire Protection Association. 2002. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472.
8. NFPA 473: Standard for Competencies for EMS Personnel Responding to Hazardous Materials Incidents.
National Fire Protection Association. 2002.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=473.
9. NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Career Fire Departments, National Fire Protection
Association, 2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1710.
10. NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Volunteer Fire Departments, National Fire
Protection Association, 2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1720.
11. NFPA 1561: Standard on Emergency Services Incident Management System, National Fire Protection
Association, 2005 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561.
12. NFPA 1500: Standard on Fire Department Occupational Safety and Health Programs, National Fire Protection
Association, 2002 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500.
13. Homeland Security Presidential Directive/HSPD–8: National Preparedness.. December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
14. National Oil and Hazardous Substances Pollution Contingency Plan. Environmental Protection Agency. 1994.
http://www.epa.gov/oilspill/pdfs/40cfr300.pdf.
15. 2004 Emergency Response Guidebook: A Guidebook for First Responders during the Initial Phase of a
Dangerous Goods/Hazardous Materials Incident. U.S. Department of Transportation.
http://hazmat.dot.gov/pubs/erg/gydebook.htm.
376 Target Capabilities List
RESPOND MISSION: WMD AND HAZARDOUS MATERIALS RESPONSE AND DECONTAMINATION
16. Superfund Amendments and Reauthorization Act, Title III, The Emergency Planning and Community Right-to-
Know Act. Environmental Protection Agency. 1986.
17. The 2004 Standardized Equipment List. The Interagency Board for Equipment Standardization and
Interoperability. 2004. http://www.iab.gov/downloads/AnnualReport2003.pdf.
18. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
19. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program,
http://mmrs.fema.gov.
18. NFPA 1021: Standard for Fire Officer Professional Qualifications. National Fire Protection Association. 2003.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1021.
19. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection
Association. 2003. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561.
20. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1600.
21. NFPA 1710: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Career Fire Departments. National Fire Protection
Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1710 .
22. NFPA 1720: Standard for the Organization and Deployment of Fire Suppression Operations, Emergency
Medical Operations, and Special Operations to the Public by Volunteer Fire Departments. National Fire
Protection Association. 2004. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1720.
23. NFPA 472: Standard for Professional Competence of Responders to Hazardous Materials Incidents, National
Fire Protection Association, 2002 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=472.
24. NFPA 1201: Standard for Providing Emergency Services to the Public, National Fire Protection Association,
2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1201.
25. NFPA 1403: Standard on Live Fire Training Evolutions, National Fire Protection Association, 2002 edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1403.
26. NFPA 1221: Standard for the Installation, Maintenance, and Use of Emergency Services Communications
Systems, National Fire Protection Association, 2002 edition.
27. NFPA 1901: Standard for Automotive Fire Apparatus, National Fire Protection Association, 2003 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1901
Target Capabilities List 377
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
CITIZEN EVACUATION AND SHELTER-IN-
PLACE
Capability Definition
Citizen evacuation and shelter-in-place is the capability to prepare for, ensure communication of, and
immediately execute the safe and effective sheltering-in-place of an at-risk population (and companion
animals), and/or the organized and managed evacuation of the at-risk population (and companion
animals) to areas of safe refuge in response to a potentially or actually dangerous environment. In
addition, this capability involves the safe reentry of the population where feasible.
Outcome
Affected and at-risk populations (and companion animals to the extent necessary to save human lives) are
safely sheltered-in-place or evacuated to safe refuge areas.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability is supported by the following Emergency Support Functions (ESFs):
ESF #1: Transportation
ESF #5: Emergency Management
ESF #6: Mass Care, Housing, and Human Services
ESF #8: Public Health and Medical Services
ESF #14: Public Safety
ESF #15: External Affairs
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B.3a 1 Develop plans, procedures, and protocols to manage evacuations and sheltering-in-place
Res.B.3a 1.2.1
Develop evacuation procedures for populations and locations at risk (including high density areas,
neighborhoods, high-rise buildings, subways, airports, special events venues, etc.), and
institutions that should begin evacuations early (e.g., hospitals, nursing homes, long-term care
facilities, and correctional facilities
Res.B3a 1.1.1.1
Develop and distribute public education materials on evacuation/shelter-in-place preparation,
plans, and procedures
Res.B3a 1.1.1.2
Participate in citizen preparedness activities to ensure that public information on
evacuation/shelter-in-place preparation and processes is effectively communicated
ResB3a 1.1.1.3
Develop and implement programs to train local citizens on evacuation, reentry and shelter-in-
place processes
378 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Res.B3a 1.1.3
Participate in establishment of public information announcements to be issued as part of
evacuation/shelter-in-place orders
Res.B3a 1.3.1
Develop and implement plans and procedures to identify in advance populations requiring
assistance during evacuation/shelter-in-place
Res.B3a 1.3.1.1 Establish registry of populations requiring assistance during evacuation/sheltering-in-place
Res.B3a 1.3.1.2
Develop and implement procedures to identify and arrange for transportation to accommodate
immobilized individuals or others requiring special assistance during transport
Res.B3a 1.3.2
Develop plans and procedures for identifying during an incident those populations requiring
assistance with evacuation, including identification of type of assistance required
Res.B3a 1.3.3
Establish processes to ensure that immobilized and other individuals require special assistance can
be moved to collection points for evacuation
Res.B3a 1.3.4 Establish processes for identifying and collecting individuals who do not go to collection points
Res.B3a 1.4.1
Pre-identify evacuee collection points and staging/reception areas (for immediate
sheltering/processing)
Res.B3a 1.4.3.1
Pre-arrange contracts and agreements to ensure provision of transportation vehicle and drivers
during an incident
Res.B3a 1.4.4 Identify and arrange for the staging and use of resources from outside the planning area
Res.B3a 1.4.5
Develop plans and procedures to get resources to those who have sheltered in place (long term—3
days or more)
Res.B3a 1.4.6
Develop plans and procedures for coordinating with other agencies to meet basic needs during
evacuation
Res.B3a 1.4.7
Develop agreements with neighboring areas regarding the movement and receipt of evacuees
from the affected area
Res.B3a 1.2.4 Develop plans and procedures for evacuation/shelter-in place of companion animals
Preparedness Measures Metrics
Evacuation and shelter-in-place plans address the development and dissemination of accurate,
timely, accessible information to public, media, support agencies
Yes/No
Informational materials for use in citizen preparedness for evacuation and shelter-in-place have
been developed and coordinated with public education/citizen preparedness programs on
procedures and guidance for radiological and nuclear hazards
Yes/No
Informational materials for use in citizen preparedness for evacuation and shelter-in-place have
been developed and coordinated with public education/citizen preparedness programs on
procedures and guidance for biological and chemical hazards
Yes/No
Informational materials for use in citizen preparedness for evacuation and shelter-in-place have
been developed and coordinated with public education/citizen preparedness programs on
procedures and guidance for explosive hazards
Yes/No
Informational materials for use in citizen preparedness for evacuation and shelter-in-place have
been developed and coordinated with public education/citizen preparedness programs on citizen
responsibilities
Yes/No
Informational materials for use in citizen preparedness for evacuation and shelter-in-place have
been developed and coordinated with public education/citizen preparedness programs on options
and guidance for the handling of companion animals
Yes/No
Planning and informational materials to be released to the public for evacuation or sheltering in Yes/No
Target Capabilities List 379
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
place have been shared with the servicing public safety communication centers and Public
Service Answering Points (PSAPs)
Plans addressing authority and decision-making processes for shelter-in-place and/or evacuations
are in place
Yes/No
Nonprofit organizations/NGOs (e.g. the American Red Cross, Salvation Army, faith-based
organizations) were actively engaged in plan development
Yes/No
Plans addressing authority and procedures to declare and enforce a mandatory evacuation are in
place
Yes/No
Plans are in place for the evacuation of neighborhoods Yes/No
Plans are in place for the evacuation of high-rise buildings Yes/No
Plans are in place for the evacuation of subways Yes/No
Plans are in place for the evacuation of airports Yes/No
Plans are in place for the evacuation of correctional facilities Yes/No
Plans are in place for the evacuation of hospitals/nursing homes/assisted-living/elder care
facilities
Yes/No
Plans are in place for the evacuation of special events venues Yes/No
Plans are in place for the evacuation of other high-risk areas in response to a threat or attack Yes/No
Plans are in place for the evacuation of animal shelters and zoos Yes/No
Processes for identifying populations that may need assistance with evacuation/shelter-in-place,
prior to an incident are in place
Yes/No
Processes for identifying, during an incident, populations that may need assistance with
evacuation/shelter-in-place are in place
Yes/No
Processes for identifying and addressing the different types of assistance needed (e.g., physical
movement, transportation assistance, language translation, etc.) are in place
Yes/No
Populations that may need assistance with evacuation/shelter-in-place have been identified Yes/No
Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all
persons who need evacuation assistance; plans, at a minimum, address assistance for non-
institutionalized populations requiring assistance to be moved (e.g., the elderly, disabled, etc.)
Yes/No
Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all
persons who need evacuation assistance; plans, at a minimum, address assistance for transient
populations (e.g., the homeless; tourists and visitors)
Yes/No
Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all
persons who need evacuation assistance; plans, at a minimum, address assistance for
institutionalized populations (e.g., nursing homes, hospitals, psychiatric institutions, boarding
schools)
Yes/No
Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all
persons who need evacuation assistance; plans, at a minimum, address assistance for populations
out of the home (e.g., students, those in public venues) and the work force during a surprise
incident
Yes/No
Evacuation plan(s) are in place to provide transportation and other evacuation assistance to all
persons who need evacuation assistance; plans, at a minimum, address assistance for companion
animals
Yes/No
Plans for coordinating with law enforcement (e.g. to identify risk to transportation infrastructure
Yes/No
380 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
from potential terrorist attack, identify security and survival vulnerabilities to evacuated
population, identify protective countermeasures) are in place
Plans to coordinate with public safety agencies in evacuating incarcerated populations are in
place
Yes/No
Evacuation plan(s) identifying evacuation routes and traffic flow and control measures are in
place
Yes/No
Evacuation routes are marked
Yes/No
Plans identifying measures to ensure adequate services (e.g., gas, food, water, tow trucks,
medical emergencies, etc.) along the evacuation route(s) are in place
Yes/No
Plans to provide for leadership at evacuation staging points and/or at temporary evacuation
shelters for up to 72 hours are in place
Yes/No
Plans to coordinate with mass care agencies to provide required services at evacuation staging
points and/or at temporary evacuation shelters for at least 72 hours are in place
Yes/No
Arrangements with agencies to be involved in evacuations/sheltering, staffing of shelters,
logistical supply, security, and support of shelters are in place
Yes/No
Plans to coordinate with medical care agencies to provide medical support, supervision, and
symptom surveillance of evacuees during a prolonged evacuation (e.g., monitoring and caring for
people with pre-existing medical conditions or disabilities and those who may become ill during
the evacuation) are in place
Yes/No
Plans to address decontamination of evacuees (e.g., coordination with HazMat) are in place
Yes/No
An information tracking system is in place to support evacuation and shelter-in-place operations
Yes/No
memoranda of understanding (MOU) with jurisdictions to serve as host communities for
evacuees during an incident have been developed
Yes/No
Plans to address re-entry of the general population are in place
Yes/No
Plans to address re-entry support for populations requiring assistance to return are in place
Yes/No
Plans to coordinate with utility companies regarding safety instructions for returning
homeowners are in place
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B3a 2.1
Develop and implement training programs for staff involved in evacuation/shelter-in-place
implementation
Res.B3a 2.2.1
Develop and implement exercises involving evacuation of various types of locations to local
shelters as well as more distant cities
Res.B3a 2.2.2 Assess the training and exercise gaps
Res.B3a 2.2.3
Review existing training and exercise resources available for participation and/or inclusion in
comprehensive training and exercise strategy
Preparedness Measures Metric
Staff of agencies to be involved in evacuations/sheltering, staffing of shelters, logistical
supply, and support of shelters have been trained
Yes/No
Target Capabilities List 381
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Pre-event exercises of the notification and activation of evacuation and shelter-in-place plans
are conducted with citizen participation
Yes/No
Local emergency response agencies/staff including public safety answering points, are
trained on local evacuation/shelter-in-place strategies
Yes/No
Performance Tasks and Measures/Metrics
Activity: Direct Evacuation and/or In-Place Protection Tactical Operations
Definition: In response to a hazardous condition for a locality, direct, manage, and coordinate
evacuation and/or in-place sheltering procedures for both the general population and those
requiring evacuation assistance throughout incident
Critical Tasks
Res.B3a 3.1.2 Identify populations, institutions (e.g., hospitals, nursing homes, correctional facilities) and
locations to be evacuated or sheltered-in-place
Res.B3a 3.1.3
Coordinate with law enforcement to identify risk (e.g., from a potential terrorist attack) to
transportation infrastructure that may be used for evacuation
Res.B3a 3.1.4
Coordinate with law enforcement to anticipate secondary attack, and identify security and
survival vulnerabilities of the evacuated or sheltered population and protective countermeasures
Res.B3a 3.2.1
Identify appropriate decision making authority responsible for deciding a course of action to
address the incident
Res.B3a 3.2 Determine appropriate course of action to address the incident
Res.B3a 3.4.4
Coordinate with serving Public Service Answering Points regarding communication of the
evacuation and/or shelter-in-place decision
Res.B3a 3.3 Re-assess evacuation/shelter-in-place plans and begin implementation
Res.B3a 3.3.2
Re-assess location of evacuation collection points and staging areas identified in plans and adjust
as needed
Res.B3a 3.3.1 Re-assess evacuation traffic management plan and adjust as needed
Res.B3a 3.4.2 Coordinate with mass care, medical, and other services to set up evacuation staging areas
Res.B3a 3.3.1.1 Re-assess emergency evacuation routes and adjust as needed
Res.B3a 3.4.1 Coordinate with transportation agencies to implement evacuation plans
Res.B3a 3.3.4
Coordinate with mass care services to identify location of shelter facilities and other mass care
services for evacuees
Res.B3a 3.3.3
Coordinate with mass care agencies to assess the need for emergency feeding and sheltering
activities
Res.B3a 3.4.5 Coordinate with appropriate agencies regarding caring for companion animals in transit
Res.B3a 3.5.3 Coordinate medical assistance for special need evacuees in transit
Res.B3a 3.5.4 Notify appropriate agencies of anticipated medical assistance required upon arrival at temporary
locations (staging area, shelters, etc)
Res.B3a 3.6 Coordinate with HazMat to conduct decontamination of evacuees, including those with
disabilities and medical needs (including their equipment)
382 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Res.B3a 3.7 Coordinate with environmental health to monitor progress of affected area to determine when re-
entry is deemed appropriate
Performance Measures Metric
Individual(s) with authority to select protective strategy is identified Yes/No
Individual(s) with authority identifies the information needed to make decision(s) Yes/No
Necessary information is gathered Yes/No
Appropriate and available strategies are identified Yes/No
An appropriate strategy is selected and communicated Yes/No
Appropriate protective strategy to meet the potential risk/danger to the various
populations is selected within appropriate timeframe
Yes/No
Citizen protection decision is coordinated with surrounding jurisdictions to support
evacuation routes, and activate reception facilities and shelters
Yes/No
Re-entry planning is conducted during the course of response to the event Yes/No
Activity: Activate Evacuation and/or In-Place Protection
Definition: In response to activation, identify and ensure notification of at-risk populations, and
identify populations requiring assistance in evacuation and/or in-place protection
Critical Tasks
Res.B3a 4.1 Identify and mobilize appropriate personnel
Res.B3a 4.2.1 Issue shelter-in-place order
Res.B3a 4.2.3 Issue evacuation order
Res.B3a 4.2.4
Coordinate with agencies providing emergency public information and warning to ensure
effective communication of evacuation/shelter-in-place order and procedures
Res.B3a 4.4.1
Determine locations of populations who may need assistance with evacuation from affected area
(e.g., using pre-established registry of populations in facilities)
Res.B3a 4.4.2
Implement plan to capture self-reporting by those requiring assistance with evacuation (e.g., via
hot-line)
Res.B3a 4.4.3 Conduct triage upon identification to determine type of assistance required
Res.B3a 4.5 Implement systems for tracking evacuees and those who shelter in place
Res.B3a 4.3
Implement notification protocols for communication to Public Service Answering Points (911
centers)
Performance Measures Metric
Time in which affected population is notified of shelter-in-place order Within 15 minutes from order
to shelter-in-place
The most affected populations for evacuation are notified first (e.g., ring
evacuations)
Yes/No
Percent of population appropriately notified of evacuation procedures, routes,
locations, and sources of evacuation information throughout the incident
100%
Target Capabilities List 383
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Percent of population requiring assistance that has been identified 100%
Activity: Implement Evacuation Orders for General Population
Definition: Assist the self-evacuation of affected population by providing public information and
instructions, traffic control, and support services to evacuees along evacuation routes
Critical Tasks
Res.B3a 5.1 Provide public notification agencies with information to provide instructions for evacuation
Res.B3a 5.2 Activate approved traffic control plan
Res.B3a 5.2.1 Coordinate with appropriate agencies regarding support for traffic control
Res.B3a 5.1.2 Provide information regarding evacuation staging area location
Res.B3a 5.4.3 Implement procedures for allowing voluntary tracking of evacuees who participate voluntarily
Res.B3a 5.3
Monitor evacuation traffic flow/demand and adjust evacuation traffic management plan and
measures as appropriate
Res.B3a 5.4.1 Provide services (e.g., gas, food, water, tow trucks, etc.) along the evacuation route(s)
Res.B3a 5.4.2
Monitor evacuation traffic to identify those no longer able to self-evacuate and requiring
specialized assistance
Performance Measures Metric
Frequency with which public is initially notified of evacuation procedures, routes,
locations, or sources of evacuation information
Every 30 minutes
Frequency with which public is notified of evacuation procedures, routes, locations, or
sources of evacuation information throughout the incident.
Every 2 hours
Time in which the traffic and transportation plan is implemented to enable evacuation
within the incident timeframe
Within 3 hours from
evacuation order
Time in which the evacuation of the affected general population for an event with
advanced warning is completed
Within 72 hours from
the order to evacuate
Activity: Collect and Evacuate Population Requiring Assistance
Definition: Upon identification of individuals requiring assistance and type of assistance
required, collect and move individuals to established evacuation staging/reception area for further
services
Critical Tasks
Res.B3a 6.1 Order transportation services for evacuation
Res.B3a 6.1.1
Coordinate with supporting agencies and pre-arranged providers to obtain appropriate means of
transportation for those requiring transportation assistance (e.g., buses, ambulances, handicap-
assisted vans)
Res.B3a 6.1.2
Implement plans for providing alternative means of transport for immobilized individuals or
those needing other special assistance in transit
Res.B3a 6.2.3
Provide appropriate specialized transportation services for those requiring additional support
during evacuation
384 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Res.B3a 6.2.4 Coordinate provision of medical support services for evacuating special needs populations
Res.B3a 6.3.1 Collect individuals at pre-established collection points and transfer to staging/reception area
Res.B3a 6.3.2 Collect individuals at non-specified locations and transfer to staging/reception area
Performance Measures Metric
Percent of requests for evacuation assistance for those in need that are met in accordance with
established procedures
100%
Procedures for obtaining evacuation assistance are publicized to general public Yes/No
Percent of service organizations following established procedures to provide evacuation
assistance
100%
Sources of surge transportation assistance for evacuations are contacted and provided
information on their role
Yes/No
Sources of assistance to evacuated persons with special needs are contacted and provided
information on their role
Yes/No
Specific arrangements for medical support services for evacuation of those requiring it are
implemented
Yes/No
Transportation assistance is provided for/by hospitals, nursing homes and other institutions that
will need to evacuate or help/evacuate those in their care
Yes/No
Collection points for individuals needing special evacuation assistance are established and
publicized
Yes/No
Activity: Operate Evacuation Staging/Reception Area
Definition: In coordination with mass care, medical, and other service agencies, provide
immediate basic needs and processing of evacuated individuals en route to other destinations
(e.g., to shelters, hospitals, etc.)
Critical Tasks
Res.B3a 7.1 Establish evacuation staging/reception area
Res.B3a 7.1.1
Conduct security sweeps of evacuation staging/reception areas prior to occupancy, if incident is a
terrorist attack or suspected terrorist attack
Res.B3a 7.2.1
Provide, in coordination with mass care, for basic needs support and processing of evacuated
individuals and companion animals in preparation for further movement
Res.B3a 7.2.2
Provide, in coordination with medical care, access to medical services for evacuated individuals
in staging/reception area
Res.B3a 7.2.3
Provide, in coordination with WMD and Hazardous Materials Response capability, for
decontamination of evacuated individuals if necessary (including those with medical needs)
Res.B3a 7.2.4 Coordinate with appropriate agencies to address needs of those requiring assistance
Res.B3a 7.3.1 Provide tracking of people needing evacuation assistance
Res.B3a 7.3.2 Provide voluntary registration/tracking system for general population to support reunification
Performance Measures Metric
Target Capabilities List 385
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Percent of evacuation staging/reception areas in the affected area that are coordinated with
necessary sites and assisting agencies
100%
Public information messages regarding evacuation staging/reception areas are prepared and
disseminated
Yes/No
Percent of evacuees whose basic needs are addressed at the staging area 100%
Activity: Manage Incoming Evacuees
Definition: In coordination with other service agencies, provide short-term and long-term support
to evacuees arriving from affected areas
Critical Tasks
Res.B3a 8.1 Establish reception areas/centers for evacuees in the host jurisdiction
Res.B3a 8.2 Monitor traffic movement of self-evacuees into/through area, and redirect as necessary
Res.B3a 8.3
Coordinate with support agencies to provide short-term needs for evacuees, such as directions,
information, shelter, medical care, and other assistance
Res.B3a 8.4
Plan, in coordination with social service agencies, for long-term support for evacuees (e.g.,
temporary housing, schools, job searches, etc.)
Performance Measures Metric
Percent of evacuation staging/reception areas in the host jurisdiction that are coordinated
with necessary authorities and assisting agencies
100%
Public information messages to publicize evacuation staging/reception areas in the host
jurisdiction are prepared and disseminated
Yes/No
Processing, registration and tracking systems are established with procedures, necessary
forms and materials, and trained staff
Yes/No
Plans are completed and arrangements established to provide necessary care, shelter,
lodging and short term needs of evacuees
Yes/No
Activity: Implement In-Place Protection Procedures
Definition: Upon in-place protection activation, assist at-risk population in sheltering in homes or
designated in-place sheltering locations
Critical Tasks
Res.B3a 9.2 Identify steps to reduce infiltration of hazard(s)
Res.B3a 9.3.1 Ensure access to emergency communications while sheltered-in-place
Res.B3a 9.3.2
Use emergency alerts system and Public Service Answering Points (PSAPs) to advise and update
information of incident
Performance Measures Metric
Percent of affected population immediately notified of initial in-place protection
procedures, using standing emergency instructions
100%
386 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Time in which the affected general population is sheltered in place Within 30 minutes
from notification
Frequency with which follow-on instructions are provided to sheltered-in-place
populations (e.g., hazard mitigation recommendations)
Continuous
Activity: Assist Re-Entry
Definition: Upon notification of the affected area being safe, assist in-shelter population and/or
evacuees in re-entering area
Critical Tasks
Res.B3a 10.1
Adapt and implement reentry plans as officials announce areas within the region to be approved
for reentry
Res.B3a 10.2 Assist in the re-entry of people and pets into evacuated areas when appropriate and safe
Res.B3a 10.3 Provide re-entry information to the public on a timely and on-going basis
Res.B3a 10.4
Coordinate with appropriate agencies to provide instructions and information if re-entry is not
feasible
Performance Measures Metric
Re-entry planning is conducted during the course of response to the event Yes/No
Percent of affected evacuees notified of temporary re-entry procedures 100%
Percent of affected evacuees instructed of permanent re-entry procedures, including safety
precautions
100%
Activity: Demobilize Citizen Evacuation and Shelter-In-Place Operations
Definition: Upon completion of assigned duties, decontaminate equipment, supplies, and
personnel if appropriate, and demobilize
Critical Tasks
Res.B3a 11.1
Arrange for decontamination of equipment, supplies, and personnel used in evacuation/in-place
protection
Res.B3a 11.2 Participate in incident debriefing on evacuation/in-place protection implementation
Res.B3a 11.3 Release personnel supporting evacuation/in-place protection
Performance Measures Metric
Percent of Citizen Evacuation and/or Shelter-In-Place personnel debriefed 100%
Lessons learned are identified Yes/No
Lessons learned are addressed Yes/No
Target Capabilities List 387
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Linked Capabilities
Linked Capability Relationship
Community
Preparedness and
Participation
Citizen Evacuation and Shelter-In-Place coordinates with Community Preparedness and
Participation to ensure that citizens are educated on how to prepare for and conduct
evacuation and sheltering-in-place.
On-Site Incident
Management
Citizen Evacuation and Shelter-In-Place management integrates itself into the local
Incident Command/Unified Command system to coordinate protective action decisions.
WMD and Hazardous
Materials Response and
Decontamination
Citizen Evacuation and Shelter-In-Place coordinates with WMD and Hazardous
Materials Response and Decontamination to ensure evacuation and/or in-place
protection personnel and equipment are appropriately decontaminated. WMD and
Hazardous Materials Response and Decontamination also supports decontamination of
evacuees when necessary.
Emergency Operations
Center Management
Citizen Evacuation and Shelter-In-Place management works through the EOC
Management to notify affected and general population of protective action decisions.
Emergency Public Safety
and Security Response
Citizen Evacuation and Shelter-In-Place relies upon Emergency Public Safety and
Security Response assistance to safely maneuver affected populations through
evacuation routes and provide assistance for traffic and crowd control. Emergency
Public Safety and Security Response also handles the evacuation of the incarcerated
populations at risk.
Emergency Triage and
Pre-Hospital Treatment
Citizen Evacuation and Shelter-In-Place coordinates with Emergency Triage and Pre-
Hospital Treatment to obtain immediate medical treatment for evacuees in need, either
en-route or at evacuee staging area.
Medical Surge Citizen Evacuation and Shelter-In-Place coordinates with Medical Surge to obtain
immediate medical treatment for evacuees in need, either en-route or at evacuee staging
area.
Mass Care (Sheltering,
Feeding, and Related
Services)
Citizen Evacuation and Shelter-In-Place coordinates with Mass Care to provide basic
services to evacuees and assists in transferring evacuees to Mass Care shelters for at-risk
populations.
Emergency Public
Information and Warning
Citizen Evacuation and Shelter-In-Place coordinates with emergency public information
and warning to provide accurate, timely and continuous information to the affected and
general populations regarding evacuation and/or shelter-in-place orders and procedures,
and subsequent reentry information and instructions.
Environmental Health Citizen Evacuation and Shelter-In-Place relies on Environmental Health for assessment
of hazards to determine whether areas are safe for re-entry.
388 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Direct Citizen
Evacuation and
Shelter-in-Place
Tactical
Operations
End: No need remains for more
protective action decisions
Start: Indication
of need for
protective action
On-Site Incident
Management
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Mass Care
(Sheltering,
Feeding, and
Related
Services)
Emergency
Operations Center
Management
Emergency Public
Information and
Warning
Inform of
protective decisions
Coordination shelters for
evacuated citizens
Request support
Environmental
Health
Assist Re-entry
Demobilize Citizen
Evacuation and
Shelter-in-Place
Ready to implement evacuation and/or
shelter-in-place
Implement
Evacuation Orders
for General
Population
Implement In-
Place Protection
Procedures
Environmental conditions deemed safe
Testing conducted
WMD/Hazardous
Materials
Response and
Decontamination
Area decontaminated
as appropriate
Protective action decision made
Population
self-evacuated
Population kept as
safe as possible
under
circumstances
Citizens allowed to
return to their homes
Perimeters established
Decontaminate area
Capability Activity Process Flow
Citizen Evacuation and Shelter-in-
Place Capability
Linked
Capabilities
Relationship
Coordinate public information
Coordinate evacuation of
incarcerated
Evacuees decontaminated
Emergency Triage
and
Pre-Hospital
Treatment
Transfer injured
Basic needs at staging area met
Collect and
Evacuate
Population
Requiring
Assistance
Is evacuation
short-term?
Operate
Evacuation
Staging/Reception
Areas
Manage Incoming
Evacuees
No
Yes
Population
evacuated
Support
provided in
new
location
Population requiring
assistance identified
Evacuees
processed/
basic
needs met
Community
Preparedness
and
Participation
Citizens educated
on evacuation and
shelter-in-place procedures
Activate Citizen
Evacuation and
Shelter-in-Place
Medical Surge
Emergency
Public
Safety and
Security
Response
Target Capabilities List 389
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Resource Element Description
Resource Elements Components and Description
Emergency Alert System (EAS) Established by the FCC in 1994 to provide the President with access to
thousands of broadcast stations, cable systems and participating satellite
programmers to transmit a message to the public.
Public Warning Systems Other notification systems including sirens, call-out systems, television
captioning system, and any system capable of reaching 100% of the at-risk
population, including a redundant capability
Traffic control packages Teams of law enforcement personnel and traffic control equipment (barriers,
cones, directional signals)
Transportation vehicles Buses and other mass transit vehicles, including drivers, able to provide
transportation to evacuees, including for re-entry
Security and law enforcement
officers
To provide traffic control, using legal authority alter traffic flow and use of
highways
Non-law enforcement traffic
controllers
Other persons, (non-law enforcement types, such as Volunteers in Police
Service) assigned traffic control duties at other intersections directing traffic
flow
Small Animal Transport Teams Per NIMS
DOT Evacuation Coordination
Team (Type I, II, and III)
Per NIMS, facilitates the rapid, efficient, and safe evacuation of threatened
populations
DOT Evacuation Liaison Team Per NIMS, provides support in State and local emergency response efforts by
compiling, analyzing, and disseminating traffic-related information that can be
used to facilitate the rapid, efficient, and safe evacuation and reentry of
threatened populations.
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability factors were
developed from an in-depth analysis of the Chlorine Tank Explosion scenario. Other scenarios were
reviewed to identify required adjustments or additions to the planning factors and national targets.
This capability applies to a wide range of incidents and emergencies, including accidental or
deliberate disease outbreaks, natural disasters, and nuclear and conventional events.
Large-scale evacuations, organized or self-directed, may occur. More people are initially likely to
flee and seek shelter for attacks involving chemical, biological, radiological or nuclear agents than for
natural events.
Evacuation times and the frequency with which the public is notified of evacuation procedures are
both incident driven. The times may change depending on whether it is an immediate or long term
evacuation.
The time it takes to complete an evacuation is also incident driven depending on the type of hazard.
Transportation and traffic routes will be severely and negatively affected by the evacuation
Many evacuees will require provision of transportation.
The health-related implications of an incident may aggravate or impair attempts to implement a
coordinated evacuation management strategy.
390 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Public anxiety and stress will result from evacuations, requiring mental health services, appropriate
risk communications, and public education/instruction.
Local jurisdictional resources will be quickly overwhelmed and will require mutual aid from other
jurisdictions and support from Federal, State, and regional agencies.
Through memoranda of understanding (MOUs) incorporated into planning, adjacent communities
will be prepared to handle significant numbers of evacuees from affected areas. These host
communities also will identify resources, personnel, and equipment to shelter and support evacuees.
Pre-event identification of shelter sites has been planned for by emergency management agencies and
MOUs are in place for use of the facilities.
Although shelters will require a minimum time for setup and activation, populations will require
services immediately on evacuation, notably those for special needs populations and containment.
For shelter-in-place, evacuation, sheltering, and reentry planning, each jurisdiction has unique hazards
and unique resources. Capabilities for at-risk populations are based on jurisdictional hazard
vulnerability analysis. Plans (including emergency operations plans), procedures, mutual aid
agreement, and so forth must be in place to support effective evacuation and sheltering, dependent on
the hazard/risk analysis and the resources available for the at-risk population. The measurement for
this capability is: Can the jurisdiction evacuate and/or shelter the at-risk population and, if they
cannot, what actions will procure/garner adequate resources for them?
Scenario-Specific
A large amount of the chemical chlorine has been released into the atmosphere (a plume) and is
disbursed in a widely populated area. Decontamination of evacuees will require additional resources
and triage areas before citizens can be sheltered; therefore, fire/emergency medical services (EMS),
hospitals, and HazMat teams will be required to decontaminate evacuees.
Local and regional resources will be quickly overwhelmed and require State and Federal assistance.
Long-term sheltering and decontamination will be required.
City/jurisdiction is a large urban area with a network of streets and highways. Within the affected
area, the evacuation and reentry routes and zones encompass 25 major intersections in a 25-mile
evacuation radius.
Approximately 25 percent of the evacuated population will require shelter. The remaining
populations will self-evacuate and arrange own shelter.
Approximately one percent of the 25 percent of the evacuated populations are special need
populations and will require medical shelters and appropriate transportation.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Chlorine Tank Explosion)
Resource
Organization
Estimated Capacity Scenario
Requirement Values
Quantity of Resources
Needed
Emergency Alert
Systems
1 system that will alert
100% of the at-risk
population
Warning and notification
of 700,000 people
1 system nationally
Public warning system
1 system that will alert
100% of the at-risk
population
Warning and notification
of 700,000 people
1 system within the
jurisdiction to reach the at-risk
population with redundant
capability
Target Capabilities List 391
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Resource
Organization
Estimated Capacity Scenario
Requirement Values
Quantity of Resources
Needed
Traffic control packages
Provision of traffic
control equipment and
towing of
vehicles/obstacles
70,000 people will self-
evacuate and reenter the
affected areas when safe,
leading to traffic
congestion and delaying
response assets
Within high-risk evacuation
area (distributed to
predetermined locations):
1,000 barriers
1,000 traffic cones
50 directional signs
Transportation vehicles
Each bus can hold 50
people and can be
recycled and used
multiple times during an
evacuation
Federal resources are not
timely for immediate
evacuation, but can be
used for reentry
630,000 people will
require assistance with
evacuation through buses;
630,000 people will need
reentry assistance
Local and regional
(combined): 100 buses,
including school and mass
transit buses and other
vehicles of mass
transportation
State and unaffected areas:
100 buses
Federal: 100 buses or other
mass transit vehicles
Security and law
enforcement officers
1 law enforcement
officer at major
intersections
The event occurs in a large
urban area with extensive
network of streets and
traffic flows.
25 major intersections in
the evacuation route
Local: 25 law enforcement
officers
Regional/State: 150–175
officers working outside the
affected area restricting access
and diverting highway traffic
Regional/State: resources for
reentry would be needed to
augment local resources: 300
persons
Non-law enforcement
traffic controllers
Local: 200 non-law
enforcement persons to direct
traffic along the
evacuation/reentry routes
Small Animal Transport
Teams
60% of households have
companion animals
(CAs) and most people
will not evacuate if they
believe there is no
facility to support them
and their animals
(general population
shelters generally do not
accept CAs)
Average: 2 pets/household
10 Small Animal Transport
Teams (per NIMS typing)
392 Target Capabilities List
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
Emergency
Alert System
(EAS)
Federal
Resource
1 Nationally Federal
Activate Evacuation
and Shelter-In-Place
Re-Entry
Public warning
system
Non-NIMS
Resource
Organization
1 Per State State
Activate Evacuation
and Shelter-In-Place
Re-Entry
Public Warning
System
Non-NIMS
Resource
Organization
1 Per jurisdiction Local
Activate Evacuation
and Shelter-In-Place
Re-Entry
Traffic control
package
Resource
Organization
1
In accordance with
Evacuation Plans
Local
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
Transportation
Vehicles
Equipment 17
Per 100,000
population
Local
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
Transportation
Vehicles
Equipment 17
Per 100,000
population
State
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
Transportation
vehicles
Equipment 17
Per 100,000
population
Federal
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
Law
Enforcement
and Security
officers
Personnel
As required per
incident
State
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
Small Animal
Transport
Teams
NIMS-typed
resource
organization
As required per
incident
Federal
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
DOT
Evacuation
Coordination
Team (Type I,
II, and III)
NIMS-typed
resource
organization
As required per
incident
Federal
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
Target Capabilities List 393
RESPOND MISSION: CITIZEN EVACUATION AND SHELTER-IN-PLACE
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability Activity
supported by
Element
DOT
Evacuation
Liaison Team
NIMS-typed
resource
organization
As required per
incident
Federal
Implement
Evacuation Orders for
General Population
Implement In-Place
Protection Procedures
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. The National Strategy for the Physical Protection of Critical Infrastructures and Key Assets. Office of
Homeland Security. February 2003. http://www.dhs.gov/interweb/assetlibrary/Physical_Strategy.pdf.
5. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S.
Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
7. Guide for All-Hazard Emergency Operations Planning: State and Local Guide 101. Federal Emergency
Management Agency. September 1996. http://www.fema.gov/pdf/rrr/slg101.pdf.
8. Emergency Management Accreditation Program Standards. September 2003.
http://www.emaponline.org/index.cfm.
9. National Strategy for Homeland Security. Office of Homeland Security. July 2002.
http://www.dhs.gov/interweb/assetlibrary/nat_strat_hls.pdf.
10. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa
11. NFPA 5000, Building Construction and Safety Code™, National Fire Protection Association, 2006 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=5000
12. NFPA 130, Standard for Fixed Guideway Transit and Passenger Rail Systems, National Fire Protection
Association, 2003 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=130
13. NFPA 101: Life Safety Code. National Fire Protection Association. 2003.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=101
14. NFPA 1221: Standard for the Installation, Maintenance, and Use of Public Fire Service Communications
Systems. National Fire Protection Association. 2002 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1221.
15. NFPA 1561: Standard on Emergency Services Incident Management System. National Fire Protection
Association. 2005. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1561
16. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program,
http://mmrs.fema.gov.
17. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an
Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook
394 Target Capabilities List
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Target Capabilities List 395
RESPOND MISSION: ISOLATION AND QUARANTINE
ISOLATION AND QUARANTINE
Capability Definition
Isolation and Quarantine is the capability to protect the health of the population through the use of
isolation and/or quarantine measures in order to contain the spread of disease. Isolation of ill individuals
may occur in homes, hospitals, designated health care facilities, or alternate facilities. Quarantine refers to
the separation and restriction of movement of persons who, while not yet ill, have been exposed to an
infectious agent and may become infectious. Successful implementation will require that sufficient legal,
logistical, and informational support exists to maintain these measures. Most experts feel that isolation
and quarantine will not stop the outbreak and that if used, the focus will be on cases that might introduce
the disease into the State or other geographic area.
Outcome
Individuals who are ill, exposed, or likely to be exposed are separated, movement is restricted, basic
necessities of life are available, and their health is monitored in order to limit the spread of a newly
introduced contagious disease (e.g., pandemic influenza). Legal authority for those measures is clearly
defined and communicated to all responding agencies and the public. Logistical support is provided to
maintain measures until danger of contagion has elapsed.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the Emergency Support Function (ESF) #8: Public Health and Medical Services.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B3b 1.1 Develop plans, policies, and procedures for implementing isolation and quarantine
Res.B3b 1.1.1 Introduce legislation authorizing isolation and quarantine (including quarantine of groups)
ResB3b 1.1.2
Develop plans for coordinating quarantine activation and enforcement with public safety and
law enforcement
Res.B3b 1.3.1
Stand up isolation and quarantine units (including defining procedures/protocols) in all 83 of
the target cities and as needed in foreign countries
ResB3b 1.2
Develop plans, procedures, and protocols to monitor long-term health effects across
community interests
ResB3b 1.3 Establish systems, programs, and resources for implementing isolation and quarantine
Res.C1a 6.2.3
Improve monitoring of adverse treatment reactions among those people who have received
medical countermeasures and have been isolated or quarantined
RecA2b 1.1
Create and implement policies to deal with the financial impact to individuals who are placed
in isolation or quarantine and to the public health system
396 Target Capabilities List
RESPOND MISSION: ISOLATION AND QUARANTINE
Preparedness Measures Metrics
Legislation has been enacted authorizing appropriate isolation and quarantine measures
(including quarantine of groups)
Yes/No
Plan for conducting isolation and quarantine operations is in place Yes/No
Plan specifies the criteria for activating Isolation and Quarantine procedures Yes/No
Plan addresses coordinating with Mass Care (e.g. for provision of water, food, bulk
supplies to isolated and quarantined individuals).
Yes/No
Plan addresses cultural characteristics of populations to be isolated and/or quarantined
(e.g. religious needs, language barriers).
Yes/No
Plan addresses the financial impact to individuals who are placed in isolation and
quarantine.
Yes/No
Plan addresses coordinating quarantine activation and enforcement with public safety and
law enforcement
Yes/No
Plan addresses tracking details of individuals placed in Isolation or Quarantine using
Personal Health Identification Number (PHIN
Yes/No
Plan addresses implementation of infection control precautions Yes/No
Legal authority to isolate and/or quarantine individuals, groups, facilities, animals, and
food products is defined
Yes/No
Plan addresses how to ensure adequate stockpiles of appropriate personal protective
equipment (PPE)
Yes/No
Plan addresses having or having access to information systems to support tracking
adherence to isolation and quarantine measures that comply with the PHIN functional
requirements for Countermeasure and Response Administration
Yes/No
System is in place for monitoring people who have been isolated or quarantined (e.g., for
evidence of infection, progression of illness)
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
ResB3b 2.1 Develop and implement training for isolation and quarantine
ResB3b 2.2 Develop and implement exercises for isolation and quarantine
Preparedness Measures Metrics
Staff have been trained in isolation and quarantine operations and plans Yes/No
Exercises to test plans for implementing isolation and quarantine have been conducted Yes/No
Target Capabilities List 397
RESPOND MISSION: ISOLATION AND QUARANTINE
Performance Tasks and Measures/Metrics
Activity: Direct Isolation and Quarantine Tactical Operations
Definition: In response to a need for isolation and quarantine orders, direct, manage, and
coordinate isolation and quarantine operations
Critical Tasks
Res.B3b 3.1.1 Identify decision-makers to oversee isolation and quarantine conduct
Res.B3b 3.1.3 Develop disease-specific isolation and quarantine plan
Res.B3b 3.1.2 Identify applicable isolation and quarantine laws, policies, and implementation procedures
Res.B3b 3.2 Provide isolation and quarantine information to emergency public information for release
Res.B3b 3.2.4
Coordinate with public information agencies to disseminate health and safety information to the
public
Res.B3b 3.2.5 Coordinate public information releases about those people who have been isolated or quarantined
Res.B3b 3.2.1
Coordinate with public information agencies regarding notification of quarantine or isolation to
ensure compliance of the general public (e.g., doors are locked and may be opened only by
public health official or designated persons)
Res.B3b 3.2.3 Promote the public acceptance of isolation and quarantine as necessary control measures
Res.B3b 3.2.2
Coordinate with public information agencies to provide timely dissemination of health and safety
information to the public regarding risk and protective actions
Res.B3b 3.3.1 Coordinate with Law Enforcement to monitor and enforce restrictions, if necessary
Res.B3b 3.1.4 Ensure appropriate judicial review of isolation and quarantine orders
Res.B3b 3.3.2
Coordinate with public health and medical services to ensure appropriate care for those
individuals who have been isolated or quarantined
Res.B3b 3.3.2.1 Ensure critical medical care for any ill individuals (related to the epidemic or not)
Res.B3b 3.3.2.2
Coordinate comprehensive stress management strategies, programs, and crisis response teams for
isolation and quarantine operations
Res.B3b 3.3.5 Assist public health in disease control, quarantine, containment, and eradication
Res.B3b 3.3.3
Coordinate with Mass Care to provide water, food, and bulk supplies to isolated and quarantined
individuals
Res.B3b 3.3.3.1
Ensure that adequate food, water, and medication are provided to quarantined or isolated persons
(through public health officials; oversight by case manager)
(Note: Not only public health officials, all appropriate sectors are involved in this)
Res.B3b 3.3.4
Coordinate with Public Works for retrieval and disposal of contaminated articles from homes or
other locations where individuals are isolated or quarantined
Res.B3b 3.3.6
Coordinate with the agriculture community regarding potential animal influence on need for
isolation/quarantine
Res.B3b 3.4.2 Report health status data on isolated and quarantined populations
Res.B3b 6.3.1.1
Monitor for fever or evidence of infection (quarantine) or progression of illness requiring
hospitalization (isolation) by epidemic agent
Res.B3b 6.3.1.2 Identify and respond to adverse events (epidemic treatment or prophylaxis)
398 Target Capabilities List
RESPOND MISSION: ISOLATION AND QUARANTINE
Pro.B1e 3.2.1
Maintain communication channels (Centers for Disease Control (CDC) Coordinating Office for
LRN)
Res.B3b 6.6
Have or have access to information systems to support monitoring adherence to isolation and
quarantine measures that comply with the PHIN functional requirements for Countermeasure and
Response Administration.
Performance Measures Metric
Public health official with legal authority to issue isolation and quarantine
orders is identified
Yes/No
Time in which isolation and quarantine order is issued Within 4 hours from notification of
need to implement isolation and
quarantine
Time in which educational information is provided for release Within 1 hour from issuance of order
Time in which medical resource personnel are notified and assembled at
isolation and quarantine areas
Within 12 hours from need to
implement isolation and quarantine
Time in which communications with public health officials and CDC are
established
Within 30 minutes from need to
implement isolation and quarantine
Activity: Activate Isolation and Quarantine
Definition: Initiate plan and mobilize healthcare and security personnel and resources to contain a
communicable disease outbreak
Critical Tasks
Res.B3b 4.1 Identify community sites suitable for quarantine
Res.B3b 4.3 Issue isolation and quarantine order or an agreement for voluntary isolation
Res.B3b 4.3.1 Issue an order that closes public venues based on the recommendation of an epidemiologist
Res.B3b 4.4 Disseminate guidelines for isolation and quarantine restrictions
Res.B3b 4.4.1 Disseminate protocols for isolation and care giver treatment of isolated individuals
Res.B3b 4.2 Stand up isolation and quarantine units
Res.B3b 4.4.2 Ensure mental health care and access to religious practices
Res.B3b 4.4.3 Ensure access to communication with family and friends to reduce unnecessary stress
Res.B3b 4.4.4
Provide PPE and culturally and linguistically appropriate instruction on its use for household
members and caregivers
Performance Measures Metric
Time in which isolation and quarantine units are stood up Within 24 hours from notification of
need to implement isolation and
quarantine
Time in which personnel are deployed to traveler screening locations Within 2 hours from identifying
screening locations
Time in which restriction guidelines and treatment protocols are
disseminated to medical care providers
Within 2 hours from order being
issued
Target Capabilities List 399
RESPOND MISSION: ISOLATION AND QUARANTINE
Activity: Implement Travel Restrictions
Definition: Screen travelers from outbreak or pandemic areas and implement travel restrictions
consistent with disease specific precautions
Critical Tasks
Res.B3b 5.1 Establish traveler screening locations
Res.B3b 5.2.1 Screen inbound/outbound travelers from outbreak or pandemic areas for illness or exposure
Res.B3b 5.2.2 Prevent boarding of potentially infected passengers in foreign countries with endemic disease
Res.B3b 5.2.3 Educate international travelers on health risks and symptoms
Res.B3b 5.2.4 Screen and educate all staff of outbound flights to exclude potentially infected passengers
Res.B3b 5.2.5 Isolate and quarantine potentially infected travelers
Performance Measures Metric
Time in which screening locations are established Within 30 minutes from
screener arrival onsite
Percent of inbound/outbound travelers screened while isolation and quarantine
order is in effect
100%
Percent of screened positive persons isolated and quarantined 100%
Activity: Implement Voluntary Isolation and Quarantine
Definition: Within an identified geographic area, implement separation and restriction of
movement of potentially exposed asymptomatic individuals and isolate symptomatic individuals
on a voluntary basis
Critical Tasks
Res.B3b 6.1
Acquire identification information of affected individuals under voluntary isolation and
quarantine
Res.B3b 6.2
Provide medical and supportive care guidance to community under voluntary isolation and
quarantine
Res.B3b 6.5
Provide infection control education materials to community under voluntary isolation and
quarantine and hospitals
Res.B3b 6.3.1
Monitor health status of voluntarily isolated and quarantined individuals and caregivers in the
community and hospitals
Res.B3b 6.4
Arrange for transportation to designated healthcare facilities of critically ill individuals under
voluntary isolation and quarantine
Res.B3b 6.3.2
Monitor compliance in whatever way is necessary (e.g., direct communication with the person
under order via land line)
Performance Measures Metric
Percent of caregivers for isolated patients who become infected while under voluntary
isolation and quarantine
0%
400 Target Capabilities List
RESPOND MISSION: ISOLATION AND QUARANTINE
Frequency with which updates are provided to tracking system from voluntarily isolated or
quarantined individuals while under voluntary isolation and quarantine
Every 24 hours
Percent of persons receiving care and prevention instruction while under voluntary isolation
and quarantine
100%
Percent of caregivers using infection control precautions while under voluntary isolation and
quarantine
100%
Activity: Implement Mandatory Isolation and Quarantine
Definition: Ensure compliance with orders for separation and restriction of movement of
potentially exposed asymptomatic individuals and isolation of symptomatic individuals within an
identified geographic area
Critical Tasks
Res.B3b 7.1
Acquire identification information of affected individuals under mandatory isolation and
quarantine
Res.B3b 7.2
Provide medical and supportive care guidance to affected population under mandatory isolation
and quarantine
Res.B3b 7.3 Monitor compliance with infection control and mandatory restrictions of movement
Res.B3b 7.4
Monitor health status of individuals and caregivers under mandatory isolation and quarantine and
hospital staff
Res.B3b 7.5
Arrange for transportation to designated healthcare facilities of critically ill individuals under
mandatory isolation and quarantine
Performance Measures Metric
Percent of caregivers for isolated patients who become infected while under mandatory
isolation and quarantine
0%
Frequency with which updates to tracking system are provided from isolated or
quarantined individuals while under mandatory isolation and quarantine
Every 24 hours
Percent of persons receiving care and prevention instruction while under mandatory
isolation and quarantine
100%
Percent of caregivers using infection control precautions while under mandatory isolation
and quarantine
100%
Percent of isolated or quarantined persons receiving daily monitoring and compliance
contact
100%
Activity: Demobilize Isolation and Quarantine
Definition: Upon isolation and quarantine order being lifted, decontaminate equipment, supplies,
and personnel if appropriate and demobilize
Critical Tasks
Res.B3b 8.2 Participate in incident debriefing on isolation and quarantine implementation
Res.B3b 8.3 Release personnel supporting isolation and quarantine operations
Target Capabilities List 401
RESPOND MISSION: ISOLATION AND QUARANTINE
Res.B3b 8.4 Reconstitute resources and facilities supporting isolation and quarantine operations
Performance Measures Metric
Time in which isolation and quarantine facilities are restored to pre-incident
operations
Within 7 days from isolation and
quarantine order being lifted
Isolation and quarantine personnel are debriefed Yes/No
Linked Capabilities
Linked Capability Relationship
Emergency Operations
Center Management
Emergency Operations Center Management provides resources to Isolation and
Quarantine. Emergency Operations Center Management and Isolation and Quarantine
provide each other with situation reports.
Emergency Public Safety
and Security Response
Emergency Public Safety and Security Response provides perimeter and crowd control
to Isolation and Quarantine.
Mass Care (Sheltering,
Feeding, and Related
Services)
Mass Care provides bulk distribution items to Isolation and Quarantine.
Medical Surge Medical Surge treats symptomatic patients in Isolation and Quarantine.
Emergency Public
Information and Warning
Isolation and Quarantine provides care guidance to public and protective order
information to Emergency Public Information and Warning for release to the public.
Emergency Triage and
Pre-Hospital Treatment
Emergency Triage and Pre-Hospital Treatment transfers symptomatic persons to
Isolation and Quarantine.
Mass Prophylaxis Mass Prophylaxis transfers symptomatic persons to Isolation and Quarantine.
Epidemiological
Surveillance and
Investigation
Epidemiological Surveillance and Investigation participates in order
modification/evaluation with Isolation and Quarantine.
Fatality Management Isolation and Quarantine transfers deceased persons to Fatality Management.
WMD and Hazardous
Materials Response and
Decontamination
WMD and Hazardous Materials Response and Decontamination provides
decontamination to Isolation and Quarantine.
402 Target Capabilities List
RESPOND MISSION: ISOLATION AND QUARANTINE
Direct Isolation
and Quarantine
Tactical
Operations
End: Return to normal
operations
Activate Isolation
and Quarantine
Start: Indication
of outbreak of
communicable
disease
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Medical Surge
Mass Care
(Sheltering,
Feeding, and
Related Services)
Fatality
Management
Need for isolation and
quarantine
Mass Prophylaxis
Emergency
Operations Center
Management
Emergency Public
Information and
Warning
Authority to execute isolation and
quarantine recommendations and orders
Demobilize
Isolation and
Quarantine
Mandatory isolation
and quarantine
orders issued
Ready to establish orders
Inform public of beginning
and end of protective orders
Perimeter/crowd
control provided
Bulk distribution provided
Transfer deceased
persons
Provide sitreps
Isolation and quarantine
orders implemented
Medical care to symptomatic
patients provided
Voluntary isolation
and quarantine
orders issued
Provide resource needs
WMD/Hazardous
Materials
Response
and
Decontamination
Decontamination
provided
Epidemiological
Surveillance and
Investigation
Is mandatory
order deemed
necessary?
Implement
Voluntary
Isolation and
Quarantine
Implement
Mandatory
Isolation and
Quarantine
YesNo
Orders lifted
Participate in order
evaluation/modification
I
s
o
l
a
t
i
o
n
a
n
d
q
u
a
r
a
n
t
i
n
e
o
p
e
r
a
t
i
o
n
s
c
o
n
t
i
n
u
e
d
Implement Travel
Restrictions
Travelers
screened
Resources provided
Provide guidance on legal and medical implementation
Provide care guidance to
public
Orders lifted?
Updated orders provided
Status reports provided
Yes
No
Capability Activity Process Flow
Isolation and Quarantine Capability
Linked
Capabilities
Relationship
Symptomatic
persons transferred
Emergency
Public Safety and
Security Response
Emergency
Triage and Pre-
Hospital
Treatment
Target Capabilities List 403
RESPOND MISSION: ISOLATION AND QUARANTINE
Resource Element Description
Resource Elements Components and Description
Community Isolation and
Quarantine Teams
Teams located in district, county, and municipal office that comprise 6 officers
per district or county team and 4 officers per municipal team
Quarantine Stations CDC Quarantine Stations provide advanced emergency response capabilities,
including isolation and communications facilities. They include regional health
officers to provide clinical, epidemiologic, and programmatic support, and
quarantine public health officers to conduct surveillance, response, and
communicable disease prevention activities. WHO also provides quarantine
stations.
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the pandemic influenza and plague scenarios. Other
scenarios were reviewed to identify required adjustments or additions to the planning factors and
national targets.
Isolation and quarantine deals specifically with infectious diseases.
Isolation and quarantine deals specifically with separation of individuals rather than prohibition on
structures.
This capability refinement addresses community separation and not hospitalized patients.
Recognition and assessment of exposure to an illness is an epidemiological function.
50 percent of infected persons are asymptomatic shedders of the influenza virus.
Shedding of the virus occurs 24 hours before the development of symptoms.
Cases are occurring in a single wave over 8 weeks. The response is an evolving process – it has a
phased approach.
Number of days in quarantine are 10 to 14 days (epidemiological evidence may allow for a reduction
in this time).
Number of days in isolation varies by age (7 days for adults; 14 days for children).
World Health Organization (WHO) pandemic influenza phase: Phases 1 and 2 are interpandemic; 3,
4, and 5 are pandemic alert; 6 is pandemic period. General preparedness activities have occurred in
WHO Phases 1 – 3.
WHO Phase 1 – 3: General Preparedness activities.
In WHO Phase 4, cases are occurring outside of the USA.
WHO Phase 4, if there is extensive trade or travel links with the affected country, and WHO Phase 5,
are the most important when considering isolation and quarantine.
WHO Phase 5 is larger clusters, more transmission, suggesting that the virus is becoming more
adoptive to human transmission.
WHO Phase 5 is most important when considering Isolation and Quarantine.
Set up isolation/quarantine stations in each foreign country that is a source of the infection.
Under the Department of Health and Human Services (HHS), there are 83 tier 1 cities in the United
States (i.e. airports with more than 1 million travelers, seaports with more than 100k travelers, or land
borders with more than 5 million crossings); currently there are isolation/quarantine stations in 18 of
these cities.
Screening for inbound/outbound flights will be needed.
404 Target Capabilities List
RESPOND MISSION: ISOLATION AND QUARANTINE
WHO Phase 6: try and isolate 10 cases per million population. Sustained community transmission is
assumed to be occurring when cases exceed 10 per million population.
Attempt to quarantine 30 contacts per case (300 contacts per 1 million population).
This will be community based rather than hospitalized patients.
Closing of public venues may be retained here.
There is a high Percent of absenteeism related to medical, traditional first responder, and public health
personnel.
Isolation orders will be based on a case definition, not strictly on laboratory test results.
At least eight other countries are affected.
Resources for provision of mental health services are not defined in this capability.
Resources for provision of law enforcement are not defined in this capability.
Resources for public information are not defined in this capability.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Pandemic Influenza and Plague)
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of
Resources Needed
Community
Isolation/and
Quarantine Team
One per 20 persons
isolated or
quarantined
Isolate 10 per million population;
quarantine 300 per million
population. Current population of the
USA is 297 million.
Need to isolate 2970 persons and
quarantine 89,100 persons.
Total 92,070, divided by 20
=4,604. Could be reduced
by number of hospital
isolations — need to cross-
reference with Health
Resources and Services
Administration.
Quarantine Station
Two per city can
provide isolation
and quarantine
services to inbound
and outbound
passengers
83 Tier One cities
Two per 83 Tier One
Cities, plus one per
affected overseas country.
Approaches for Large-Scale Events
Community Isolation/Quarantine Teams need to be situated locally.
Federal Quarantine Stations need to be located in tier 1 cities (those that have airports with more than
1 million travelers, seaports with more than 100,000 travelers, or land borders with more than 5
million crossings). Note that 18 Federal Quarantine Stations currently exist in tier 1 cities.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
Supported by
Element
Community
Isolation &
Quarantine Team
Resource
Organization
1 Per jurisdiction
affected
Local (City) All Activities
Target Capabilities List 405
RESPOND MISSION: ISOLATION AND QUARANTINE
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability Activity
Supported by
Element
Community
Isolation &
Quarantine Team
Resource
Organization
1 Per district/county
affected
Local
(County)
All Activities
Quarantine station Resource
Organization
1 Per Tier 1 City Federal
(HHS/CDC)
Implement Travel
Restrictions
Quarantine Station Resource
Organization
1 Per pandemic agent
source country
Private Sector
(World Health
Organization)
Implement Travel
Restrictions
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Fact Sheet on Isolation and Quarantine. U.S. Department of Health and Human Services, Centers for Disease
Control and Prevention. January 2004.
5. Modular Emergency Medical System: Concept of Operations for the Acute Care Center U.S. Army Soldier and
Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003.
6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
7. Emergency Response Training Necessary for Hospital Physicians/Nurses That May Treat Contaminated
Patients. Standard interpretation. Occupational Safety and Health Administration. March 1999.
8. Emergency Response Training Requirements for Hospital Staff. Standard interpretation. Occupational Safety
and Health Administration. April 1997.
9. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
10. Medical Personnel Exposed to Patients Contaminated with Hazardous Waste. Standard interpretation.
Occupational Safety and Health Administration. March 1992.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609.
11. Training Requirements for Hospital Personnel Involved in an Emergency Response of a Hazardous Substance.
Standard interpretation. Occupational Safety and Health Administration. October 1992.
12. DHS, Office for Domestic Preparedness. Metropolitan Medical Response System (MMRS) Program,
http://fema.mmrs.gov.
13. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an
Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook.
406 Target Capabilities List
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Target Capabilities List 407
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED)
SEARCH AND RESCUE (LAND-BASED)
Capability Definition
Search and Rescue (Land-based) is the capability to coordinate and conduct search and rescue (SAR)
response efforts for all hazards, including searching affected areas for victims (human and, to the extent
no humans remain endangered, animal) and locating, accessing, medically stabilizing, and extricating
victims from the damaged area.
Outcome
The greatest numbers of victims (human and, to the extent that no humans remain endangered, animal)
are rescued and transferred to medical or mass care capabilities, in the shortest amount of time, while
maintaining rescuer safety.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the Emergency Support Function (ESF) #9: Urban Search and Rescue.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Preparedness Tasks
Res.B4a 1.1.1
Incorporate Search and Rescue (SAR) plans and procedures for urban, civil, and other search and
rescue into jurisdiction’s Emergency Operations Plan (EOP) or EOP Annexes
Res.B4a 1.3.2 Pre-identify typed SAR resources
Res.B4a 1.3.3
Develop resource allocation processes and procedures for SAR capable resources that also
support other capabilities/functions
Res.B4a 1.3.4
Identify resources from other agencies or capabilities that may assist with SAR, and plan to
integrate such additional resources as necessary
Res.B4a 1.2.1 Develop plan to incorporate nationally certified SAR volunteers
Res.B4a 1.2.2 Develop management plan to address uncertified volunteers
Res.B4a 1.1.2
Develop plan for SAR teams that will be deployed out-of-region to be self-sustaining for 72
hours
ResB4a 1.2
Establish plans, procedures and protocols for logistical support for search and rescue assets.
408 Target Capabilities List
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED
Preparedness Measures Metrics
Scale of jurisdiction’s urban search and rescue capability is related to risk/threat
analysis
Yes/No
Team is equipped in accordance with the National Incident Management System
(NIMS) Resource Typing System
Yes/No
Federal, State, regional, and local SAR Capabilities are NIMS Compliant Yes/No
SAR plans address logistical support (e.g. directing resources, re-assigning tech-
specialists, managing uncertified volunteers).
Yes/No
Plans address demobilization of SAR operations (e.g. replenishing supplies and
equipment, re-assigning personnel).
Yes/No
Plans address SAR personnel needs (e.g. physical, psychological, financial
assistance).
Yes/No
SAR plans are integrated with the incident management structure (e.g. USAR teams
coordinated with fatality management and EMS resources).
Yes/No
SAR plans address information sharing requirements Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Preparedness Tasks
Res.B4a 2.1.1 Establish training and exercise program for SAR personnel as per EOP
Res.B4a 2.1.2 Train and equip SAR personnel to the appropriate standards commensurate with their mission
Preparedness Measures Metric
Training program has been established Yes/No
Training and exercises programs address both urban and civil search and rescue Yes/No
SAR personnel trained and equipped as per EOP and SOPs Yes/No
Frequency with which SAR activities are exercised in large and complex exercises Every 12 months
Performance Measures and Metrics and Critical Tasks
Activity: Direct Search & Rescue Tactical Operations
Definition: In response to notification of entrapment, provide management and coordination of
SAR capability, through demobilization for single or multiple teams
Critical Tasks
Res.B4a 3.1 Receive and accept SAR request/activation order
Res.B4a 3.2 Participate in SAR planning process and operational briefings
Res.B4a 3 Plan and coordinate SAR operations at incident site
Res.B4a 3.4.1
Direct SAR resources according to the National Incident Management System (NIMS), the
Incident Command System (ICS), and consensus-level technical rescue standards
Target Capabilities List 409
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED)
Res.B4a 3.4.3 Determine need for deployment of additional SAR assets
Res.B4a 3.6.1 Provide timely situational awareness and response information
Res.B4a 3.6.1.1 Establish and maintain a chorological log of events in the field
Res.B4a 3.6.2
Document and collect SAR operations information, including chronological log of events in the
field for use in after action review
Res.B4a 3.7.3 Re-assign/rotate technical specialists, as needed
ResB4a 3.3.3 Maintain accountability of all SAR personnel
Res.B4a 3.2.1
Identify logistics capability of incident site to determine whether deployed SAR teams must be
self-sustaining
Res.B4a 3.7 Develop SAR team reassignment/demobilization plan
Performance Measures Metric
SAR teams are incorporated into the incident command structure Yes/No
Frequency with which situation and resource status information are received (and also
after a significant change)
Every 30 minutes
Number of loss-time injuries per deployment of SAR personnel during SAR efforts <1
Time in which tactical plan is developed and implemented by State, regional, and/or
local SAR, based on the Incident Action Plan (IAP)
Within 2 hrs from arrival
on-scene
Time in which tactical plan is developed and implemented by Federal SAR
resource(s) based on the (IAP)
Within 4 hrs from arrival
on-scene
Demobilization/reassignment plan is developed and takes into account long-term
personnel follow-up
Yes/No
Activity: Activate Search & Rescue
Definition: In response to notification, mobilize and arrive at the incident scene to begin
operations
Critical Tasks
Res. B4a 3.1 Receive Search and Rescue (SAR) alert/activation order
Res.B4a 4.3 Participate in Search and Rescue (SAR) planning process and operational briefings
Res.B4a 4.2 Initiate mobilization procedure
Res.B4a 4.2.1 Assemble personnel and equipment at designated location
Res.B4a 4.1.2 Deploy Federal, State, regional or local SAR resources commensurate with request
Res.B4a 4.2.2 Transport team (personnel and equipment) to incident scene
Res.B4a 4.2.3 Collect and analyze incident information to assist SAR capability deployment decisions
Performance Measures Metric
Time in which local SAR capability arrives on-scene Within 2 hours from
notification
Time in which regional SAR capability arrives on-scene Within 12 hours from
410 Target Capabilities List
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED
notification
Time in which federally designated SAR capable resources are deployed Within 6 hours from task force
notification of request
Time in which first activated Federal SAR resources arrive on-scene Within 24 hours from
activation
Activity: Provide Materiel and Other Support
Definition: Upon arriving on scene, provide, track, and maintain equipment and supplies as well
as support base of operations
Critical Tasks
Res.B4a 4.3 Participate in SAR planning process and operational briefings
Res.B4a 5.1 Establish base of operations
Res.B4a 5.2 Maintain accountability of team equipment/supplies
Res.B4a 5.1.1 Provide medical care for SAR personnel, including the K-9 first responders
Performance Measures Metric
Time in which functional Base of Operation is established and ready to support
initial SAR operations
Within 60 minutes from
arrival at incident site
Percent of accountability for team equipment/supplies maintained 100%
Percent of deployable SAR capability that can sustain its own operations for up to
72 hours without additional resources
100%
Percent of SAR personnel and service animals whose health is monitored at least
once per work cycle
100%
Activity: Conduct Search and Rescue Reconnaissance
Definition: Once on scene and equipped, provide rapid assessment of assigned SAR work areas
and recommend search priorities/tactics to management
Critical Tasks
Res.B4a 6.1.1 Assess incident site to determine search and rescue course of action
Res.B4a 6.1.2 Assess the incident site for hazardous materials (hazmat) or other environmental conditions
Res.B4a 6.1.3 Develop map of search area to be used in SAR tactical operations
Res.B4a 6.3 Communicate findings and recommend priorities to Team Management
Performance Measures Metric
Time in which reconnaissance team provides preliminary recommendation on search
priorities and strategy
Within 1 hour
Target Capabilities List 411
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED)
Activity: Search
Definition: Upon being assigned search area, begins search operations
Critical Tasks
Res.B4a 4.3 Participate in SAR planning process and operational briefings
Res.B4a 7.1 Ensure scene/site safety (security, shoring, debris)
Res.B4a 7.2 Conduct area search for victims
Res.B4a 7.2.1 Search for victims using canine, physical, and electronic search capabilities
Res.B4a 7.2.2 Identify and record potential/actual victim locations (live and dead)
Res.B4a 7.3 Direct ambulatory victims to safe assembly point
Res.B4a 7.4 Report progress of search efforts on a regular basis to SAR lead
Res.B4a 7.5 Maintain accountability for search personnel, equipment, and supplies
Performance Measures Metric
Percent of assigned area searched 100%
Time in which systematic search of an area affected by a large-scale emergency
is initiated
Within 30 minutes from
operations briefing
Percent of ambulatory victims directed to safe assembly point 100%
Frequency with which updated situation and resource status report is provided
(including after major change in conditions)
Every 30 minutes
Activity: Extricate
Definition: Upon notification of location of victim, perform extrication
Critical Tasks
Res.B4a 4.3 Participate in SAR planning process and operational briefings
Res.B4a 7.1 Ensure scene/site safety (security, shoring, debris)
Res.B4a 8.1.1 Coordinate extrication strategy with medical personnel
Res.B4a 8.1 Extricate trapped victims
Res.B4a 8.2 Provide periodic progress reports while rescuing
Res.B4a 8.3 Maintain accountability of extrication personnel, equipment, and supplies
Performance Measures Metric
Percent of dangerous conditions affecting extrication mitigated to allow worker and
victim safety in accordance with SOP
100%
Frequency with which updated situation and resource status report is provided
(including after major change in conditions)
Every 30 minutes
Percent of located victims extricated 100%
412 Target Capabilities List
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED
Activity: Provide Medical Treatment
Definition: Upon access to victim, coordinate with medical personnel to treat and transfer victim
to more definitive medical care
Critical Tasks
Res.B4a 4.3 Participate in SAR planning process and operational briefings
Res.B4a 9.1.1 Coordinate medical treatment with extrication and medical personnel
Res.B4a 9.2 Transfer victims to more definitive medical care
Res.B4a 9.1.2
Medically stabilize trapped victims according to Task Force Operations Manual and Medical
Protocols
Res.B4a 9.1.2.1
Ensure victims are medically stabilized according to Task Force Operations Manual and Medical
Protocols throughout packaging and extrication
Res.B4a 9.3 Maintain accountability of medical personnel, equipment, and supplies
Performance Measures Metric
Percent of victims whose standard of care is maintained according to local medical protocols 100%
Percent of time resources were identified to transfer patient to more definitive medical care 100%
Activity: Demobilize/Redeploy
Definition: Upon completion of assigned mission, disengage from incident site, and debrief
personnel.
Critical Tasks
Res.B4a 10.2.1 Repackage equipment cache
Res.B4a 10.2 Demobilize base of operations
Res.B4a 10.1.1 Arrange transportation for personnel and equipment
Res.B4a 10.1.2 Debrief SAR capability personnel
Performance Measures Metric
Time in which equipment cache is re-inventoried and packaged for transport Within 12 hours from start of
demobilization
Time in which base of operations is returned to original conditions Within 12 hours from start of
demobilization process
Percent of Search and Rescue task force personnel debriefed before leaving
the scene
100%
Target Capabilities List 413
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED)
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
Search and Rescue (Land-Based) integrates itself into the local Incident
Command/Unified Command system.
WMD and Hazardous
Materials Response and
Decontamination
Search and Rescue (Land-Based) coordinates with WMD and Hazardous Materials
Response and Decontamination to identify hazardous conditions, ensure SAR members
have appropriate protective clothing and equipment, and ensure SAR personnel and
equipment are appropriately decontaminated.
Emergency Triage and
Pre-Hospital Treatment
Search and Rescue (Land-Based) coordinates with Emergency Triage and Pre-Hospital
Treatment to ensure medical care of victims during and after extricated.
Emergency Public Safety
and Security Response
Search and Rescue (Land-Based) relies upon Emergency Public Safety and Security
Response assistance to secure search and rescue sites, safely divert public from the area,
and to provide security support for the SAR Base of Operations.
Mass Care (Sheltering,
Feeding, and Related
Services)
Search and Rescue (Land-Based) notifies Mass Care of location of people and
companion animals encountered during course of search and rescue operations
Animal Disease
Emergency Support
Search and Rescue (Land-Based) notifies Animal Disease Emergency Support of
location of livestock, dangerous animals, and injured wildlife encountered during course
of search and rescue operations.
Fatality Management Search and Rescue (Land-Based) notifies Fatality Management of location of remains
encountered during search and rescue operations.
Responder Safety and
Health
Search and Rescue (Land-Based) relies upon responder health and safety for site
hazards to help ensure that appropriate precautions are identified and that personal
protective equipment/supplies are available to protect SAR personnel.
414 Target Capabilities List
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED
Direct Search
and Rescue
(Land-Based)
Tactical
Operations
Activate Search
and Rescue
(Land-Based)
Conduct SAR
Reconnaissance
Search
Extricate
Provide Medical
Treatment
End: Search and Rescue
(Land-Based) returned to
base or redeployed
Area identified to recon
Search sites identified and prioritized
ID possible location of victims and remains
Demobilize/
Redeploy Search
and Rescue
(Land-Based)
Preliminary extrication sites identified and prioritized
Recovered victims triaged and transferred
to more definitive medical care
Are there
victims?
No
Yes
(Alive)
SAR resources requested
Provide Materiel
and Other Support
Stabilize
site
Stabilize
victim
On-Site Incident
Management
WMD/Hazardous
Materials
Response and
Decontamination
Fatality
Management
Mass Care
(Sheltering,
Feeding, and
Related Services)
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Start: Indication
of trapped
Notify appropriate NIMS-typed teams
Ready to recon
Ready to begin
rescue operations
Ready to search
Arrive on-scene
Transfer victims
to hospital
Report livestock and
dangerous animals
Report people
and pet locations
Report security issues
F
o
r
c
e
p
r
o
t
e
c
t
i
o
n
p
r
o
v
i
d
e
d
Remains located
Notify of suspected
hazardous materials
Search and Rescue (Land-Based) Capability
Relationship
Capability Activity Process Flow
Linked
Capabilities
Yes
(Deceased)
Provide location of remains
Emergency
Public Safety
and Security
Response
Animal Disease
Emergency
Support
Emergency
Triage and Pre-
Hospital
Treatment
Target Capabilities List 415
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED)
Resource Element Description
Resource Elements Components and Description
Type I US&R Task Force (TF) Per NIMS
Type II Collapse Search and Rescue Team Per NIMS
Type II Heavy Rescue Strike Team Per NIMS
Type II Heavy Rescue Squad Per NIMS
Type I Large Animal Rescue Strike Team Per NIMS
Type I Small Animal Rescue Strike Team Per NIMS
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Toxic Industrial Chemical scenario. Other scenarios
were reviewed to identify required adjustments or additions to the planning factors and national
targets.
This capability applies to a wide range of incidents and emergencies, including improvised nuclear
devices, toxic industrial chemical scenarios, major earthquakes or hurricanes, and radiological
dispersal devices. The primary condition affecting the performance of the capability is whether the
incident requires an urban search and rescue or water search and rescue. For urban search and rescue,
conditions affecting the performance include the number and size of collapsed structures, number of
trapped persons in collapsed structures, and any risks involved for the rescuers (including fire and
potential hazardous materials (hazmat) exposure).
Local response time: 0–2 hours
Regional response time: 2–17 hours
State response time: 12–24 hours
Federal response time: 24+ hours
Given that SAR is extremely time-sensitive, initial operations will be undertaken by State and local
responders and those volunteer personnel willing to assist in locating victims. If the catastrophic
incident involves collapsed buildings, national SAR task force response assets will immediately
deploy in accordance with the Catastrophic Incident Response Execution Schedule (Annex 1).
All injuries and fatalities need to be extricated.
All locations need hazmat assessment for proper personal protective equipment (PPE).
Typical fire and hazmat response has PPE to extricate lightly trapped victims.
US&R strike teams begin to extricate moderately trapped victims.
US&R task forces extricate heavily trapped victims.
Trapped victims surviving the initial exposure will be viable.
Trapped victims have the best chance of survival if they are rescued within 72 hours. They may
survive up to 14 days if provided drinking water.
The doctrine of “do no additional harm” will apply to all SAR operations. Urban search and rescue
personnel will take into consideration the dangers of contamination and unstable physical structures
before entering into an area that may contain surviving victims and will take appropriate safety and
protective measures before commencing operations.
416 Target Capabilities List
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED
The size of the jurisdiction and the risks/threats presented will determine how extensive the SAR
capability needs to be.
Jurisdictions may be able to obtain SAR resources that are sufficient to meet that jurisdiction’s needs
from elsewhere.
Training should be commensurate with population and risk.
SAR resources may not be available due to other incidents or activities in the area.
Location, distance, available transportation, and weather affect how quickly SAR resources can reach
the scene.
Type of SAR resources deploying will affect what type of equipment it has and how long it can
conduct SAR operations without re-supply.
When there is a base camp with sufficient resources SAR teams may not need to be self-sustaining.
Hazardous conditions, weather, size of area, scope, access, criminal activity (hazard) determines level
of work-area access and efficiency with which areas can be searched for victims.
Complexity and circumstances of the entrapment affects the amount of time required to safely access,
stabilize, and extricate victim.
Not all SAR resources have integrated confined space medical components thus the care available to
the victim will depend on the type of SAR team providing treatment throughout the extrication
process.
Intensity of equipment and personnel utilization will increase or decrease duration each US&R
capability is able to work.
The level of effort required to restore (or replace) equipment cache items will depend on how heavily
they were used and the extent to which they need to be decontaminated/cleaned.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Toxic Industrial Chemical)
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
Type I US&R
Task Force
Extrication of victims in 24 hrs:
Heavy construction (HC):
Entombed: 4
Structurally trapped: 12
Nonstructurally trapped: 20
Light construction (LC):
Entombed: 8
Structurally trapped: 24
Nonstructurally trapped: 40
HC: 20 maximum
rescued per day
LC: 40 maximum
rescued per day
1350 victims trapped
50% trapped in HC (675)
675 victims/3 day optimum
rescue = 225
225 victims/20 maximum =
11.25 Type I US&R Teams
for 3 days
1350 victims trapped
50% trapped in LC (675)
675 victims/3 day optimum
rescue = 225
225 victims/40 maximum =
5.6 Type I US&R Teams
for 3 days
Type II Collapse
Search and Rescue
Team
Extrication of victims in 12 hrs:
HC:
Entombed: 1
Structurally trapped: 3
HC: 18 maximum
rescued per 24 hours
LC: 36 maximum
Requires 2 teams, each
having one 12-hour
operational period
Target Capabilities List 417
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED)
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
Nonstructurally trapped: 5
LC:
Entombed: 2
Structurally trapped: 6
Nonstructurally trapped: 10
rescued per 24 hours
Type II Heavy
Rescue Strike
Team
Extrication of victims in 12 hrs:
HC:
Nonstructurally trapped: 6
LC:
Structurally trapped: 6
Nonstructurally trapped: 9
HC: 12 maximum
rescued per day
LC: 30 maximum
rescued per day
Requires 2 teams, each
having one 12-hour
operational period
Type II Heavy
Rescue Squad
Extrication of victims in 12 hrs:
LC:
Structurally trapped: 2
Nonstructurally trapped: 3
LC: 10 maximum
rescued per day
Requires 2 teams, each
having one 12-hour
operational period
Type I Large
Animal Rescue
Strike Team
This six-member team should
be capable of completing an
average of one rescue every 30
minutes in a suburban setting
and one rescue every hour in
rural settings. These times
would be semi-dependent on
uncontrollable factors such as
terrain, weather, road
conditions, and distance
between rescue sites.
Number of teams ordered
will be based on number of
rescues anticipated.
Type I Small
Animal Rescue
Strike Team
This six-member team should
be capable of completing an
average of one rescue every 30
minutes in a suburban setting
and one rescue every hour in
rural settings. These times
would be semi-dependent on
uncontrollable factors such as
terrain, weather, road
conditions, and distance
between rescue sites.
Number of teams ordered
will be based on number of
rescues anticipated.
Approaches for Large-Scale Events
During incidents, licensing and certifications need to be national and not restricted by State borders.
A border should not determine the location of a resource.
Basic disaster training should be standard, such as that sanctioned by NIMS and the National
Response Plan (NRP), to allow more personnel to be used on the day of the incident.
418 Target Capabilities List
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED
Training must be coordinated at the Federal level.
FEMA, in coordination with the Department of State (DOS), will coordinate the use and employment
of international urban search and rescue assets/resources if the level of response will overwhelm our
national capability.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Type 1 US&R
Task Force (TF)
Resource
Organization
1 Per each pre-
determined location
Federal
(DHS)
All SAR Activities
Type II Collapse
Search and Rescue
Team
Resource
Organization
1 Per population >
100k
Local (City) All SAR Activities
Type II Heavy
Rescue Squad
Resource
Organization
1 Per population >25k
but <100k
Local (City) All SAR Activities
References
1. Homeland Security Presidential Directive/HSPD-8, "National Preparedness". December 2003.
http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html
2. National Response Plan (NRP). Department of Homeland Security. December 2004.
3. National Incident Management System (NIMS). Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf
4. Homeland Security Exercise and Evaluation Program (HSEEP), Volume II: Exercise Evaluation and
Improvement. Office for Domestic Preparedness, Department of Homeland Security. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf
5. Urban Search and Rescue (US&R) Incident Support Team (IST) In Federal Disaster Operations, Operations
Manual. Federal Emergency Management Agency. January 2000. http://www.fema.gov/pdf/usr/usristops.pdf
6. National Urban Search and Rescue Response System Field Operations Guide. Federal Emergency Management
Agency. September 2003. http://www.fema.gov/pdf/usr/usr_fog_sept_25_2003_color_final.pdf
7. National Urban Search and Rescue Response System Operations Manual: 2003-2004 Task Force Equipment
Cache List. Federal Emergency Management Agency. August 2003.
http://www.fema.gov/pdf/usr/task_force_documents_equip_cach_list_intro.pdf
8. Urban Search and Rescue Task Force Equipment Cache List. Federal Emergency Management Agency. 2004.
http://www.fema.gov/pdf/usr/usr_equip_cache_list.pdf
9. NFPA 1670- Standard on Operations and Training for Technical Search and Rescue Incidents. National Fire
Protection Association. 2004 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1670
10. NFPA 1006- Standard for Rescue Technician Professional Qualifications, National Fire Protection Association,
2003 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1006
11. NFPA 1951- Standard on Protective Ensemble for US&R Operations, National Fire Protection Association,
2001 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1951
Target Capabilities List 419
RESPOND MISSION: SEARCH AND RESCUE (LAND-BASED)
12. NFPA 1500- Standard on Fire Department Occupational Safety and Health Program, National Fire Protection
Association, 2002 Edition. http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1500
13. Inventory of Navy Laboratory Rescue & Diving Equipment Available for Emergency Undersea Operations,
NOSC TD 112. U.S. Navy. 1983.
14. Rescue and Survival Systems Manual, COMDTINST M10470.10 (Series). U.S. Coast Guard. 2003.
15. SARSAT Users Manual for Use by Coast Guard Search and Rescue Personnel. U.S. Coast Guard, 1982.
16. Standard First Aid Training Course, NAVEDTRA 10081-C. U.S. Navy.
17. United States National Search and Rescue Supplement to the International Aeronautical and Maritime Search
and Rescue Manual, National Search and Rescue Committee, Washington DC. May 2000.
420 Target Capabilities List
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Target Capabilities List 421
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
EMERGENCY PUBLIC INFORMATION AND
WARNING
Capability Definition
The Emergency Public Information and Warning capability includes public information, alert/warning
and notification. It involves developing, coordinating, and disseminating information to the public,
coordinating officials, and incident management and responders across all jurisdictions and disciplines
effectively under all hazard conditions.
(a) The term “public information” refers to any text, voice, video, or other information provided by an authorized
official and includes both general information and crisis and emergency risk communication (CERC) activities.
CERC incorporates the urgency of disaster communication with risk communication to influence behavior and
adherence to directives.
(b) The term “alert” refers to any text, voice, video, or other information provided by an authorized official to
provide situational awareness to the public and/or private sector about a potential or ongoing emergency
situation that may require actions to protect life, health, and property. An alert does not necessarily require
immediate actions to protect life, health, and property and is typically issued in connection with immediate
danger.
(c) The term “warning” refers to any text, voice, video, or other information provided by an authorized official to
provide direction to the public and/or private sector about an ongoing emergency situation that requires
immediate actions to protect life, health, and property. A warning requires immediate actions to protect life,
health, and property and is typically issued when there is a confirmed threat posing an immediate danger to the
public.
(d) The term “notification” refers to any process where Federal, State, local, tribal, and nongovernmental
organization, department, and/or agency employees and/or associates are informed of an emergency situation
that may require a response from those notified.
Outcome
Government agencies and public and private sectors receive and transmit coordinated, prompt, useful, and
reliable information regarding threats to their health, safety, and property, through clear, consistent
information-delivery systems. This information is updated regularly and outlines protective measures that
can be taken by individuals and their communities.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs) and Annex:
ESF #5: Emergency Management
ESF #15: External Affairs
Public Affairs Support Annex
422 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.B1f 1.2.2
Identify all pertinent stakeholders across all disciplines and incorporate them into the information
flow through a clearly defined information sharing system
Res.B1f 1.1.1
Develop plans, procedures, and policies for coordinating, managing, and disseminating public
information effectively under all hazards and conditions
Res.B1f 1.1.2
Develop plans, procedures, and policies for coordinating, managing, and disseminating alerts and
warnings effectively under all hazards and conditions
Res.B1f 1.1.3
Develop plans, procedures, and policies for coordinating, managing, and disseminating
notifications effectively under all hazards and conditions
Res.B1f 1.2
Develop communication plans, policies, procedures, and systems that support required
information sharing and communications across stakeholders to support public information,
alert/warning, and notification
Res.B1f 1.3 Develop crisis and emergency risk communication (CERC) plan
Res.B1f 1.3.2 Develop and maintain emergency declaration protocols and templates
Res.B1f 1.4.1 Develop procedures for disseminating information on the re-entry of citizens
Res.B1f 1.2.6 Develop a communication network with State homeland security departments
Res.B1f 1.2.1
Develop programs and systems to process the inflow of public-related information from all
sources in a timely fashion
Res.B1f 1.2.3
Develop procedures to ensure that information provided by all sources includes the necessary
content to enable reviewers to determine its authenticity and potential validity
Res.B1f 1.1 Prepare emergency public information plans
Res.B1f 1.3.1
Develop plans, procedures, programs and systems to rapidly control rumors by correcting
misinformation
Res.B1f 1.1.5
Develop community-based mechanisms to support providing prompt, accurate information to the
public in the dominant languages of the community and languages and formats appropriate for
those with limited language competence, disabilities, cultural or geographic isolation, or
vulnerabilities due to age
Res.B1f 1.1.4 Develop emergency plans that take into account special needs populations
Res.B1f 1.1.6
Develop emergency plans that are community-based and include outreach and education to the
public, through community and faith-based organizations and other institutions, to promote
individual preparedness based on the risks in their communities
Res.B1f 1.2.4
Establish neighborhood pre-disaster and post-disaster information centers at schools, the work
place, libraries, shopping centers, places of worship, and other community institutions, to provide
information on evacuations and the location of disaster assistance sites
Target Capabilities List 423
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Preparedness Measures Metrics
The emergency operations plan (EOP) specifies how and when to enact the public information
function
Yes/No
The emergency operations plan (EOP) specifies how and when to activate public alert and
warning functions
Yes/No
The emergency operations plan (EOP) specifies how and when to enact the notification function Yes/No
The emergency operations plan (EOP) includes a communications strategy to engage the media
to ensure accurate information is disseminated
Yes/No
The emergency operations plan (EOP) specifies how and when to enact a Joint Information
System (JIS)
Yes/No
The emergency operations plan (EOP) provides procedures for use when normal information
sources are lost
Yes/No
Emergency Alert System (EAS) activation plan is in place and is tested regularly Yes/No
Public awareness and education plan is in place with all appropriate agencies and partners Yes/No
Plans for Joint Information Center (JIC) include multi-jurisdictional, multi-disciplinary agencies,
the private sector, nongovernmental organizations, and staffing JIC functions
Yes/No
Communications plan in place to communicate changes in threat level (in the Homeland Security
Advisory System) to the public
Yes/No
Public Information Field Guide is in place Yes/No
Public Information Field Guide includes protocols for interfacing with the media, legislative
interests, officials and celebrities, community-citizens, and tribal, city, county, State, Federal,
and private industry leaders
Yes/No
Public Information Field Guide includes a listing of homeland security and emergency
management sources of information and updatable media lists
Yes/No
Contact information for public and private partners is current and available Yes/No
Public Information Field Guide includes protocols for operating in Joint Information Center (JIC) Yes/No
Crisis and emergency risk communications (CERC) plans are in place Yes/No
Public Information Field Guide includes protocols for identification of resources and
responsibilities in advance of an accident
Yes/No
Procedures are in place for rapidly deploying public affairs teams, which are self-sufficient,
established across all Federal departments and agencies with key Homeland Security
responsibilities, and can deploy
Yes/No
Procedures are in place for communicating with internal groups and individuals about disasters
and emergencies following established standards, as appropriate (e.g. the Emergency
Management Accreditation Program (EMAP) and the National Fire Protection Association
(NFPA) 1600)
Yes/No
Procedures are in place for communicating with external groups and individuals about disasters
and emergencies following established standards, as appropriate (e.g. the EMAP and the NFPA
1600)
Yes/No
424 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Procedures and protocols to communicate and coordinate effectively with other JICs and other
incident command system (ICS) components, structured according to the incident command,
unified command, or area command are in place
Yes/No
Preparedness information is widely distributed in languages appropriate to the cultural and ethnic
needs of the populations of the area
Yes/No
Information dissemination and alert/warning mechanisms are structured so that private sector
entities receive accurate, timely, and unclassified information
Yes/No
Plans and procedures to update alerts/warning frequently are in place Yes/No
Plans and procedures to receive and archive responses from stakeholders that have been
previously notified are in place
Yes/No
Plans and procedures for how notification of recovery assistance information will be
disseminated to the public are in place
Yes/No
Plans and procedures for a post-incident containment informational program are in place Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.B1f 2.1.1 Develop and implement awareness training about public information
Res.B1f 2.2
Develop and implement public information, alert/warning, and notification training and exercise
programs
Res.B1f 2.2.2 Incorporate public information function as part of multi-discipline response operations exercises
Res.B1f 2.1.3
Ensure potential spokespersons identified to provide information during an emergency have been
trained in the principles of Crisis and Emergency Risk Communication (CERC)
Res.B1f 2.2.1 Develop tests, and exercise the plan to enhance its effectiveness
Res.B1f 2.1.2 Develop and conduct training to improve all-hazard incident management capability
Res.B1f 2.2.3
Conduct an after action review to determine strengths and shortfalls and develop a corrective
plan accordingly
Preparedness Measures Metric
Frequency with which all appropriate agencies and personnel are trained in and exercise the
Emergency Alert System (EAS) plan
Every 12 months
Frequency with which Joint Information Center (JIC) deployment and operations are
exercised
Every 12 months
Frequency with which plans and procedures are tested to ensure accuracy and completeness Every 12 months
Frequency with which public awareness and education plan is updated Every 12 months
Frequency with which emergency risk communications plan is exercised Every 12 months
Frequency with which Emergency Operations Plans are exercised Every 12 months
Frequency with which alert and warning systems are exercised Every 3 months
Target Capabilities List 425
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Frequency with which exercise community-based mechanisms to support providing prompt,
accurate information to the public in the dominant languages of the community and languages
and formats appropriate for those with limited language proficiency, disabilities, cultural or
geographic isolation, or vulnerabilities due to age
Every 12 months
Percent of relevant staff trained on public information, alert/warning, and notification policy
and procedures
100%
Performance Tasks and Measures/Metrics
Activity: Manage Emergency Public Information and Warnings
Definition: In recognition of likely hazards provide management and coordination of public
information, alert/warning, and notification activities
Critical Tasks
Res.B.5.1
Activate plans, procedures, and policies for coordinating, managing, and disseminating public
information and warnings
Res,B1f 4.1.1 Identify public information needs and media types and utilization of the affected area
Res.B1f 3.1.1 Coordinate internal information programs
Res.B1f 3.1.2 Coordinate external information programs
Res.B1f 3.1 Coordinate public emergency information
Res.B1f 3.1.5
Implement government agency and nongovernmental organization notification protocols and
procedures
Res.B1f 3.4.1
Implement a community relations plan for ensuring continued communications with citizens and
city, county, tribal, State, Federal, and private industry leaders
Res.B1f 3.3.1 Plan and coordinate warnings, instructions, and information updates
Res.B1f 3.3.3 Coordinate with EOC/responders for public safety concerns that need to be disseminated
Res.B1f 3.3.4
Identify information transfer between and among Incident Command Post concerning public
information
Res.B1f 3.3.5
Monitor communications and information systems as needed to identify information to be
disseminated to public
Res.B1f 3.3.6
Coordinate with law enforcement and provide media outlets to provide the public with accurate,
consistent, and timely information
Res.B1f 3.3.7
Coordinate with intelligence information to provide State, local, and tribal authorities with
clearly defined information needs based on the threat environment
Res.B1f 3.3.8
Coordinate dissemination of incident site information within a National Incident Management
System (NIMS) compliant framework
Res.B1f 3.1.3 Implement international affairs operations
Performance Measures Metric
Time in which initial communications strategy is developed in collaboration with
interagency partners
Within 90 minutes
from the incident
426 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Frequency with which public warnings, instructions, and information updates are planned
and coordinated during an incident
Continuous
Pre-established mechanisms are used to provide State, local, and tribal authorities with
clear and easy to understand information based on the threat environment
Yes/No
Percent of public information, alert/warning, and notifications that are managed according
to the established plan
100%
Activity: Activate Emergency Public Information, Alert/Warning, and Notification Plans
Definition: Activate key personnel, facilities, and procedures
Critical Tasks
Res.B1f 4.4 Activate and establish Joint Information System (JIS)
Res.B1f 4.2.6 Activate and deploy public information/affairs personnel
Res.B1f 4.2.1 Assign Public Information Officer (PIO)
Res.B1f 4.2.2 Identify appropriate spokesperson(s)
Res.B1f 4.1.5 Update the Homeland Security Advisory System, as appropriate
Res.B1f 6.1.2
Notify, as the first responding agency, both public and private partner agencies regarding Joint
Information Center (JIC) activation
Res.B1f 4.2
Ensure appropriate representation of all relevant public affairs entities, to include
nongovernmental organizations and the private sector, in any Joint Information Center (JIC) that
is established by the government
Res.B1f 4.3 Disseminate domestic and international travel advisories
Performance Measures Metric
Time in which partner agencies are notified by the designated or assigned public
information officer (PIO) at the initial responding agency
Within 60 minutes from
notification to respond to the
incident
Emergency Operations Plan is activated Yes/No
Percent of JIC personnel registered 100%
Percent of JIC personnel briefed 100%
Information is delivered to stakeholders based on security clearance level and need
to know
Yes/No
Time in which appropriate spokesperson is identified Within 60 minutes from
opening of JIC
Activity: Establish Joint Information Center
Definition: Activate and implement a Joint Information Center (JIC) and disseminate information
to public
Critical Tasks
Target Capabilities List 427
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Res.B1f 5.1.1 Coordinate the provision of timely and accurate emergency public information through the Joint
Information System (JIS)
Res.B1f 6.1 Activate Joint Information Center (JIC), to include nongovernmental and private-sector partners
as appropriate
Res.B1f 3.2.2 Coordinate and integrate the resources and operations of external affairs organizations to provide
accurate, consistent, and timely information through the Joint Information Center (JIC)
Res.B1f 6.2 Coordinate emergency public information through the Joint Information System (JIS).
Res.B1f 6.1.3 Provide a central contact for the media through the Joint Information Center (JIC), ensuring a
“one accurate message, many voices” approach to information dissemination
Res.B1f 6.2.2 Coordinate among Joint Information Centers (JICs) at all levels of government
Res.B1f 6.2.1 Implement routing and approval protocols for release of information
Res.B1f 6.2.3 Provide for external media support and operations
Res.B1f 6.1.1 Establish adequate numbers of trained personnel at dispatch or communications centers to
process and disseminate information
Performance Measures Metrics
Time in which JIC is activated Within 2 hours from
notification of threat or
incident
Percent of JIC personnel that have been vetted and credentialed 100%
JIC chain of command and operations management chain of command are established Yes/No
Regularly scheduled updates are provided for JIC personnel Yes/No
Percent of major JIC activities for which written documentation or log is kept 100%
Activity: Conduct Joint Information Center Operations
Definition: Upon activation of the JIC, monitor media and conduct press briefings.
Critical Tasks
Res.B1f 7.2.6.1 Correct misinformation before next news cycle
Res.B1f 7.1.2 Receive, authenticate, and screen information for relevance at the supervisory level in a timely
manner
Res.B1f 7.1.4 Use a NIMS compliance framework for coordinating incident related communications
Res.B1f 7.2.8 Provide for rumor control within information network
Res.B1f 7.5 Prepare post-incident information
Performance Measures Metrics
Time in which media are alerted of JIC activation and how to access services Within 2 hours from JIC
activation
Time in which first formal news conference is held Within 3 hours from incident,
as appropriate
428 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Time in which public messages are released providing information on how to
apply for individual assistance
Within 24 hours from incident
Inaccuracies are addressed prior to next news cycle Yes/No
Time in which public information hotline is activated Within 4 hours from incident
Frequency with which hotline information is updated to ensure that the most
accurate information is distributed in a timely fashion
Continuous
Frequency with which alerts/warnings and notifications are provided to planners
and decision makers at all levels as appropriate
Continuous
Information is authenticated and screened for relevance at the supervisory level
as received
Yes/No
Percent of first responders notified of new and developing information as it is
authenticated
100%
Activity: Issue Public Information, Alerts/Warnings, and Notifications
Definition: Issue public information, alerts, warnings, and notifications through established
systems to the public, coordinating officials, and incident managers and responders.
Critical Tasks
Res.B1f 5.1 Disseminate crisis and emergency risk communication emergency (CERC) information to the
media, public, partners and stakeholders
Res.B1f 5.2 Provide emergency public information to special needs populations and special populations
Res.B1f 5.2.5
Provide emergency information to the public that is verified, accurate, and as up-to-date as
possible
Res.B1f 4.3 Disseminate domestic and international travel advisories
Res.B1f 5.3
Ensure accurate and timely dissemination of protective action messages to general public and
emergency personnel
Res.B1f 5.2.1
Disseminate prompt, accurate information to the public in appropriate languages and formats that
take into account demographics and special needs/disabilities
Res.B1f 5.2.4
Provide emergency public information to special, vulnerable, and at-risk populations that are
economically disadvantaged, have limited language proficiency, have disabilities (physical,
mental, sensory, or cognitive limitations), experience cultural or geographic isolation, or are
vulnerable due to age
Res.B1f 5.3.3 Activate Rapid Response Plan for rumor control and correcting misinformation
Res.B1f 5.5.2
Disseminate critical health and safety information designed to alert the public to clinical
symptoms and reduce the risk of exposure to ongoing and potential hazards.
Res.B1f 5.7
Disseminate guidance for the public regarding appropriate donation methods and volunteer
activities
Performance Measures Metrics
Time from threat notification to activation of warning systems Within 30 minutes from
threat notification
Population is notified of an emergency utilizing multiple available warning systems Yes/No
Target Capabilities List 429
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Percent of appropriate individuals and special needs groups provided with notification
communications in accordance with the public awareness and education plan
100%
Percent of alert/warning systems and media outlets monitored to assure the proper
message is delivered
100%
System is in place to receive response to interagency notifications previously sent out
(if required)
Yes/No
System is in place to conduct public information activities, as needed Yes/No
Activity: Conduct Media Relations
Definition: Upon activation of the JIC/JIS, monitor media contacts and conduct press briefings
Critical Tasks
Res.B1f 7.2.1 Provide periodic updates and conduct regularly scheduled media conferences
ResB1f 7.2.5 Track media contacts and public inquiries, listing contact, date, time, query, and outcome
Res.B1f 7.2.3 Establish relationship with non-English speaking media
Res.B1f 7.2.4 Monitor media coverage of event to ensure that information is accurately relayed
Activity: Provide Public Rumor Control
Definition: Upon activation of the JIC/JIS, track inquiries for rumors
Critical Tasks
Res.B1f 7.2.5 Track media contacts and public inquiries, listing contact, date, time, query, and outcome
Res.B1f 7.2.6 Issue corrective messages when errors are recognized in previous public announcements
Res.B1f 7.2.7 Establish frequently updated public information hotline
Activity: Demobilize Emergency Public Information and Warning
Definition: Upon deciding public information services are no longer needed, close the JIC and
demobilize personnel
Critical Tasks
Res.B1f 8.2
Disseminate notice of JIC closure to all Federal, State, local, tribal, and nongovernmental
stakeholders and the media
Res.B1f 8.3 Archive important records of JIC activities and NIMS compliant records
Res.B1f 8.1 Demobilize JIC personnel
Res.B1f 8.2.1 Debrief staff and JIC partners
Performance Measures Metric
430 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Time in which notice of JIC closure is disseminated Within 24 hours prior to JIC
closure
Percent of staff and JIC partners debriefed 100%
Pertinent information and documentation is collected Yes/No
After action review is conducted to determine strengths and shortfalls and develop a
corrective plan accordingly
Yes/No
Percent of alert/warning systems returned to normal operations mode 100%
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
Emergency Public Information and Warning provides informational support and
coordination to On-Site Incident Management, and vice versa.
Emergency Operations
Center Management
Emergency Operations Center Management approves information for release by
Emergency Public Information and Warning.
Citizen Evacuation and
Shelter-In-Place
Emergency Public Information and Warning provides information, alerts, warnings,
and/or notifications. Citizen Evacuation and Shelter-In-Place provides protective action
information or decisions to disseminate.
Isolation and Quarantine
Emergency Public Information and Warning provides information, alerts, warnings,
and/or notifications for Isolation and Quarantine. Isolation and Quarantine provides
protective action information or decisions to disseminate.
Mass Prophylaxis
Emergency Public Information and Warning provides information, alerts, warnings,
and/or notifications related to Mass Prophylaxis. Mass Prophylaxis provides protective
action information or decisions to disseminate.
Volunteer Management
and Donation
Emergency Public Information and Warning provides public announcements for
volunteers and donations.
Target Capabilities List 431
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Manage
Emergency
Public
Information and
Warnings
End: The Joint Information
System is deactivated
Start: Indication of
need for public
notification
Need to release public statements
Ready to begin operations
The public, coordinating officials, and
incident management and responders
are provided all information, alerts/
warnings, and notifications
On-Site Incident
Management
Emergency
Operations
Center
Management
Demobilize
Emergency Public
Information and
Warning
Immediate incident complete
Information approved
for release
S
u
p
p
o
r
t
a
n
d
c
o
o
r
d
i
n
a
t
e
i
n
f
o
r
m
a
t
i
o
n
Transition public information
operations to recovery
Provide protective action decisions (PADs)
Citizen Evacuation
and Shelter-In-
Place
Isolation and
Quarantine
Mass
Prophylaxis
Provide information/
warnings
Informed of protective
action decisions
Volunteer
Management
and Donations
Public
announcement for
volunteers and
donations provided
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Capability Activity Process Flow
Emergency Public Information
and Warning Capability
Linked
Capabilities
Relationship
Activate
Emergency Public
Information, Alert/
Warning, and
Notification Plans
Issue Public
Information, Alerts/
Warnings, and
Notifications
Establish Joint
Information Center
JIC declared operational
Public inquires answered
Conduct Joint
Information
Center Operations
Conduct Media
Relations
Provide Public
Rumor Control
Media contacts monitored and
press briefings conducted
Inquiries tracked for rumors
432 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Resource Element Description
Resource Elements Components and Description
Joint Information Center (JIC)
As defined by the NRP, a facility established to coordinate all incident-related
public information activities on-scene. It includes representatives of local,
State, Federal, and voluntary agencies, the Governor’s Office, as appropriate,
and JIC operations functional staff.
Personnel:
Deputy PAO for each PAO office manager and administrative staff
Research team: Personnel to gather and verify information, do fact checking,
handle writing and research.
Media operations team: Personnel to staff news desk, handle outreach, support
field operations, monitor the media, and handle video and photography
Creative services (writing/research, graphic liaison, program liaison)
Logistics team: Personnel to provide event planning, design and production,
JIC setup and operations.
Government
Translators
Rapid Response Team - Team to rapidly evaluate rumors and misinformation
and issue corrections
2 IT staff
1 support administrator
Special Projects (video, photography, event planning)
Equipment:
JIC Media Briefing Room: Designated media briefing area that includes
podium/lectern, malt box, flags, seals, turtle phone, overhead projector,
PowerPoint projector, screen – Pre-establish alerts/warnings announcements
for citizens to take protective actions. Designated media briefing areas include
the following: Podium/lectern, Malt box, Flags, Seals, Turtle phone, Overhead
projector, and PowerPoint projector Screen
JIC Office Equipment: For each PAO and PIO: 1 Cell phones with walkie-
talkie, chargers; 1 landline phone; Maps of updated, disaster-impacted areas
Per JIC: Video conference capabilities, blast fax; 2 Fax machines – incoming,
outgoing; Radio bank – with recording capability; 6 televisions with recording
capability; 1 laptops/Computers with CD/DVD burner and appropriate
software per staff; server; high-speed color copier; color printers (1 per 3
people), Local telephone directories (1 per person), Office telephone directory
(1 per person), JIC meeting space or access to a meeting room, Private room or
access to a private room, Office supplies.
Public Information Officer (PIO)
As defined by the NRP, the PIO is a member of the Command Staff
responsible for interfacing with the public and media at incident site and with
other agencies with incident-related information requirements.
Target Capabilities List 433
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
JIC/JFO Public Affairs Officer
(PAO)
Includes two public affairs leads at the JIC and JFO; one is the Lead Federal
PAO and the other is the Lead State PAO. Includes at least one representative
of each local, State, Federal, and voluntary agency, the Governor’s Office and
the Incident Commander per JIC
Per 2 12-hour shifts per JIC, representatives from:
Local: 1
State: 1
Federal: 1
Voluntary agency: 2
Emergency management/ homeland security: 1
Governor: 1
U.S. Department of Transportation (DOT): 1
Public health: 1
Law enforcement: 1
Fire: 1
Emergency medical services (EMS): 1
Public works: 1
Search and rescue: 1
Human services: 1
Housing: 1
Alert and Notification System
An alert/warning and notification system appropriate to population, special
needs of citizens, and hazards in a jurisdiction.
JIC support staff training Requires ICS 100–200, NIMS IS–700
Core base training, such as:
Basic public information course
Advanced public information course
Cultural competency
Interoperable communications
Public and volunteers
Risk communications
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were
reviewed to identify required adjustments or additions to the planning factors and national targets.
Coordinated, accurate, timely public information will be required immediately to inform the public of
appropriate protective and self-care actions.
Accurate and timely information over time must be distributed to the affected populations to control
rumors and minimize psychological effects. This activity will be particularly important following
CBRNE-related events.
All scenarios will require a multi-jurisdictional/multi-agency response to implement the Joint
Information System (JIS) and a Joint Information Center (JIC) to ensure that public information
activities are consistent and coordinated across agencies and jurisdictions.
All scenarios require that jurisdictions provide timely and accurate public information. Some
scenarios will have advanced warning, and others will occur with no warning. All scenarios need to
434 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
consider alternate communications means. Power outages will disrupt radio, television, the World
Wide Web, and other power-dependent information outlets.
Door-to-door notification would not be feasible given scenario requirements of higher population
densities.
The jurisdiction may have systems in place to conduct emergency notification.
Implement a public awareness program whenever people are threatened by a serious hazard.
The JIC will include representatives of each jurisdiction, agency, private sector, and nongovernmental
organization (NGO) involved in incident management activities. Inclusion of liaisons from the
various responding agencies will ensure a “one voice” approach and consistency of information
released. A unified effort also fosters collaboration, helping to ensure all agencies’ critical messages
are identified and appropriately addressed.
A single JIC location is preferable, but the system should be flexible enough to accommodate
multiple JIC locations if required. For example, multiple JICs may be needed for a complex incident
spanning a wide geographic area.
Following the command structure will ensure consistency of operations and will enhance cooperation
among JICs, command posts, and other partners.
Effective warning of people with special needs or disabilities will require the media, the Emergency
Alert System (EAS), and other communications systems to use multiple communications.
The amount of resources needed should be determined by each agency participating in the response,
in coordination with the leads for the JICs.
Emergency public information and warning is dependent on the timely availability of accurate
information on the type of threat or hazard presented, as indicated in the Target Capabilities List. An
additional factor is the availability and reliability of accurate information that has been verified and is
ready for distribution.
Timely, accurate information is essential to all scenarios. It is important for the incident commander
and other critical functions included in the ICS to emphasize public information in their respective
operations.
Implementation of a JIC ensures a “one message, many voices” approach that incorporates
representatives across multiple jurisdictions. All agencies involved in disaster response must be
represented in the JIC.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Earthquake)
Resource
Organization
Estimated Capacity Scenario
Requirement Values
Quantity of
Resources
Needed
JIC
Operate 7/24 in two 12-hr
shifts per JIC
Operate 24/7
2 teams (one per 12-
hour shift)
Public Information
Officer (PIO)
Operate 7/24 in two 12-hr
shifts per JIC
County JIC=10 PIOs
per county
Regional JIC=10 PIOs
per region
State JIC=10 PIOs
Federal=10 PIOs
Public Affairs
Operate 7/24 in two 12-hr Minimum of one per 1 IC command
Target Capabilities List 435
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
Resource
Organization
Estimated Capacity Scenario
Requirement Values
Quantity of
Resources
Needed
Officers/Specialists
(PAOs)
shifts per JIC
agency per level of
government
structure per impacted
jurisdiction=2 PAOs
Alert/warning and
notification systems
Each jurisdiction should
have an alert and notification
system appropriate to
population and hazards.
1 per jurisdiction 1 per jurisdiction
Approaches for Large-Scale Events
Approaches to large-scale events are similar to Emergency Operations Center Management.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Joint Information
Center (JIC)
NIMS Typed
Resource
Organization
1 Per jurisdictional
EOC
Federal/State/
Local
All Activities
Public Information
Officer (PIO)
Personnel 1 Per central &
backup EOC per 12
hour shift
Federal/State/
Local
All Activities
JIC/JFO Lead
PAOs
Personnel 1 Per central &
backup EOC per 12
hour shift
Local All Activities
JIC/JFO Lead
PAOs
Personnel 1 Per federal
Federal All Activities
JIC/JFO Lead
PAOs
Personnel 1 Per state State All Activities
JIC/JFO Deputy
Lead PAOs
Personnel 1 Per central &
backup EOC per 12
hour shift
Local All Activities
JIC/JFO Deputy
Lead PAOs
Personnel 1 Per federal
Federal All Activities
JIC/JFO Deputy
Lead PAOs
Personnel 1 Per state State All Activities
Alert and
Notification
System
Equipment 1 Per central &
backup EOC per 12
hour shift
Federal/State/
Local
Issue Emergency
Warnings
436 Target Capabilities List
RESPOND MISSION: EMERGENCY PUBLIC INFORMATION AND WARNING
References
1. Executive Order 13407 “Public Alert and Warning System.” June 26, 2006.
http://www.whitehouse.gov/news/releases/2006/06/20060626.html
2. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
3. National Response Plan. U.S. Department of Homeland Security. December 2004.
4. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
5. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. Office
for Domestic Preparedness, Department of Homeland Security. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
6. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa.
7. NFPA 1221. Communications Systems, Installation, Maintenance, and Use of Emergency Services. 2001.
http://www.nfpa.org/catalog/product.asp?catalog%5Fname=NFPA+Catalog&pid=122102&query=NFPA+1221
&link%5Ftype=search&src=nfpa
8. Emergency Management Accreditation Program Standards. September 2003.
http://www.emaponline.org/index.cfm.
9. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) Program,
http://mmrs.fema.gov
10. Crisis and Emergency Risk Communication. CDC. October 2002.
http://www.cdc.gov/gov/communication/emergency/erc_overview.htm
11. Crisis and Emergency Risk Communication by Leaders for Leaders. CDC.
http://www.cdc.gov/communication/emergency/leaders.pdf
12. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an
Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook
13. Executive Order 13166, “Improving Access to Services for Persons with Limited English Proficiency.”
http://www.usdoj.gov/crt/cor/Pubs/eolep.pdf
Target Capabilities List 437
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
EMERGENCY TRIAGE AND PRE-HOSPITAL
TREATMENT
Capability Definition
Emergency Triage and Pre-Hospital Treatment is the capability to appropriately dispatch emergency
medical services (EMS) resources; to provide feasible, suitable, and medically acceptable pre-hospital
triage and treatment of patients; to provide transport as well as medical care en-route to an appropriate
receiving facility; and to track patients to a treatment facility.
Outcome
Emergency Medical Services (EMS) resources are effectively and appropriately dispatched and provide
pre-hospital triage, treatment, transport, tracking of patients, and documentation of care appropriate for
the incident, while maintaining the capabilities of the EMS system for continued operations.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
ESF #1: Transportation
ESF #8: Public Health and Medical Services
ESF #9: Urban Search and Rescue
ESF #10: Oil and Hazardous Materials Response
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.C1a 1.1
Assess, categorize, and track health and medical resources at the State, regional, and local levels,
including but not limited to trauma centers, burn centers, pediatric facilities, acute care facilities,
and other specialty facilities
Res.C1a 1.1.1
Ensure appropriate protective resources are available, including vaccinations, prophylaxis, and
PPE for pre-hospital providers and their families
Res.C1a 1.1.2
Ensure sufficient EMS personnel and resources are available to respond to day-to-day
emergencies in the community
Res.C1a 1.1.3
Ensure sufficient EMS personnel, supplies, and equipment are available to respond to and
manage a catastrophic incident until Federal resources become available
Res.C1a 1.2.1
Develop procedures for effective, reliable interoperable communications between EMS, incident
command, public health, and healthcare facilities
Res.C1a 1.2.2
Establish and maintain intrastate and interstate EMS communications systems
Res.C1a 1.3.1
Develop protocols and procedures for tracking triage and pre-hospital treatment response staff
and equipment during day-to-day operations, as well as catastrophic incidents
438 Target Capabilities List
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Res.C1a 1.1.4
Ensure that EMS systems include an education, licensure, and credentialing system consistent
with national standards
Res.C1a 1.2.3
Identify and coordinate with public safety access points that have enhanced capabilities (e.g.,
automatic location identification) and redundancy, and are capable of handling a surge in call
volume
Res.C1a 1.3.2
Establish a means to allow EMS resources to be used across jurisdictions, both intrastate and
interstate, using the National Incident Management System (NIMS) (e.g.,, mutual aid
agreements)
Res.C1a 1.4
Develop and/or maintain protocols and procedures for EMS dispatch, assessment, triage,
treatment, transport, logistical support, medical command and coordination, safety,
communications, and tracking of patients during day-to-day operations as well as catastrophic
incidents
Res.C1a 1.5
Develop mechanisms to ensure freedom of movement of medical response, transport, and
personnel when faced with restricted travel laws, isolation/quarantine, or security measures
Res.C1a 1.3.3
Develop plans and mechanisms for obtaining reimbursement for both public and private
expenditures for triage and pre-hospital treatment following a declared catastrophic incident
Preparedness Measures Metrics
State EMS personnel certification and licensure system modeled after the principles of the
National EMS Education Agenda for the Future (and its five components) and NIMS is in
place
Yes/No
Written mutual aid protocols and procedures for EMS support are in place Yes/No
Sufficient certified/licensed EMS personnel are available to staff the current EMS system
24 hours per day, 7 days per week, and with a response consistent with established local
response times
Yes/No
Recall procedures to summon off-duty EMS personnel when needed are in place Yes/No
Sufficient numbers of ambulance transport and support vehicles are available to handle
routine call volume 24/7 with response consistent with established local response times
Yes/No
All cities have a minimum of one spare ALS vehicle available Yes/No
Cities greater than 300,000 have at least one spare vehicle for every 100,000 maintained
on an in-service basis (i.e., stocked and garaged) to support immediate surge needs
Yes/No
EMS personnel participate on a regular basis with emergency management planning and
operations
Yes/No
Jurisdiction-wide EMS data collection system that complies with the National EMS
Information System (NEMSIS) Version 2.0 or later is in place
Yes/No
Written protocols approved by medical control for EMS assessment, triage, transport, and
tracking of patients during a catastrophic event are in place
Yes/No
Written EMS dispatch procedures include the dispatch of personnel and equipment in the
unique circumstances of a catastrophic event
Yes/No
Redundant public safety answering points (PSAPs) that comply with phase II Federal
Communications Commission (FCC) requirements for cell phone access are available and
are capable of handling a large volume of calls
Yes/No
EMS plans address patient and resource transportation (i.e. helicopters and corresponding
landing zone, ambulances and en route health care providers).
Yes/No
EMS plans address the treatment of EMS response personnel, site staff, and their families Yes/No
Target Capabilities List 439
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
(e.g. medical needs, stress management strategies).
The vehicle tracking system is consistent with a written infrastructure protection plan and
NIMS resource typing
Yes/No
Written plans and procedures for coordination of the local EMS system with the National
Disaster Medical System are in place
Yes/No
Sufficient PPE is available for all EMS personnel who would respond to a catastrophic or
routine incident (scenario-specific)
Yes/No
A NIMS-compliant plan that enables communicable disease first responders and receivers
to understand their roles, responsibilities, and requirements when responding to a
communicable disease outbreak (scenario-specific) is in place
Yes/No
A plan for prophylaxis and issuance of PPE to non-surge first responders and first
receivers within 24 hours from a communicable disease outbreak, including the logistical
chain to support this effort is in place
Yes/No
A plan that accounts for the multi-jurisdictional pre-hospital response to a catastrophic
incident that considers mutual aid agreements, associated equipment, staff, command and
control, and nontraditional patient movement and transfers is in place
Yes/No
Compatible communications equipment and communications radio frequency plans are in
place for common hospital diversion and bed capacity situational awareness at the local,
State, and regional levels;
Yes/No
Compatible communications equipment and communications radio frequency plans are in
place for command and control dispatch procedures for task force operations
Yes/No
An interoperable patient tracking system is in place that allows patient tracking from the
first response site to a healthcare facility, and allows data to be accessible among
geographically appropriate users
Yes/No
A plan to return to normal operations post-incident is in place Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.C1a 2.1.1
Conduct training of dispatch personnel in protocol and procedures for dispatch during
catastrophic events
Res.C1a 2.1.2
Develop and implement multi-disciplinary training programs for EMS personnel, based on local
risk vulnerability assessments and lessons learned
Res.C1a 2.2
Develop and implement multi-disciplinary exercise programs for EMS personnel, based on local
risk vulnerability assessments and lessons learned
Preparedness Measures Metric
Frequency with which exercises are conducted using scenarios based on a jurisdiction-
specific risk vulnerability assessment and Homeland Security Exercise and Evaluation
Program (HSEEP) guidelines
Every 12 months
Percent of field responders who received training on dispatch, triage, treatment, and
transport protocols and procedures
80%
Percent of dispatchers who received training on dispatch, triage, treatment, and transport
protocols and procedures
80%
440 Target Capabilities List
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Performance Tasks and Measures/Metrics
Activity: Direct Triage and Pre-Hospital Treatment Tactical Operations
Definition: In response to a notification for emergency medical assets, provide the overall
management and coordination of the Triage and Pre-Hospital Treatment Response, through to
demobilization
Critical Tasks
Res.C1a 3.1.1
Establish Medical Branch/Group officer
Res.C1a 3.1
Coordinate triage and pre-hospital treatment operations with on-site Incident Command
Res.C1a 3.1.2
Coordinate and integrate triage and pre-hospital treatment operations with the National Disaster
Medical System
Res.C1a 3.2
Implement and coordinate effective, reliable interoperable communications between EMS,
incident command, public health, and healthcare facilities
Res.C1a 3.3.2
Assess need for additional medical resources/mutual aid
Res.C1a 3.3.3
Initiate recall and/or mutual aid to staff spare ambulances and provide immediate surge
capability
Res.C1a 3.3.4.1
Implement and maintain accountability procedures for EMS personnel, equipment, and supplies
Res.C1a 3.3.4.2
Provide medical support, safety considerations, and appropriate PPE for EMS responders
Res.C1a 3.3.1
Organize and distribute resources for triage and pre-hospital treatment operations
Performance Measures Metric
Time in which medical dispatch react and respond to the increased
call volume
Within 30 minutes from start of increased
call volume
Time in which medical coordination of on-scene EMS system
personnel and other health resources is provided
Within 30 minutes from initial units arrival
on scene
Time in which medical coordination of public health services,
hospitals, and healthcare providers is provided
Within 60 minutes from the establishment
of Medical Command
Time in which primary and secondary communication is established Within 30 minutes from the establishment
of Tactical Operations
Time in which recall and mutual aid agreements with State and local
partners are executed
Within 60 minutes from initial request for
additional resources
Time in which sufficient and appropriate medical equipment and
supplies are readily available to on scene personal
Within 2 hours from initial units arrival on
scene
Time in which special safety equipment is organized and made
available to all on-scene medical personnel
Within 60 minutes from initial units arrival
on scene
Procedures for the safety, health, and well-being of on-scene
personnel are followed
Yes/No
Target Capabilities List 441
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Activity: Activate Triage and Pre-Hospital Treatment
Definition: In response to a notification, respond, mobilize, and arrive on scene to begin
emergency medical operations
Critical Tasks
Res.C1a 4.1 Dispatch and support medical care personnel
Res.C1a 4.2 Complete scene survey
Res.C1a 4.2.1 Establish scene safety, based on the type and severity of the incident
Res.C1a 4.3 Establish triage, treatment, and transport areas
Performance Measures Metric
Time in which EMS responders are notified and dispatched toward the
scene
Within 10 minutes from 911 receipt of
initial call
Activity: Triage
Definition: Once on scene, provide initial and ongoing emergency medical triage of ill and injured
patients that prioritizes their respective treatment and transport
Critical Tasks
Res.C1a 5.1
Conduct initial and on-going pre-hospital triage in accordance with a jurisdiction’s prescribed
triage methodology (e.g., Simple Triage and Rapid Treatment (START) Triage)
Res.C1a 5.2 Initiate a patient tracking system
Res.C1a 5.3.1 Ensure decontamination of patients prior to treatment and transport
Res.C1a 5.4 Move patients to safe, secure, and easily accessible treatment area(s)
Performance Measures Metric
Time in which triage of ill/injured patients is initiated Within 30 minutes from receipt of call
Time in which a patient tracking system is initiated Within 30 minutes from the initiation of on scene triage
Data management system is operational Yes/No
Activity: Provide Treatment
Definition: Provide medical treatment appropriate to the patient’s injuries and the incident
Critical Tasks
Res.C1a 6.1 Establish immediate, minor, and delayed treatment areas
Res.C1a 6.2 Provide pre-hospital treatment appropriate to the nature of incident and number of injured/ill
Res.C1a 6.2.1 Administer antidotes for victims of WMD attacks
442 Target Capabilities List
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Res.C1a 6.2.2 Provide ongoing pain management therapy as needed to victims awaiting transport
Res.C1a 6.3 Ensure documentation of patient care and transfer, in accordance with mass casualty protocols
Performance Measures Metric
Time in which ill/injured patients receive initial treatment by
appropriately credentialed on-scene medical personnel
Within 30 minutes from initial units
arrival on scene
Time in which on-line medical control is notified of incident Within 10 minutes from initial patient
triage on a not-to-interfere basis with
immediate patient treatment
Time in which coordination of patient treatment with on-line medical
control is initiated
Within 60 minutes from arrival on scene
Activity: Transport
Definition: Transport ill and injured patients via the most appropriate mode of transport available
(e.g. Ambulances, helicopters, etc.), provide ongoing medical assessment and treatment en route
to the designated receiving facility, and upon arrival transfer medical care of the patient(s) to the
receiving facility’s staff
Critical Tasks
Res.C1a 7.1 Identify transport vehicles, victims, and priority of transport
Res.C1a 7.1.1
Provide for alternative modes of transport should air or other operations be necessary (e.g. –
helicopters along with a corresponding landing zone [LZ])
Res.C1a 7.2 Coordinate and transport patients to the appropriate treatment facility
Res.C1a 7.2.1 Provide ongoing assessment and treatment en route
Res.C1a 7.2.2 Transfer care of the patient to the medical staff at the facility
Res.C1a 7.3
Develop local protocols that address return to service of transport vehicles (e.g. decontamination,
stocking, and personnel)
Performance Measures Metric
Percent of patients transported in vehicles appropriate to each patient’s
conditions and the nature and magnitude of the incident
100%
Time in which patients are transported Within 2 hours from initial units
arrival on scene
Time in which single patient transportation is coordinated with appropriate
treatment facility for single patient transfer
Within 30 minutes from initial unit
arrival on scene
Time in which mass casualty patient transportation is coordinated with
appropriate treatment facility
Within 30 minutes from EMS
Transportation/ Communications
Officer arrival
Protocols are in place that address return to service of transport vehicles
(e.g., decontamination, stocking, and personnel)
Yes/No
Target Capabilities List 443
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Activity: Demobilize Triage and Pre-Hospital Treatment
Definition: Upon completion of duties, clear the incident scene, reconstitute as appropriate, and
return to service or end duty tour
Critical Tasks
Res.C1a 8.1.1 Reconstitute EMS personnel and equipment
Res.C1a 8.1.2 Participate in incident debriefing for triage and pre-hospital treatment operations
Res.C1a 8.3.1
Identify responder needs dependent upon their level of involvement and/or hours committed to
the incident
Res.C1a 8.3.2
Implement comprehensive stress management strategies and programs for all emergency
responders and other workers
Res.C1a 8.2 Reestablish normal EMS operations
Res.C1a 8.3.3 Ensure post-event medical monitoring and care of pre-hospital/triage responders
Res.C1a 8.3.4
Conduct post-event analysis, including development and dissemination of lessons learned; revise
plan as indicated
Performance Measures Metric
Time in which triage and pre-hospital personnel are restored to
normal or original operations
Within 12 hours from start of demobilization
Percent of triage and pre-hospital treatment personnel debriefed 100%
Linked Capabilities
Linked Capability Relationship
Search and Rescue
(Land-Based)
Emergency Triage and Pre-Hospital Treatment receives extricated patients from Search
and Rescue (Land-Based).
WMD and Hazardous
Materials Response and
Decontamination
Emergency Triage and Pre-Hospital Treatment receives decontaminated patients from
WMD and Hazardous Materials Response and Decontamination.
Fire Incident Response
Support
Emergency Triage and Pre-Hospital Treatment receives patients from Fire Incident
Response Support.
Emergency Public
Safety and Security
Response
Emergency Triage and Pre-Hospital Treatment provides information on, or the location
of, potential witnesses to Emergency Public Safety and Security Response, while
Emergency Public Safety and Security Response provide patients to Emergency Triage
and Pre-Hospital Treatment.
Fatality Management Emergency Triage and Pre-Hospital Treatment notifies Fatality Management of the
location of human remains or directly transfer these remains to Fatality Management.
On-Site Incident
Management
Emergency Triage and Pre-Hospital Treatment provides patient tracking information to
On-Site Incident Management, and they both provide situational reports to each other.
Mass Care (Sheltering,
Feeding, and Related
Services)
Emergency Triage and Pre-Hospital Treatment transfers care of uninjured affected
victims to Mass Care.
444 Target Capabilities List
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Linked Capability Relationship
Medical Surge Emergency Triage and Pre-Hospital Treatment transfers medical care of injured victims
requiring a higher-level of definitive care during surge to Medical Surge. Non-surge
emergency medical care will need to be addressed in a future capability.
Direct Triage
and Pre-
Hospital
Treatment
Tactical
Operations
End: Triage resources
returned to service
Activate Triage
and Pre-Hospital
Treatment
Triage
Demobilize Triage
and Pre-Hospital
Treatment
Provide Treatment
Treatment needs of all
patients prioritized
On-scene ready to triage
Transport
All patients treated based
on prioritization and
packaged for transport
All patients transported off scene
Search and
Rescue (Land-
Based)
WMD/Hazardous
Materials
Response and
Decontamination
Fatality
Management
On-Site Incident
Management
Mass Care
(Sheltering,
Feeding, and
Related Services)
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Start: Initial
call received
Medical Surge
Linked
Capabilities
Relationship
Capability Activity Process Flow
Emergency Triage and Pre-Hospital
Treatment
Patients provided
Dispatch notification
Treatment location identified
Provide assessment to management
Track patient information
Transfer deceased
Provide patient tracking
information
Transfer care of affected,
uninjured victims
Transfer patients in need of
higher medical care
Provide sitreps
Fire Incident
Response Support
Emergency
Public Safety and
Security Response
Target Capabilities List 445
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Resource Element Description
Resource Elements Components and Description
Command, Control,
Communication, Coordination
(C4) Infrastructure
NIMS compliant Emergency Medical Services (EMS) C4 component
integrated with local, State and Federal C4 components. While any direct
jurisdictional linkages to Federal components are not meant to bypass
State C4 components, this may be appropriate under certain conditions
Emergency Medical Services
Communication System
A State interoperable EMS communication system capable of coordinating
cross-jurisdictional EMS operations and supporting State EMS command,
control, and coordination. This system must enable communications among
pre-hospital providers, EMS operations, hospital facilities, public health and
safety, and emergency management.
Emergency Medical Task Force Per NIMS, any combination (within span of control) of resources (e.g.,
ambulances, rescues, engines, squads) assembled for a medical mission, with
common communications and a leader (supervisor).
Emergency Medical Services
preparedness assessment
capability
The capacity to assess national, State and local triage and pre-hospital
treatment capabilities in support of the National Preparedness Guidelines and
coordinated with the Federal Interagency Committee on EMS, and the ability
to coordinate pre-event emergency preparedness efforts
Planning Assumptions
General
The primary role of the EMS system during an incident is triage, treatment and transportation of
patients to definitive care facilities. The EMS system will have a graded response and may be
required to adopt alternate standards of care from the norm depending on the locality, demographics,
type of incident and number of people affected. At any point of an incident or outbreak, there could
be spikes or reductions in pre hospital needs.
EMS will coordinate scene safety, security and law enforcement will investigate needs with law
enforcement authorities.
Neighboring States/jurisdictions may resist accepting patients that are contaminated or infectious.
The national capacity requirement should focus on maintaining the integrity of the health care system
and delivery of health care services to the general population. As the incident wears on through
potential multiple phases, relief of medical staff will become necessary.
An unknown percent of EMS workers will become injured/ill during any given incident rendering
them unavailable for duty.
Planning, response, and preparedness activities should focus on reducing morbidity and mortality
rates, which will vary based upon the type of agent involved, time, geography, and availability of
resources.
Non-standard dispatch, triage and treatment criteria will need to be applied due to the huge demands
on limited health care resources.
Special needs populations (i.e., pediatrics, geriatrics and the disabled) will need to be given particular
consideration.
Information will need to be provided in multiple languages.
446 Target Capabilities List
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
Public Health Emergency under HHS authority and a Stafford Act Emergency declaration will be
declared in order to obtain needed Federal resources.
Response to the demand for emergency medical services will require an altered standard approach to
treatment and transport of injured or ill patients.
In areas with climate extremes, EMS systems will need the ability to create sheltered (warmed or
cooled, as needed) treatment areas.
EMS systems are functioning close to peak capacity at time of incident.
Professional responders and volunteers may fail to participate as expected due to dual roles in
emergency care delivery and/or fear of the unknown.
EMS systems will have education, licensure and credentialing systems in place consistent with
national standards.
States will have in place trauma and triage protocols identifying transportation of large numbers of
victims across regional and State boundaries to assure appropriate distribution of patients.
Local, regional and response agencies will have access to specialized medical resources from
public/private sector agencies and academia.
EMS responders will have participated in multi-disciplinary exercises with State and local emergency
management agencies, fire-rescue, public health, hospitals, law enforcement and other related
agencies.
Patient transportation to and from airheads and medical treatment facilities (MTFs) will be
problematic due to excessive congestion on local roads and limited patient movement alternatives
(e.g., rotary wing lift)
Scenario Specific
For Biological (Communicable) events (e.g., plague, avian flu), assume 20 – 30% of the population
is affected, with 50% of the sick requiring transport. Duration of EMS role is days to months.
Assume 2 EMS personnel per transport vehicle. Numbers reflect 200–300 % increase in average
daily activity
For Biological (Non-communicable) events (e.g., anthrax – 330,000 exposures), assume 4% of
exposed become infected (13, 000 infected), with 25% of infected population requiring transport.
Duration of EMS role is days to weeks. Assume 2 EMS personnel per transport vehicle. Majority of
patient transports will occur in the first week.
For Chemical events, assume 100% of exposed population, with 25% of exposed population
requiring transport (up to 75% of victims in a major incident will self-transport). Duration of EMS
role is hours to days. Assume 2 EMS personnel per transport vehicle; each ambulance transporting
twice. On-scene: 1:4 ratio of personnel to patients. Majority of transports will be in the first hours.
For Explosive events (may be multiple IEDs), assume 100 fatalities and 500 injured per each major
IED, with 50% of injured requiring transport. Duration of EMS role is hours. Assume 2 EMS
personnel per transport vehicle (approx. 125 ambulances, each transporting twice). On-scene: 150
EMS personnel (1:4 ratio of personnel to patients). Majority of transports will be in the first hours.
For Radiological Dispersion Device events, assume 180 fatalities, 270 injuries, up to 20,000
exposed/ potentially exposed, with 50% of injured requiring transport. Duration of EMS role is
hours. Assume 2 EMS personnel per transport vehicle (135 ambulances - each ambulance
transporting only one patient due to decontamination requirements). On-scene: 135 EMS personnel
Target Capabilities List 447
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
(1:2 ratio of personnel to patients due to safety and logistic concerns). Injuries include blast, burn,
radiological exposure, and trauma.
For Nuclear events (10 kiloton), assume several hundred thousand victims over thousands of square
miles. Duration of EMS role is hours to days due to logistical issues. Assume only EMS personnel
with specialized training and equipment can enter on-scene. EMS personnel receive decontaminated
victims. 10s of 1000s EMS personnel will be required. Injuries include blast, burn, radiological
exposure, and trauma.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Command, Control,
Communications,
and Coordination
(C4) Infrastructure
Resource
Organization
1
Per Joint Field
Office
Federal
Direct Operations
Activate Triage and
Pre-Hospital
Treatment
Demobilize
Command, Control,
Communications,
and Coordination
(C4) Infrastructure
Resource
Organization
1 Per State State
Direct Operations
Activate Triage and
Pre-Hospital
Treatment
Demobilize
Command, Control
Communications,
and Coordination
(C4) Infrastructure
Resource
Organization
1 Per Jurisdiction Local
Direct Operations
Activate Triage and
Pre-Hospital
Treatment
Demobilize
Emergency
Medical Services
Communication
System
Resource
Organization
1 Per State State
Direct Operations
Emergency
Medical Task Force
Resource
Organization
1 Minimum per State State
Triage
Provide Treatment
Transport
Emergency
Medical Services
preparedness
assessment
capability
Resource
Organization
As needed Federal/State/
Local
Direct Operations
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
448 Target Capabilities List
RESPOND MISSION: EMERGENCY TRIAGE AND PRE-HOSPITAL TREATMENT
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Modular Emergency Medical System: Concept of Operations for the Acute Care Center. U.S. Army Soldier and
Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003.
5. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
6. Emergency Response Training Necessary for Hospital Physicians/Nurses That May Treat Contaminated
Patients. Standard interpretation. Occupational Safety and Health Administration. March 1999.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22710.
7. Emergency Response Training Requirements for Hospital Staff. Standard interpretation. Occupational Safety
and Health Administration. April 1997.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22393.
8. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
9. Medical Personnel Exposed to Patients Contaminated With Hazardous Waste. Standard interpretation.
Occupational Safety and Health Administration. March 1992.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609.
10. Training Requirements for Hospital Personnel Involved in an Emergency Response of a Hazardous Substance.
Standard interpretation. Occupational Safety and Health Administration. October 1992.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20911.
11. National Bioterrorism Hospital Preparedness Program, FY 2005 Continuation Guidance, HRSA Announcement
5–U3R–05–001. U.S. Department of Health and Human Services (HHS), Health Resources and Services
Administration. http://www.hrsa.gov/bioterrorism/.
12. Best Practices for Hospital-Based First Receivers of Victims from Mass Casualty Incidents Involving the
Release of Hazardous Substances. Standard interpretation. Occupational Safety and Health Administration.
December 2004. http://www.osha.gov/pls/oshaweb/.
13. E2413–04 Standard Guide for Hospital Preparedness and Response. ASTM International. January 2005.
http://www.astm.org/cgi-
bin/SoftCart.exe/DATABASE.CART/REDLINE_PAGES/E2413.htm?L+mystore+hdvu4953
14. National Disaster Medical System. U.S. Department of Homeland Security. 2004. http://ndms.dhhs.gov/.
15. National EMS Education Agenda for the Future: A Systems Approach. U.S. Department of Transportation,
National Highway Traffic Safety Administration. 2000. www.nhtsa.dot.gov
16. Protecting Emergency Responders, Volume 3. Safety Management in Disaster and Terrorism Response.
National Institute of Occupational Safety and Health. Rand Science and Technology. 2004.
17. Interim National Infrastructure Protection Plan. U.S. Department of Homeland Security. February 2005.
18. Model Trauma System Planning and Evaluation. Health Resources and Services Administration, U.S.
Department of Health and Human Services
Target Capabilities List 449
RESPOND MISSION: MEDICAL SURGE
MEDICAL SURGE
Capability Definition
Medical Surge is the capability to rapidly expand the capacity of the existing healthcare system (long-
term care facilities, community health agencies, acute care facilities, alternate care facilities and public
health departments) in order to provide triage and subsequent medical care. This includes providing
definitive care to individuals at the appropriate clinical level of care, within sufficient time to achieve
recovery and minimize medical complications. The capability applies to an event resulting in a number
or type of patients that overwhelm the day-to-day acute-care medical capacity. Planners must consider
that medical resources are normally at or near capacity at any given time. Medical Surge is defined as
rapid expansion of the capacity of the existing healthcare system in response to an event that results in
increased need of personnel (clinical and non-clinical), support functions (laboratories and radiological),
physical space (beds, alternate care facilities) and logistical support (clinical and non-clinical equipment
and supplies).
Outcome
Injured or ill from the event are rapidly and appropriately cared for. Continuity of care is maintained for
non-incident related illness or injury.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports Emergency Support Function:
(ESF) #8: Public Health and Medical Services.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.C1b 1.5.1
Establish a healthcare system to receive and appropriately treat incident specific casualties or
illnesses. This system should be composed of multiple resources from State, sub-State and
community resources
Res.C1b 1.9.7.2
Coordinate with WMD/hazmat to develop plans for managing/decontaminating self-presenting
contaminated victims off-site
Res.C1b 1.3.8
Identify local, State, sub-State, and interstate mental health and substance abuse professionals or
paraprofessionals by survey
Res.C1b 1.9.1
Integrate local, State, and regional mental health and substance abuse professionals or
paraprofessionals in response planning, exercises, and drills
Res.C1b 1.11.5
Ensure emergency system patient transport and tracking systems are interoperable with national
and Department of Defense systems
450 Target Capabilities List
RESPOND MISSION: MEDICAL SURGE
Res.C1b 1.10.3
Ensure that comprehensive stress management strategies and programs are in place and available
to all emergency responders, support personnel, and healthcare professionals
Res.C1b 1.4.2 Develop medical mutual aid agreements for medical facilities and equipment
Res.C1b 1.15.4 Develop surge capacity plans for Acute Care hospitals
Res.C1b 1.15.5
Coordinate with community healthcare systems when developing surge capacity plans for Acute
Care hospital
Res.C1b 1.14.2
Ensure facility based evacuation plans include identification of receiving facilities and
transportation assets. Transportation assets should be coordinated and planned out with response
partners
Res.C1b 1.14
Develop healthcare system evacuation plans to include receiving facilities and transportation
assets that are coordinated on a regional basis
Res.C1b 1.14.1 Identify adequate evacuation transportation assets and receiving facilities with adequate assets
Res.C1b 1.15.3 Develop plans to mitigate identified hazards to medical treatment facilities
Res.C1b 1.11.3 Develop electronic medical records for recording treatment provided and patient self-reporting
Res.C1b 1.3.11 Develop plans to identify staff, and equipment and resources to operate alternate care facilities
Res.C1b 1.15.1 Develop plan to restrict access and secure healthcare and surge facilities
Res.C1b 1.5.6
Develop a local/State regional pharmaceuticals management system that captures current
inventory of Metropolitan Medical Response System, Health Resources and Services
Administration-hospital, CHEM-PACK caches; ensures a sufficient supply of pharmaceuticals to
provide prophylaxis for 3 days to first responders and their families, other key incident
response/management personnel, and the general public as determined by local authorities; and
tracks the dispensing of pharmaceuticals during the incident
Preparedness Measures Metrics
The healthcare system has the capacity to complete triage, treatment, and initially stabilize
500 cases per million population for patients with symptoms of acute infectious disease –
especially smallpox, anthrax, plague, tularemia, and influenza
Yes/No
The healthcare system has the capacity to complete triage, treatment, and initially stabilize
50 cases per million population for patients with symptoms of acute botulinum
intoxication, acute chemical poisoning, and nerve agent exposure
Yes/No
The healthcare system has the capacity to complete triage, treatment, and initially stabilize
50 cases per million population for patients suffering burn or trauma
Yes/No
The healthcare system has the capacity to complete triage, treatment, and initially stabilize
50 cases per million population for patients manifesting the symptoms of radiation-
induced injury – especially bone marrow suppression
Yes/No
A process is in place to project the demand for Medical Surge (e.g. how many people will
need treatment, how long it will take to secure facilities).
Yes/No
A scalable patient tracking system is in place Yes/No
Plan for community based surge hospital bed surge capacity is in place Yes/No
A 50-bed nursing subunit – per 50,000 population – can be staffed Yes/No
At least one healthcare facility that is identified in each defined sub-State region is able to
Yes/No
Target Capabilities List 451
RESPOND MISSION: MEDICAL SURGE
support initial evaluation and treatment of at least 10 total adult and pediatric patients at a
time in negative pressure isolation within 3 hours from the event
All acute care hospitals have capacity to maintain, in negative pressure isolation, at least
one suspected case of a highly infectious disease or a febrile patient with a suspect rash or
other symptoms of concern who might be developing a highly communicable disease
Yes/No
Sufficient supply of pharmaceuticals are stored at the healthcare facility to provide
prophylaxis for 3 days to hospital personnel (medical and ancillary staff), ,their family
members, and hospital based emergency first responders and their families
Yes/No
Sufficient supplies of Personal Protective Equipment are available for current and surge
healthcare personnel to work safely within the limits defined by their SOPs
Yes/No
Secure and redundant communications system that provide connectivity during a
catastrophic event among healthcare facilities and all other responder disciplines at all
jurisdictional levels is in place
Yes/No
Updated medical surge plans have been developed in conjunction with critical multi-
disciplinary partners (public health, emergency management agency (EMA), law
enforcement, etc.)
Yes/No
Plans address the use of existing facilities (e.g. hospitals, clinics, extended care facilities) Yes/No
Plans address the identification and setting up of additional facilities (e.g. provision of
personnel, equipment, pharmaceuticals) when needed.
Yes/No
Plans address patient and resource transportation (e.g. identification and availability of
traditional and non-traditional resources).
Yes/No
Plans address facility based evacuation (e.g. identification of receiving facilities,
coordination of transportation assets).
Yes/No
Plans to operate without public utilities for 72 hours are in place Yes/No
Plans for the set up, staffing, and operation of alternate care facilities are in place Yes/No
Plans address the treatment of Medical Surge personnel, site staff, and their families (e.g.
medical needs, stress management strategies).
Yes/No
Plans address dissemination of accurate, timely, accessible information to public, media,
support agencies
Yes/No
A data base to track the status of medical surge resources (e.g. medications, medical
professionals) is in place or accessible
Yes/No
A local regional/State regional pharmaceuticals management system is in place that
captures current inventory of Metropolitan Medical Response System, Health Resources
and Services Administration-hospital, CHEM-PACK caches
Yes/No
A local regional/State regional pharmaceuticals management system is in place that
ensures a sufficient supply of pharmaceuticals to provide prophylaxis for 3 days first
responders and their families, and other key incident response/management personnel and
the general public as determined by local authorities
Yes/No
A local regional/State regional pharmaceuticals management system is in place that tracks
the dispensing of pharmaceuticals during the incident
Yes/No
452 Target Capabilities List
RESPOND MISSION: MEDICAL SURGE
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.C1b 2.1.6
Train designated hospital personnel in National Incident Management System (NIMS), National
Response Plan (NRP) and Incident Command System (Hospital Incident Command System)
Res.C1b 2.2.4 Exercise healthcare system, in compliance with appropriate national, State, and local guidance
Res.C1b 2.2.3
Develop and/or implement training, preparedness and exercise programs based on local risk
vulnerability assessment, and lessons learned
Res.C1b 2.1.7
Train designated hospital personnel in recognition and treatment of chemical, biological,
radiological, nuclear, and explosive (CBRNE) hazards
Res.C1b 2.2.5 Exercise medical surge plans
Res.C1b 2.1.1
Develop and conduct competency-based education and training programs for adult and pediatric
pre-hospital, hospital, and outpatient healthcare personnel
Res.C1b 2.1.2 Develop program to train medical and non-medical personnel
Res.C1b 2.1.3 Develop program to train health professions students
Res.C1b 2.2.1
Evaluate emergency management plans through training and multiple methods including drills
and exercises at tribal, local, State and national levels
Res.C1b 2.2.2
Exercise all plans on an annual basis to demonstrate proficiency in responding to bioterrorism,
other infectious disease outbreaks and other public health threats and emergencies
Res.C1b 2.1.5
Develop just-in-time training programs healthcare workers for unfamiliar critical job functions,
and Personal Protective Equipment for specific threats
Preparedness Measures Metric
Hospitals utilize competency-based education and training programs for all hospital
personnel responding to a terrorist incident or other public health emergency
Yes/No
Percent of hospitals that are NIMS/Incident Command System compliant 100%
Percent of acute care facilities that participate in exercises consistent with national and
Joint Commission on Accreditation of Healthcare Organizations requirements
75%
Hospitals and their healthcare partners have an exercise program that conforms with Joint
Commission on Accreditation of Healthcare Organizations, Health Resources and
Services Administration, Center for Disease Control (CDC), NIMS, and Homeland
Security Exercise and Evaluation Program (HSEEP) requirements
Yes/No
State participates in Emergency System for Advance Registration of Volunteer Health
Professionals (ESAR-VHP) Program
Yes/No
Target Capabilities List 453
RESPOND MISSION: MEDICAL SURGE
Performance Tasks and Measures/Metrics
Activity: Direct Medical Surge Tactical Operations
Definition: In response to notification of mass casualty incident, provide overall management and
coordination of medical surge operations.
Critical Tasks
Res.C1b 3.7.1 Implement incident response communications within the healthcare system
Res.C1b 3.4.1 Execute medical mutual aid agreements
Res.C1b 3.6
Provide coordination and support for medical care through incident command/ emergency
operations center in accordance with the NIMS
Res.C1b 3.6.4.1
Coordinate public health and medical services for those individuals who have been isolated or
quarantined
Res.C1b 3.7.2
Provide consistent, accurate and relevant public health and medical information to clinicians,
other responders, and the public in a timely manner
Res.C1b 3.7.3
Coordinate with Emergency Public Information to disseminate public health and safety
information to the public to improve provision of home healthcare
Res.C1b 3.4.5 Implement emergency credentialing and privileging procedures
Performance Measures Metric
Policies are implemented for security of healthcare facilities and its perimeter
during a mass casualty incident or large scale public health emergency
Yes/No
Percent of hospitals in the local regional incident impact area that support the
incident recognizing that most regions will only have a couple of hospitals
90%
Timely public health information is disseminated to improve provision of home
healthcare and other personal, family, and employer actions
Yes/No
Time in which National Disaster Medical System (NDMS) and other hospital asset
reporting and tracking systems are activated
Within 60 minutes from the
incident
Time in which deployment actions for the Health and Human Services (HHS)
Incident Response Coordination Team are initiated
Within 4 hours from the
incident
Time in which the State medical coordinating system is activated Within 2 hours from
notification of the incident
Time in which Federal ESF 8 assets are activated Within 6 hours from
notification of the incident
Time in which deployment actions for the National Disaster Medical System
(NDMS) Disaster Medical Assistance Teams (DMAT) are initiated
Within 6 hours from incident
Time in which deployment actions for the National Disaster Medical System
(NDMS) Disaster Medical Assistance Teams (DMAT) equipment caches are
initiated and activated
Within 24 hours from the
incident
454 Target Capabilities List
RESPOND MISSION: MEDICAL SURGE
Activity: Activate Medical Surge
Definition: In response to a mass casualty incident, activate medical surge through
implementation of surge plan
Critical Tasks
Res.C1b 4.1 Activate healthcare system incident command
Res.C1b 4.4 Consider the implementation of altered standards of care
Res.C1b 4.6
Activate medical surge plans, procedures, and protocols to ensure medical treatment for
populations requiring specialized assistance
Performance Measures Metric
Medical Surge plans are implemented Yes/No
Personnel are available to augment treatment facilities Yes/No
Time in which, for cases of a Catastrophic Incident Supplement (CIS) activation,
Department of Veteran Affairs (VA) Primary Receiving Centers (PRCs) within 500 miles
of an incident venue prepare to terminate non-critical medical services and redirect
available resources for receipt of patients at VA medical facilities. Department of Defense
(DOD) facilities in the United States will respond under the National Response Plan
Pursuant to a Request for Assistance approved by the Secretary of Defense or when
directed by the President. DOD facilities within close proximity of the event may be able
to render assistance under “Immediate Response Authority.”
Within 24 hours from
CIS activation
Development of a reconstitution plan is initiated upon identification of Planning Section
Chief
Yes/No
Activity: Implement Surge Patient Transfer Procedures
Definition: Transition from pre-event bed utilization to access surge capabilities
Critical Tasks
Res.C1b 5.2
Activate alternative care sites and overflow emergency medical care facilities to manage hospital
surge capacity
Res.C1b 5.3
Provide knowledge or visibility of available destination medical care facilities/services and
tracking for mass movement of patients, ensuring patients are matched with transportation and
destinations that provide appropriate levels of medical care
Performance Measures Metric
Systems are in place to identify patients able to be transferred Yes/No
Time in which patients to discharge are identified Within 6 hours from
notification of requirement
to move patients
Resources are available to provide tracking and mass movement of patients Yes/No
Patient transfers are coordinated with local or State Emergency Operations Center
(EOC)
Yes/No
Time in which traditional and non-traditional emergency transport vehicles are Within 3 hours from
Target Capabilities List 455
RESPOND MISSION: MEDICAL SURGE
activated notification
Percent of level of coordination with patient tracking system 100%
Activity: Implement Surge Staffing Procedures
Definition: Maximize staffing levels in accordance with medical surge plans
Critical Tasks
Res.C1b 6.1 Activate healthcare workers’ and volunteers’ call systems
Res.C1b 6.3.1 Support medical surge capability by using volunteer resources
Res.C1b 6.2.1 Mobilize incident-specific medical treatment personnel for pediatrics and adults
Res.C1b 6.2.2 Mobilize non-medical support personnel
Res.C1b 6.3 Assess initial and ongoing need for medical specialists and augment as needed
Res.C1b 6.5 Provide just-in-time training for staff performing non-standard duties
Res.C1b 6.4 Coordinate staff transportation and staging through the State and local EOC
Res.C1b 6.3.2
Coordinate response staffing with Medical Reserve Corps, Metropolitan Medical Response
System, Federal and interstate resources, and nongovernmental organizations and faith-based
groups
Performance Measures Metric
Percent of healthcare organizations involved in surge that implement call-back procedures 100%
Just-in-time materials and instructions are developed and distributed Yes/No
Activity: Receive and Treat Surge Casualties
Definition: Receive mass casualties and provide appropriate clinical care
Critical Tasks
Res.C1b 7.1.2 Provide treatment appropriate to nature of incident and number of injured/ill
Res.C1b 7.3.1
Ensure adequacy of medical equipment and supplies in support of immediate medical response
operations and for restocking supplies/equipment requested
Res.C1b 7.3.3 Coordinate and integrate with local, Federal, and State ESF 8
Res.C1b 7.2.3
Implement comprehensive stress management strategies and programs for all emergency
responders and workers
Res.C1b 7.1.3
Provide short-term mental health and substance abuse behavioral health services to the
community
Performance Measures Metric
Systems are in place to accrue supplies, pharmaceuticals, and equipment to support
facility surge capacity
Yes/No
Percent of patients for whom decontamination is confirmed prior to facility access 100%
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Percent of patients and responders identified, screened, and monitored after an event 100%
Percent of patients tracked from arrival at healthcare system though duration of medical
care
100%
Activity: Demobilize Medical Surge
Definition: Prepare to return healthcare system to normal operations
Critical Tasks
Res.C1b 8.1
Transition from surge to normal operations
Res.C1b 8.2
Implement plan for reconstitution of healthcare system capabilities
Res.C1b 8.3
Conduct After-Action Reviews and prepare report
Performance Measures Metric
Percent of healthcare system conducting an After-Action Review 100%
Linked Capabilities
Linked Capability Relationship
Emergency Operations
Center Management
Medical Surge and Emergency Operations Center Management provide one another
with situation reports. Emergency Operations Center Management also provides
resources to Medical Surge as needed.
Emergency Triage and
Pre-Hospital Treatment
Medical Surge capability receives patients from Emergency Triage and Pre-Hospital
Treatment.
Medical Supplies
Management and
Distribution
Medical Surge capability receives medical resources from Medical Supplies
Management and Distribution.
Critical Resource
Logistics and Distribution
Medical Surge capability receives resources from Critical Resource Logistics and
Distribution.
Emergency Public Safety
and Security Response
Medical Surge receives perimeter security from Emergency Public Safety and Security
Response.
WMD/Hazardous
Materials and
Decontamination
Medical Surge receives decontaminated patients from WMD/Hazardous Materials and
Decontamination.
Mass Care (Sheltering,
Feeding, and Related
Services)
Medical Surge provides medical personnel to Mass Care (Sheltering, Feeding, and
Related Services) to conduct treatment of people in shelters.
Mass Prophylaxis
Medical Surge sends patients to Mass Prophylaxis to receive appropriate protection
(countermeasures) and treatment.
Fatality Management Medical Surge capability provides remains to Fatality Management.
Target Capabilities List 457
RESPOND MISSION: MEDICAL SURGE
458 Target Capabilities List
RESPOND MISSION: MEDICAL SURGE
Resource Element Description
Resource Elements Components and Description
Surge bed capacity for
infectious disease treatment
Beds above the daily bed capacity for triage treatment and initial stabilization for
patients requiring hospitalization with symptoms of acute infectious disease
Other surge bed capacity
Beds above the daily bed capacity for triage treatment and initial stabilization for
patients requiring hospitalization with: (1) symptoms of acute botulinum
intoxication or other acute chemical poisoning; (2) suffering from burns or trauma
or (3) symptoms of radiation-induced injury—especially bone marrow
suppression
Surge Healthcare Staff Unit
Minimum staffing level for an acute care center (50-bed nursing subunit) per 12-
hour shift: 1 physician, 1 physician’s assistant (PA) or nurse practitioner (PN), 6
registered nurses (RN) or a mix of RNs and licensed practical nurses (LPN), 4
nursing assistants/nursing support technicians, 2 medical clerks (unit secretaries),
1 respiratory therapist, 1 case manager, 1 social worker, 1 housekeeper, and 1
patient transporter. Staffing levels will vary and be incident specific. Staffing and
support functions will be more efficient as similar patients are treated at
individual facilities.
Isolation capacity
(1-person)
The capacity to maintain, in negative-pressure isolation, at least one suspected
case of a highly infectious disease or a febrile patient with a suspect rash or other
symptoms of concern who might be developing a highly communicable disease.
Isolation capacity
(10-person)
The capacity to support the initial evaluation and treatment of at least 10 total
adult and pediatric patients at a time in negative-pressure isolation.
Regional pharmaceutical
cache system
A local regional/State regional pharmaceuticals management system that captures
current inventory of Health Resources and Services Administration-hospital,
Metropolitan Medical Response System, CHEM-PACK caches; ensures a
sufficient supply of pharmaceuticals to provide prophylaxis for 3 days for first
responders, their families, other key incident response/management personnel,
and the general public as determined by local authorities; and tracks the
dispensing of pharmaceuticals during the incident.
Personal protective
equipment (PPE)
Adequate personal protective equipment to protect current and additional
healthcare personnel. The quantity and type of PPE will be established based on a
health vulnerability assessment (HVA) and the level of decontamination that is
being designed.
Secure and redundant
communications system
Secure and redundant communications system ensures connectivity during a
catastrophic incident among healthcare facilities, State and local health
departments, emergency medical services, emergency management agencies,
public safety agencies, neighboring jurisdictions, and Federal ESF#8 elements. .
Data reporting system System to report data
Target Capabilities List 459
RESPOND MISSION: MEDICAL SURGE
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Pandemic Influenza scenario. Other scenarios were
reviewed to identify required adjustments or additions to the planning factors and national targets.
This capability may require support from multiple ESFs and capabilities.
HHS Secretary can lift Emergency Medical Treatment and Active Labor Act (EMTALA)
requirements for 72 hours.
Each State should review with HHS other restrictions that may need to be lifted or minimized during
the time of an emergency such as Critical Access Hospitals, Health Insurance Portability and
Accountability Act and Medicare and Medicaid rules.
Triage done in the field will have a significant impact on the subsequent healthcare surge capacity
system.
This capability applies to a wide range of incidents and emergencies including accidental or
deliberate disease outbreaks, natural disasters, nuclear, chemical, and conventional explosive events.
The professionals listed in the following have basic skill sets commensurate with their professional
training and experience qualified by professional licensure and/or industry standards.
There will be a significant problem locating and providing information on displaced family members
as well as victims at treatment facilities.
Federal, State, and local Emergency Response Plans are activated.
Non-Federal hospitals of the National Disaster Medical System, as well as Department of Veteran’s
Affairs (VA) Primary Receiving Center (PRCs) within the local vicinity of the incident are authorized
to provide definitive care to casualties of a catastrophic mass casualty incident. DOD facility support
is available in response to a Request for Assistance that has been approved by Secretary of Defense or
the President
Public Health Emergency and Stafford declaration will be utilized to enable the Secretary of the
Department of Health and Human Services (HHS) to invoke Emergency Hiring Authority and
additional resources for additional healthcare assets.
Alternative Care Facilities (ACFs) are community based medical facilities such as ambulatory
surgical centers, which can be rapidly mobilized for medical surge. ACFs are typically buildings that
serve a medically-related purpose when not requisitioned for use in an emergency to house patients.
Ambulatory Care Centers (ACCs) are buildings of opportunity which can be resourced and staffed to
provide medical care. The Federal Medical Contingency System (FMCS) can also be incorporated
within this structure. These are community facilities that do not necessarily provide a medical
function outside of an emergency, but have the space and access needed to house patients (armories,
auditoriums, conference centers, firehouses, etc.)
Response to the overwhelming demand for services will require non-standard (Altered Standards of
Care) approaches, including: discharge of all but critically ill hospital patients, expansion of hospital
“capacity” by using all available space, less than code compliance beds, relaxation of practitioner
licensure requirements as deemed appropriate, such as ratio of staff to patients, and utilization of
general purpose and special needs shelters as temporary health facilities.
Secondary bacterial infections following any mass casualty event will stress antibiotic supplies.
There will be critical shortages of healthcare resources such as staff, hospital beds, mechanical
ventilators, morgue capacity, temporary holding sites with refrigeration for storage of bodies and
other resources.
Routine medical admissions for acute medical and trauma needs will continue.
Alternate healthcare facility plans are implemented.
460 Target Capabilities List
RESPOND MISSION: MEDICAL SURGE
Emergency Use Authorities will be sought.
Victims and responder monitoring and treatment may be required over a long time frame.
There may be a denigration of healthcare staff numbers for a variety of causes.
A large number (75 percent plus) of victims could self-present without field triage or evaluation.
The “normal” supply chain will likely be disrupted.
Hospital logistical stores will be depleted in the early hours from any large scale event.
Blood supplies will be taxed and significant regional shortages could materialize quickly following a
catastrophic incident. Blood manufacturing, infectious disease-testing, and distribution of tested
blood will be problematic.
There will be a significant increase and demand for specialty healthcare personnel and beds
(biological contagious, burn, trauma, pediatrics) depending on the specific event.
A large number of patients may self-refer to a healthcare facility requiring decontamination.
Healthcare providers are subject to the effects of disasters and may need decontamination,
prophylaxis, or immunization measures before being able to perform their response roles.
Patient transportation to and from airheads and medical treatment facilities (MTFs) will be
problematic due to excessive congestion on local roads and limited patient movement alternatives
(e.g. rotary wing lift).
Public anxiety related to a catastrophic incident will require effective risk communication and may
require mental health and substance abuse services.
During a catastrophic incident, medical support will be required not only at medical facilities, but in
large numbers at casualty evacuation points, evacuee and refugee points, and shelters as well as to
support field operations.
The DHS National Disaster Medical System (NDMS) and HHS U.S. Public Health Service (USPHS)
Commissioned Corps assets will be the first Federal health and medical assets to arrive on the scene
of a catastrophic event. Although they may not arrive at all.
Sub-State regions are able to provide and sustain medical surge capacity in a large-scale public health
emergency or bioterrorism event. Ideally, each sub-State region will contain one acute care hospital,
one emergency medical services agency, and one public health department/district and work with a
multitude of various public agencies as well as private and faith based groups, all of which would
respond to a wide-scale event.
Scenario-Specific
Pandemic Influenza
:
Pandemic is pervasive and not localized.
Worst case scenario would produce 733,000 patients hospitalized on any given day.
Up to 20 percent of those hospitalized (146,600 patients) are critical and will each require a critical
care bed and mechanical ventilation, necessitating staff to patient ratios of 1:2 registered nurses (RN)
(73,300 RNs), 1:10 physicians (14,660 MDs); 1:5 respiratory therapists (29,320 RTs). Ratios should
be consistent with State/sub-State regions
80 percent of those hospitalized (586,400 patients) are non-critical and will require a general medical
bed, necessitating patient to staff ratios of 1:40 physician (14,660 MDs) and 1:20 RN (29,320 RNs).
Vaccine availability will be insufficient and time to produce additional vaccine unacceptably long.
Antiviral drug production will be surged.
Strategic National Stockpile (SNS) will be depleted.
42 million outpatient visits need to be provided with antivirals, antipyretics, analgesics
50 million at home on self care are on over-the-counter (OTC) only.
Target Capabilities List 461
RESPOND MISSION: MEDICAL SURGE
1 percent of the hospitalized patient population (7,338) warrants transfer from one healthcare facility
to another more than 100 miles.
50 percent of the transferring patient population (3,669) will require transfer during one two-month
period; the other half (3,669) during a separate two-month period; averaging 61 patients per day, with
surging to 200 patients per day for one week.
10 percent of transferring patients (total of 733 patients over/during the entire scenario) could travel
by commercial means sans medical attendance en route.
50 percent are ambulatory (total 3,669) but require medical attendance en route at a rate of 1 nurse per
50 patients.
40 percent are restricted to litters (total 2,936) and require medical attendance at a rate of 1 nurse per
20 patients.
50 percent of litter patients are critical and require ventilation and 1 nurse per patient (1,468).
There is a critical need for containment measures to prevent additional disease spread. Specific
counter measures such as social distancing, masks, and hand hygiene should be instituted.
Because of the limited supply and production capacity, there is a need for explicit prioritization of
influenza vaccine based on the risk of influenza complications, the likelihood of benefit from
vaccination, role as an influenza pandemic responder, and impact of the pandemic on maintenance of
critical infrastructure.
Persons of all ages will likely need 2 doses of vaccine, 3-4 weeks apart in order to be protected.
Primary prevention including masks, hand hygiene, and social isolation may be the primary mode of
preventing the spread of disease if vaccine and viral agents are not available in adequate quantities.
Chemical
:
Most likely route of introduction of a chemical exposure in a mass casualty event will be inhalation.
There will be a delay in the identification of the chemical.
All chemicals are toxic depending on the concentration and time spent in that concentration.
Medical treatment facilities have inadequate decontamination capabilities.
Chemical events will result in immediate and potentially life threatening injuries.
Appropriate response will rely on rapid decontamination and a locally deployable, pharmaceutical
cache. ( i.e., Chempack or Metropolitan Medical Response System)
Many potential victims may present themselves to healthcare facilities requiring decontamination.
Nuclear Detonation
:
Triage will be a major issue for care providers.
Decontamination and monitoring will be a major issue.
As a rule of thumb, the sooner the onset of symptoms and the higher the dose received the less likely
the victim will survive.
Generally, invasive (open) procedures should be performed within the first 48 hours on those
receiving significant doses of radiation exposure due to follow on progressive immunocompromised
state.
Critical infrastructure and personnel will be damaged and rendered ineffective for a three mile radius.
Tens of thousands will require decontamination and both short-term and long-term treatment.
The evacuated population will require shelter and food for an indefinite time.
Healthcare facilities and emergency workers in the affected area will be overwhelmed.
462 Target Capabilities List
RESPOND MISSION: MEDICAL SURGE
There will be a significant psychological impact on survivors creating long term mental health
demands.
The effects of the radiation will be prevalent for years creating long term health issues.
Healthcare facilities involved in the affected area will have to be replaced and relocated.
Triage may identify a significant number of patients who have received lethal doses of radiation with
zero chance of survivability who will require palliative care only.
There is a lack of palliative care resources and planning for large numbers of victims.
Timely and accurate emergency public health information/crisis information news releases are vital
for mitigation and prevention of further health issues.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Pandemic Influenza)
Resource
Element
Estimated
Capacity
Scenario
Requirement
Values
Quantity of Resources Needed
Surge bed
capacity for
infectious disease
treatment
733,000 patients
hospitalized on a
given day
Bed capacity above the current daily staffed bed
capacity to allow for triage, treatment, and initial
stabilization for 500 cases per million population for
patients with symptoms of acute infectious disease
Other surge bed
capacity
Bed capacity above the current daily staffed bed
capacity to allow for triage, treatment, and initial
stabilization for:
50 cases per million population for patients with
symptoms of acute botulinum intoxication, acute
chemical poisoning, and nerve agent exposure
50 cases per million population for patients suffering
from burns or trauma
50 cases per million population for patients
manifesting the symptoms of radiation-induced
injury—especially bone marrow suppression
Surge Healthcare
Staff Unit
Staff teams
needed per
12-hour shift
Regional
pharmaceutical
cache system
Personal
protective
equipment (PPE)
The quantity and type of PPE will be established
based on a hazardous vulnerability analysis (HVA)
and the level of decontamination that is being
designed
Secure and
redundant
communications
system
Target Capabilities List 463
RESPOND MISSION: MEDICAL SURGE
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Beds - Surge
capacity for
infectious disease
treatment
Equipment 500
Per million
population
Federal/State/
Local (City,
Intrastate
region)
Receive and Surge
Treat Casualties
Beds - Surge
capacity for other
treatment
Equipment 50
Per million
population
Federal/State/
Local (City,
Intrastate
region)
Receive and Surge
Treat Casualties
Surge Healthcare
Staff Unit (Option
1 – for establishing
acute care center)
Non-NIMS
Resource
Organization
2 Per 50-bed unit
Local
(Intrastate
region)
Receive and Surge
Treat Casualties
Surge Healthcare
Staff Unit (Option
2 - for surge
support to existing
healthcare facility)
Non-NIMS
Resource
Organization
1
Per surge bed
assuming a 1:4 staff
to patient ratio
Local
(Intrastate
region)
Implement Surge
Staffing Procedures
Receive and Surge
Treat Casualties
Surge Healthcare
Staff Unit (Option
2 - for surge
support to existing
healthcare facility
Non-NIMS
Resource
Organization
1.4
Per surge bed
assuming a 1:6 staff
to patient ratio
Local
(Intrastate
region)
Implement Surge
Staffing Procedures
Receive and Surge
Treat Casualties
Isolation capacity
(1-person)
Equipment 1
Per Healthcare
facility
Local
(Intrastate
region)
Receive and Surge
Treat Casualties
Isolation capacity
(10-person)
Equipment 1
Per Regional
healthcare facility
State
Receive and Surge
Treat Casualties
Regional
Pharmaceutical
cache system
Equipment 1
Per Public health
region
State
Receive and Surge
Treat Casualties
Personal protective
equipment (PPE)
Equipment 1
Per Healthcare
provider (person)
State/Local
(City, Intrastate
region)
Receive and Surge
Treat Casualties
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
464 Target Capabilities List
RESPOND MISSION: MEDICAL SURGE
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
5. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
6. Medical Personnel Exposed to Patients Contaminated With Hazardous Waste. Standard interpretation.
Occupational Safety and Health Administration. March 1992.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609.
7. OSHA Best Practices for Hospital-Based First Receivers of Victims from Mass Casualty Incidents Involving
the Release of Hazardous Substances. Occupational Safety and Health Administration. January 2005.
http://www.osha.gov/dts/osta/bestpractices/html/hospital_firstreceivers.html.
8. Altered Standards of Care in Mass Casualty Events. AHRQ Publication No. 05–0043. Agency for Healthcare
Research and Quality. April 2005. http://www.ahrq.gov/research/altstand/.
9. DHS, Office for Domestic Preparedness. Metropolitan Medical Response System (MMRS) Program.
http://fema.mmrs.gov
10. Model Trauma System Planning and Evaluation, self-assessment tool for States, Department of Health and
Human Services, Health Resources and Services Administration, http://www.hrsa.gov/trauma/model.htm,
February 2006.
Target Capabilities List 465
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
MEDICAL SUPPLIES MANAGEMENT AND
DISTRIBUTION
Capability Definition
Medical Supplies Management and Distribution is the capability to procure and maintain pharmaceuticals
and medical materials prior to an incident and to transport, distribute, and track these materials during an
incident.
Outcome
Critical medical supplies and equipment are appropriately secured, managed, distributed, and restocked in
a timeframe appropriate to the incident.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
ESF #1: Transportation
ESF #2: Communications
ESF #5: Emergency Management
ESF #7: Resource Support
ESF #8: Public Health and Medical Services
ESF #13: Public Safety and Security
ESF #14: Long-Term Community Recovery and Mitigation
ESF #15: External Affairs
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.C1c 1.2
Develop plans for establishing staging areas for internal and external medical response
personnel, equipment, and supplies
Res.C1c 1.2.3
Establish strategies for transporting materials through restricted areas, quarantine lines, law
enforcement checkpoints and so forth that are agreed upon by all affected parties
Res.C1c 1.3
Obtain demographic/health-related data to plan for the types of medications, durable medical
equipment, or consumable medical supplies that may need to be provided during an event
(including supplies needed for populations requiring functional or medical care)
Res.C1c 1.1.1
In coordination with the appropriate agencies, develop processes for ensuring the distribution of
medical supplies to shelters
Res.C1c 1.4
Establish procedures for billing and reimbursement of the medication/equipment/supplies that
are dispensed
466 Target Capabilities List
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Preparedness Measures Metrics
Emergency public health and medical material distribution plans are in place Yes/No
Hazard-specific response plan identifies and prioritizes resource needs Yes/No
Plans for the procurement, rotation and maintenance of Federal, State, local stockpiled assets
or private/commercial inventories are implemented
Yes/No
Plans address storage of supplies (e.g. secure, climate controlled).\ Yes/No
Medical treatment facilities and State, county and local governments have coordinated with
medical distributors to develop preplanned worst-case scenario orders that reflect differing
needs for various possible scenarios (chemical, biological attacks, natural disaster)
Yes/No
Frequency with which pre-plan worst-case scenario orders are reviewed and updated Every 6 months
Processes for obtaining and distributing medication, DME, and/or CMS
address what medication/equipment/supplies should be stockpiled versus obtained just in
time
Yes/No
Processes for obtaining and distributing medication, DME, and/or CMS address sources of
medication/equipment/supplies (e.g., vendors, medical facilities, strategic stockpiles)
Yes/No
Processes for obtaining and distributing medication, DME, and/or CMS address staging
locations and distribution sites
Yes/No
Processes for obtaining and distributing medication, DME, and/or CMS address transport of
medication/equipment/supplies to staging locations and distribution sites
Yes/No
Processes for obtaining and distributing medication, DME, and/or CMS address re-supply of
medication/equipment/supplies
Yes/No
Medical treatment facilities and State, county and local government plans reflect input from
local and regional sources of potential medical supplies and pharmaceuticals to lower
dependency on Federal assets
Yes/No
Plans for assuring physical security of medical materiel in transport and distribution are in
place
Yes/No
Distributors’ plans and logistical systems to identify potential sources of excess in their
supply chains that might be diverted to higher need locations are in place
Yes/No
Manufacturers memoranda of understanding (MOUs) to determine collective inventory
accessibility and to ramp up manufacturing capability as needed are in place
Yes/No
Frequency with which the Federal Government receives updates from distributors and
manufacturers on the status of critical items that would prove necessary in a large scale
incident with the focus on likely shortage and bottleneck situations
Every 3 months
Increased inventory levels of critical items are maintained by medical suppliers, equipment,
and pharmaceutical manufacturers and distributors working in conjunction with the
government
Yes/No
Stockpile includes supplies and pharmaceuticals for special populations (i.e. pediatrics and
geriatrics)
Yes/No
Jurisdiction has identified locally available sources of critical medical supplies to use prior
to arrival of external (State/Federal) resources
Yes/No
Jurisdiction has acquired and established access, through memoranda of understanding
(MOUs), contracts or established supply depots, to effective pharmaceuticals (including
medical gases) and medical material in accordance with forecasted needs
Yes/No
Target Capabilities List 467
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Plans address unused resources and disposal of waste materials generated by medical
supplies warehousing operations.
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.C1c 2.1.1
Provide training on various types and models of medical supplies likely to be used in an
emergency situation through government grants and industry-sponsored workshops
Res.C1c 2.2.1
Establish and regularly exercise plans for transporting medical material assets at the Federal,
State, local, and private/commercial levels with specific focus on their transfer between various
levels or organizations
Preparedness Measures Metric
Frequency with which NIMS-compliant courses are held to train emergency coordinators
on plans and procedures
Every 12 months
Frequency with which NIMS-compliant exercise is conducted to ensure that plans and
procedures are understood and executable
Every 12 months
Performance Tasks and Measures/Metrics
Activity: Direct Medical Supplies Management and Distribution Tactical Operations
Definition: In response to a need for medical assets, provide overall management and
coordination for Medical Supplies Management and Distribution
Critical Tasks
Res.C1c 3.1
Provide medical supply management and distribution support to incident response operations
according to Incident Management Team (IMT) assignments in the incident action plan (IAP)
Res.C1c 3.2.1 Request Strategic National Stockpile assets from Centers for Disease Control
Res.C1c 3.2.3
Coordinate and obtain external resources for sustained operations of medical supplies
management and distribution
Res.C1c 3.4 Maintain communications with transportation vendors during distribution of medical supplies
Res.C1c 3.2.4 Coordinate acquisition of private source medical supplies
Res.C1c 3.2.5
Coordinate with medical surge operations and the American Association of Blood Banks
(AABB) Task Force to identify supply levels at the supporting medical facilities for the incident
Res.C1c 3.3
Monitor supply usage and stockpile levels of health facilities, mass prophylaxis sites, and other
critical care venues
Res.C1c 3.2.7 Ensure the timely provision of medical supplies to shelters and mass care and medical facilities
Res.C1c 3.2.8 Provide personnel for shelters and mass care and medical facilities
Res.C1c 3.2.6 Monitor stockpiles levels of medical supplies maintained by private sources
Res.C1c 3.3.1 Process and manage requests for additional medical supply personnel or equipment
468 Target Capabilities List
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Res.C1c 3.2 Provide logistics support for medical supplies management and distribution
Res.C1c 3.5 Provide for financial management and reimbursement of medical supplies
Res.C1c 3.5.1 Coordinate with Center for Disease Control for return of unused Federal assets
Performance Measures Metric
Time in which Strategic National Stockpile (SNS) is requested following medical
surveillance indication of requirement
Within 6 hours from
indication
Activity: Activate Medical Supplies Management and Distribution
Definition: Upon identification of medical resource shortfalls and/or SNS deployment, activate
warehousing operations
Critical Tasks
Res.C1c 4.1 Establish medical supplies warehouse management structure
Res.C1c 4.2 Activate warehousing operations for receipt of medical assets
Res.C1c 4.3 Identify needed transportation assets for medical supplies
Res.C1c 4.4 Identify Technical Advisory Response Unit (TARU) team resource needs
Res.C1c 4.5
Provide and coordinate the use of emergency power generation services at medical supply
warehouse locations
Performance Measures Metric
Time in which Federal medical assets warehouse are activated and fully staffed Within 6 hours from
approved request
Time in which local supplies arrive at warehouse (to be used until Federal/State assets
arrive)
Within 2 hours from
request
Percent of medical supplies and pharmaceuticals that are properly maintained and
arrived in undamaged, serviceable condition and within the expiration date indicated
on each container (bottle, case, vial, etc.)
100%
Time in which backfill of medical support packages from Strategic National Stockpile
(SNS) is initiated
Within 36 hours
Activity: Establish Security
Definition: Upon activation of warehouse, activate Medical Supplies Management and Distribution
Security Plan
Critical Tasks
Res.C1c 5.3.1 Execute plan for credentialing medical supplies personnel
Res.C1c 5.2.1 Ensure security meets medical assets at point of entry into State
Res.C1c 5.3.2
Identify locations that require increased security within the warehouse (such as controlled
substance storage areas)
Res.C1c 5.2.2 Establish security checkpoints in vicinity of medical supplies warehouse and at staging areas
Target Capabilities List 469
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Performance Measures Metric
Percent of appropriate security (e.g. U.S. Marshals, state police, county sheriff, city police) and
credentialing provided at all steps of transportation of pharmaceuticals and supplies
100%
Activity: Repackage and Distribute
Definition: After delivery of medical assets to warehouse facility, repackage pharmaceuticals and
other assets and distribute to Points Of Distribution (PODs) and other health facilities
Critical Tasks
Res.C1c 6.2
Assemble medical supplies warehouse teams (receiving, order management, picking, packaging,
quality control, and shipping)
Res.C1c 6.3 Inventory medical supplies warehouse resource levels
Res.C1c 6.4 Provide quality control/quality assurance for requested medical assets prior to shipping
Res.C1c 6.5 Track re-supply requests for medical supplies
Rec.C1c 6.6 Distribute medical supplies to Points of Distribution (POD), health facilities, and shelters
Performance Measures Metric
Time in which medical resources/SNS at warehouse arrive at points of
distribution (PODs)
Within 12 hours from arrival at
warehouse
Time in which additional medical assets are delivered to POD or other
health facility
Within 36 hours from approval of
request for re-supply
Activity: Recover Medical Resources
Definition: As warehousing activities diminish, activate plan to recover unused medical resources
Critical Tasks
Res.C1c 7.1
Ensure recovery of unused (unopened) pharmaceuticals from Receipt, Storage and Staging site
(RSS), and unused pharmaceuticals and durable items from mass prophylaxis sites
Res.C1c 7.2
Distribute unused but open medical resources within the local health system according to local
policies and plans
Performance Measures Metric
Percent of unused medical assets recovered 100%
Activity: Demobilize Medical Supplies Management and Distribution
Definition: Inventory, reorganize, and reconstitute stockpiles to return to pre-incident levels, and
release personnel from Medical Supplies Management and Distribution duties
Critical Tasks
Res.C1c 8.1 Execute plan to reduce medical supplies warehouse operations as distribution needs ease
470 Target Capabilities List
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Res.C1c 8.2 Dispose of waste materials generated by medical supplies warehousing operations
Performance Measures Metric
Percent of medical waste materials disposed of in accordance with applicable State laws and
regulations
100%
Linked Capabilities
Linked Capability Relationship
Emergency Operations
Center Management
Medical Supplies Management and the Emergency Operations Center communicate
operational and resource needs to one another.
On-Site Incident
Management
On-Site Incident Management identifies medical resource shortages and issues and
communicates this to Medical Supplies Management.
Emergency Public Safety
and Security Response
Emergency Public Safety and Security Response provides perimeter security for
Medical Supplies and Management, including transport, warehouse, and distribution site
security.
Mass Care (Sheltering,
Feeding, and Related
Services)
Medical Supplies Management provides the stockpiling, storage, and distribution of
medication, durable medical equipment, and consumable medical supplies that may be
needed at general population shelters and functional and medical support shelters.
Critical Resource
Logistics and
Distribution
Critical Resource Logistics and Distribution provides non-medical resources to Medical
Supplies Management
Mass Prophylaxis Following a re-supply request from Mass Prophylaxis, Medical Supplies Management
provides the request medical resources.
Target Capabilities List 471
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Direct Medical
Supplies
Management
and Distribution
Tactical
Operations
End: Return to pre-incident
“ready” status
Activate Medical
Supplies
Management and
Distribution
Start: Indication of
local medical
resources nearing
depletion
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Identify medical resource
shortfall(s)
Ready to open warehouse
Warehouses ready to receive assets
Establish Security
On-Site Incident
Management
Emergency
Operations
Center
Management
Demobilize
Medical Supplies
Management and
Distribution
Resources repackaged and
ready for transport
Recover Medical
Resources
Delivery of SNS and medical
assets to warehouse
Medical resources
returned appropriately
Provide finalized tracking report
Medical resource shortages
and issues identified
Repackage and
Distribute
Perimeter security provided
Critical Resource
Logistics and
Distribution
Non-medical
resources provided
Non-medical resources provided
Mass
Prophylaxis
Medical resources provided
Re-supply requested
Notification of incoming resources
Communicate needs
Re-supply requested and delivered
Medical Supplies Management and
Distribution Capability
Capability Activity Process Flow
Linked
Capabilities
Relationship
Mass Care
(Sheltering,
Feeding, and
Related Services)
Provide the stockpiling,
storage, and distribution
of medical supplies
at shelters
Emergency
Public Safety and
Security Response
472 Target Capabilities List
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Resource Element Description
Resource Elements Components and Description
Stockpile Content Management
Group
Experts in medicine and public health to determine what is required in the
various stockpiles or needs to be supplemented in the existing supply chain,
e.g., Pharmaceuticals Management Group, Medical Supplies Management
Group, Laboratory Supplies Management Group
Strategic National Stockpile
(including Vendor Managed
Inventory)
12-hour Push Package of pharmaceuticals, antidotes, and medical supplies; may
include follow-on vendor managed inventory (VMI) supplies. Store and
maintain medical materiel required for all hazards response.
National Medical Equipment and
Supplies Stockpile
Medical equipment and supplies necessary for a comprehensive all hazards
response that are not currently accounted for in the Strategic National Stockpile
at quantities determined by robust modeling tools and input from experts in the
field
State Pharmaceutical and Supply
Stockpiles
Local Pharmaceutical and
Supply Stockpiles
SNS Technical Advisory
Response Unit (TARU)
The Health and Human Services Strategic National Stockpile program teams of
emergency responders and logistics experts who arrive with the first shipment
of the SNS to provide technical assistance related to receipts of medical material
from SNS. Staff associated with the Strategic National Stockpile that can
coordinate delivery and distribution of stockpile assets with State and local
officials
Receipt, Staging, and Storage
(RSS) site, staff, and equipment
The warehouse (minimum 12,000 square feet, loading dock,
temperature/humidity control, emergency electrical power, secure area for
controlled substances) from which the SNS materiel will be received and
distributed. Includes staff for operations management, inventory control,
distribution dispatch, and repackaging. Includes inventory management system
and equipment. RSS includes: 1) staff necessary to activate and manage RSS
and 2) Material Handling Equipment and Supplies and an inventory
management system required to efficiently run receipt, staging, and storage site
Interagency warehouse and team Location to house critical resources as transferred from State, donated by non-
governmental organizations (NGO) and public. Includes staff necessary to
activate, set up and manage warehouse and inventory; includes inventory
management equipment and systems required to efficiently run warehouse.
Team includes: 1) staff necessary to activate, set up and manage warehouse and
inventory and 2) inventory management equipment and systems required to
efficiently run warehouse.
National Tracking System National system that captures and tracks resource availability -- includes locally
managed tracking systems to feed into the larger system
Federal Staging Area Locations at incident site to receive Federal assets
Transportation vehicles and
personnel
To move large amounts of critical resources (trucks, planes, boats, trains)
Transportation Coordinator Per National Response Plan (NRP) Emergency Support Function #1 (ESF#1);
coordinates critical resource transportation needs between Federal, State, local
and private agencies and organizations
Target Capabilities List 473
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Resource Elements Components and Description
Security personnel Provides required physical security to pharmaceuticals and medical supplies
while stockpiled prior to an incident, in transit to and incident and while on-site
during an incident
All –Hazards Core Supply
Formulary
Basic supplies needed for each adult casualty in any type of disaster scenario.
Supplies may include:
• Instruments/ Equipment (BP Cuffs, Disposable; BP Manometer; Batteries-
AA, AAA, D, C, 1 gross per incident; Artificial Resuscitator Bag, 10%
child, 5% infant).
• Sharps: NDL/ Syringes (10cc Needless Syringes; 60cc Needless Syringes;
3cc 23 G1” Safety Syringes; 3cc 23 G1 1/2” Safety Syringes TB Syringes;
Insulin Syringes; Blunt Plastic Cannula; Lever Lock Cannula; 18G 11/2”
Safety Needles; 20G 11/2” Safety Needles; Sharps Container; 20G IV
Start Catheter; 18G Start Catheter; Winged Infusion Set 23GA &25GA).
• Irrigation Solutions (Normal Saline Irrigation Solution- 2000cc; Sterile
Water Irrigation Solution- 2000 cc).
• IV Access/ Supplies (IV Start Kits; Micro Drip Tubing; Adult Drip
Tubing; Blood Admin. Tubing; Disposable IV Pressure Bag; Metri Set
Tubing; Arterial Line Tubing).
• IV Solutions (LR 1000cc; NS 1000cc; Central Vein Catheter Kit; Multi
Lumen Central Catheter Kit; Long Arm Board; Short Arm Board;
Stopcock).
• Linen (Disposable Sheets; Disposable Pillows; Disposable Pillow Covers).
• Hand Hygiene (Providine/Iodine Scrub Brushes; PCMX Scrub Brushes- 1
box per 100 casualties).
• Patient Personal Care Supplies (Bath Basin; Emesis Basin; Facial Tissues;
Bedpan; Urinal; Belonging Bag; Regular Soap; Mouth Care Supplies).
• Miscellaneous (Sterile Lubricant; Alcohol Wipes; PVP Wipes; Tongue
Depressors; 5 in 1 Connectors; Garbage Liners; Blood Glucose Testing
Supplies; Waterproof Markers; Body Bag- 25 per 100 casualties; Blank
Labels/ Tags; Individual Bottled Drinking Water).
All Hazards Pediatric Supply
Formulary
Basic supplies needed for each pediatric casualty in any type of disaster
scenario. Supplies may include:
• Instruments/ Equipment (Disposable BP Cuffs- Neonatal, Infant, Child,
Small Adult; Artificial Resuscitator Bag Masks- Ped, Infant).
• Patient Personal Care Supplies (Bath Basin, Cotton Swabs; Facial Tissues;
Diapers; Pacifier; Belonging Bag; Cotton Balls).
• Respiratory System Supplies (Nasal Airways; Oral Airways; Oxygen
Cannulas; Oxygen Masks).
• ER/Trauma/Surgical Supplies (Scalpel #11; Sutures-to be ordered
individually, by box; General Instruments Tray; Facial Suture Tray; Chest
Drainage System; Buretol Tubing-60 drops; Thoracostomy Tray; Chest
Tubes- 8, 10, 12, 24, 32; Thoracic Catheter with Tubing and Container;
Sterile Towels; Sterile Sheets; Small Sterile Basins; Electrodes;
Monitoring Electrodes).
• Dressings (Bandage Scissors; 2X2 Dressings; 4X4 Dressings; Adhesive IV
Dressing; 4” Bandage Rolls; 1” Paper Tape; Adhesive Bandages).
474 Target Capabilities List
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Resource Elements Components and Description
• Linen (Disposable Sheets; Disposable Pillows; Disposable Pillow Covers).
• Muscle/ Skeletal Supplies (Limb Restraints).
• GI System Supplies (Anti-Reflux Valve- 10, 12, 14; Feeding Tubes- 5,8).
• Sharps: NDL/ Syringes (Bulb Syringes; Safety Syringes- 21, 25; Filter
Needles; Catheter Tip Syringe 60cc; Sharps Container; Luer Lock
Syringes- 20cc, 60cc; Syringes- 1, 3, 5, 10cc).
• IV Access/ Supplies (IV Start Kits; Stopcock; T-Connector; IV Start
Catheter- 18, 20, 22, 24; Arm Boards- Infant, Child; Blood Administration
Tubing; IV Filters-.22 micron, 1.2 micron; Syringe Pump Tubing; Micro
Drip Tubing).
• IV Solutions (Glucose Water; NS 10cc; NS 1000cc).
• Irrigation Solutions (Normal Saline Irrigation Solution- 2000cc; Sterile
Water Irrigation Solution- 2000 cc).
• Miscellaneous (Sterile Lubricant; Alcohol Wipes; Alcohol Swab Sticks;
Tongue Blades; Heel Warmers; Tape Measure; Body Bag; Disposable
Linen Savers; Safety Pins; Povodine Iodine Swab Sticks; Povodine Iodine
Wipes; Hydrogen Peroxide; Individual Bottled Drinking Water).
Chemical Disaster Supply
Formulary
Supplies needed to supplement the Core or Pediatric Formulary for chemical
disasters. Supplies may include:
• Respiratory System Supplies (ABG Kits; Nasal Airways- 6.5, 7.0, 7.5, 8.0-
1 box per 100; Oral Airways-3, 4, 6-1 box per 100; Oxygen Cannulas;
Oxygen Masks; Yankauer Suction Tips; Connecting Tubing; Suction
Kit/Cup 14FX22).
• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers).
• Irrigation Solution (Sterile Water Irrigation Solution 3000cc).
• Miscellaneous (Disposable Sheet; Balanced Salt Solution).
Biological Disaster Supply
Formulary
Supplies needed to supplement the Core or Pediatric Formulary for biological
disasters. Supplies may include:
• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers).
• Miscellaneous (50 Micron Mask; Stomach Tube).
Radiological Disaster Supply
Formulary
Supplies needed to supplement the Core or Pediatric Formulary for radiological
disasters. Supplies may include:
• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers).
• Irrigation Solution (Sterile Water Irrigation Solution 3000cc).
• Miscellaneous (Disposable Sheet; Balanced Salt Solution).
Nuclear Disaster Supply
Formulary
Supplies needed to supplement the Core or Pediatric Formulary for nuclear
disasters. Supplies may include:
• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers).
• Irrigation Solution (Sterile Water Irrigation Solution 3000cc).
• Miscellaneous (Disposable Sheet; Balanced Salt Solution).
Explosive Disaster Supply
Formulary
Supplies needed to supplement the Core or Pediatric Formulary for explosive
disasters. Supplies may include:
Target Capabilities List 475
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Resource Elements Components and Description
• GU System Supplies (Urine Multi-Stix; Foley Catheter Trays; Urometers).
• ER/Trauma/Surgical Supplies (Scalpel Blade Holer-#3, #4; Scalpel
Blades- #10, #11, #15, #20; Disposable Safety Scalpel #15; Suture Sets;
Silk & Gut Sutures- ordered in bulk by facility; Thoracostomy Tray;
Peritoneal Lavage Tray; Chest Tubes- 12, 24, 28, 36; Chest Drainage Tube
with Container; Sterile Towels; Sterile Sheets; Large Sterile Basin; Small
Sterile Basin; Trocar Chest Tube; Skin Stapler; Electrodes; Tracheotomy
Kit).
• Dressings (Bandage Scissors; Impregnated Dressing; 3” Dressing; ABD
Pads; 4X4 Dressing; Self Adhering Dressing; 4X4 Sponges; 4” Bandage
Rolls; 3” Elastic Bandage; 4” Elastic Bandage; 6” Elastic Bandage; Sterile
Cotton Applicators; 2” Porous First Aid Tape; 3” Porous First Aid Tape;
Adhesive Bandages; 1” Paper Tape).
• GI System Supplies (Piston Irrigation Sets; Gastric Lavage Kits; Anti-
Reflux Valve- 8, 12, 18).
• Irrigation Solutions (Normal Saline Irrigation Solution- 2000cc; Sterile
Water Irrigation Solution- 2000 cc).
• Muscle/Skeletal Supplies (Medium Slings; Large Slings; Small Cervical
Collars; Universal Cervical Collars: Knee Immobilizers; Wrist Restraints;
Restraint Belts; OCL Splints Plaster; Plaster Impregnated Gauze Roll 4”).
Staff Supply Formulary Supplies needed for each hospital person in a disaster. Supplies may include:
• Hand Hygiene (Personal Hand Foam Sanitizer).
• Protective Gear (Sterile Gloves- all sizes- 1 box per 100 casualties; Exam
Gloves, Medium- 1 box per 25 casualties; Latex Free Gloves Medium- 1
box per 25 casualties; Fluid Resistant Gowns; Masks; Goggles; Shields;
Balanced Salt Solution for Eye Wash; Isolation Gown- 4 per staff
member; Fluid Resistant Gowns- 1 per staff member; hair Cover; Liquid
Scrub Soap; Individual Bottled Drinking Water).
Planning Assumptions
For contagious and/or pandemic diseases (and possibly other scenarios), there will be limited or no
implementation of cooperative agreements due to quarantine or actual or perceived contamination
and/or widespread infection.
Prior to dying, many people would use considerable healthcare resources because of their critical
condition at admission.
Existing medical devices (e.g., ventilators, respiratory equipment) will be inadequate. Manufacturers
of large, expensive medical devices typically manufacture product on an “as needed” basis with a
minimum of a 2–4 week lag time. Even surge production capacity is likely to be inadequate for short-
term requirements.
Surge capacities of pharmaceutical and medical product manufacturers and distributors will diminish
compared with projected capabilities due to high absenteeism in all commercial sectors resulting from
employees being directly affected by the scenario or choosing to stay home with families.
Development of plans, procedures, and protocols for resource management in accordance with the
National Incident Management System (NIMS) (Res.B.1.5) will be outlined within the Planning
capability.
476 Target Capabilities List
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Transport of medical supplies, pharmaceuticals, and laboratory supplies from federally controlled
sources to the Federal mobilization base camp is the responsibility of the Federal Government.
Transport of medical supplies, pharmaceuticals, and laboratory supplies from a Federal mobilization
base camp to the State staging area is the responsibility of the State unless otherwise negotiated with
the Federal Government.
The originating entity is responsibly for transporting non-federally owned supplies to an interagency
warehouse unless otherwise negotiated with Federal or State organizations.
Any of the services, performance measures, or capabilities can and should be applied to the supply
chain for laboratory testing materials as well. Although this does not necessarily fall directly under
medical supplies, it is crucial that the diagnostic supplies to support medical functions are not
forgotten or ignored.
The capability to keep track of potential shortages of critical drugs during a large-scale event already
exists within the Food and Drug Administration’s Center for Drug Evaluation and Research. This
program can serve as a viable model for beginning such a program with medical supply distributors
and manufacturers. This process absolutely must be initiated as soon as possible with the government
providing necessary assurances to maintain commercial confidentiality. Destruction of physical
structures over large areas will result in structures without permanent addresses which complicates or
prohibits shipment of DEA scheduled drugs (controlled substances). Planning for alternatives should
be initiated.
During large scale contaminating event (CBNRE), provisions need to be made for transition of large
volume of medical supplies into warm/hot zones without losing use of vehicles to contamination.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
Stockpile Content
Management Group
Continuous open dialogue to
determine the current requirements
3 management groups
Strategic National
Stockpile (including
vendor managed
inventory)
Response capability will leverage
both Federal stockpiles and
commercial capabilities.
Resource quantities needed must
be determined by robust modeling
tools to estimate stockpiles
requirements based on the national
planning scenarios and anticipated
resultant patients/populations
Strategic National
Stockpile Technical
Advisory Response
Unit (TARU)
1 Technical Advisory Response
Unit per State/municipality
receiving stockpile assets directly
from stockpile
State Staging Area
(Receipt, Staging, and
Storage Site, RSS)
2 receipt, staging, and storage sites
per State
Minimum of 2 receipt, staging, and
storage sites per State
Interagency warehouse Establish warehouse sites as
necessary based on volume of
donated goods
1 warehouse minimum, based on
incident need
Target Capabilities List 477
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources
Needed
Transportation vehicles
and personnel
Climate controlled and non-climate
controlled transport capacity for all
pharmaceuticals, and medical and
laboratory diagnostic supplies
Volume capacity of vehicle
multiplied by amount of resource
needed
Transportation
Coordinator
Scenario will require resources
from all over to help support the
incident, therefore coordinator will
need to have overarching
capability to monitor and
troubleshoot movement of
resources
1 to sit in Emergency Operation
Center (EOC) / can be component
Emergency Support Function
(ESF) #1
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
National Medical
Equipment and
Supplies Stockpile
Equipment 1 Federal Repackage and
Distribute
State
Pharmaceutical and
Supply Stockpiles
Equipment State Repackage and
Distribute
Local
Pharmaceutical and
Supply Stockpiles
Equipment 20%
increase
Increase over usual
supply at local
medical treatment
facilities
Local Repackage and
Distribute
SNS Technical
Advisory Response
Unit (TARU)
Federal
Resource
Organization
1 Per
State/municipality
receiving stockpile
assets directly from
stockpile
Federal Establish Security
Repackage and
Distribute
Receipt, Staging,
and Storage (RSS)
site, staff, and
equipment
Resource
Organization
2 Minimum per State
& territory
State Repackage and
Distribute
Establish Security
Interagency
warehouse
Non-NIMS
Resource
Organization
1 Per incident Local Repackage and
Distribute
Establish Security
National Tracking
System
Network 1 Nationally,
including
jurisdictional
components
Federal Direct Tactical
Operations
Recover Resources
478 Target Capabilities List
RESPOND MISSION: MEDICAL SUPPLIES MANAGEMENT AND DISTRIBUTION
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Federal Staging
Area
Resource
Organization
Not pre-established Federal Repackage and
Distribute
Establish Security
Transportation
Vehicles and
Personnel
Vehicle Depends on incident
need
Federal/ State/
Local
Repackage and
Distribute
Recover Resources
Transportation
Coordinator
Personnel 1 per EOC Federal/ State/
Local
Repackage and
Distribute
Recover Resources
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Sector Specific Plan for the Healthcare and Public Health Sector. U.S. Department of Health and Human
Services. June 2005.
5. Modular Emergency Medical System: Concept of Operations for the Acute Care Center. U.S. Army Soldier and
Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003.
6. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January
2004.www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
7. Strategic National Stockpile. Centers for Disease Control and Prevention. January 2005.
www.bt.cdc.gov/stockpile.
8. Mass Antibiotic Dispensing-Managing Volunteer Staffing. Centers for Disease Control and Prevention.
December 2004. www.phppo.cdc.gov/PHTN/webcast/antibiotic2/default.asp.
9. Mass Antibiotic Dispensing: A Primer. Centers for Disease Control and Prevention. June 2004.
www.phppo.cdc.gov/phtn/antibiotic/default.asp.
10. National Disaster Medical System. U.S. Department of Homeland Security. 2004. www.ndms.dhhs.gov/.
11. DHS, Office for Domestic Preparedness, Major Metropolitan Response System (MMRS) Program.
http://fema.mmrs.gov.
12. “Medical-Surgical Supply Formulary by Disaster Scenario” Presented by the Association for Healthcare
Resource & Material Management, the Health Industry Distributors Association, and the Health Industry Group
Purchasing Association.
Target Capabilities List 479
RESPOND MISSION: MASS PROPHYLAXIS
MASS PROPHYLAXIS
Capability Definition
Mass Prophylaxis is the capability to protect the health of the population through the administration of
critical interventions in response to a public health emergency in order to prevent the development of
disease among those who are exposed or are potentially exposed to public health threats. This capability
includes the provision of appropriate follow-up and monitoring of adverse events, as well as risk
communication messages to address the concerns of the public.
Outcome
Appropriate drug prophylaxis and vaccination strategies are implemented in a timely manner upon the
onset of an event to prevent the development of disease in exposed individuals. Public information
strategies include recommendations on specific actions individuals can take to protect their family,
friends, and themselves.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the Emergency Support Function:
(ESF) #8: Public Health and Medical Services
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.C2a 1.1 Create plans and systems for mass prophylaxis patient movement and tracking
Res.C1c 1.1 Create plans and systems for the transport and tracking of medical supplies and equipment
Res.C2a 1.2
Develop procedures for obtaining mass prophylaxis supplies from the receipt, staging, and
storage (RSS) sites in coordination with the Medical Supplies and Distribution Capability
Res.C2a 1.3 Develop plans, procedures, and protocols for mass prophylaxis dispensing operations
Res.C2a 1.3.3 Develop the tactical communications portion of the mass prophylaxis dispensing plan
Res.C2a 1.3.2 Develop a mass prophylaxis inventory management system
Res.C2a 1.3.1 Develop procedures for the distribution and dispensing of mass prophylaxis
Res.C2a 1.4
Develop processes to ensure that first responders, public health responses, critical infrastructure
personnel, and their families receive prophylaxis prior to POD opening
Res.C2a 1.4.1 Develop processes for coordinating with treatment centers
Res.C2a 1.4.2
Establish protocols for individuals receiving medications (e.g., number of doses, identification
requirements, etc.)
Res.C2a 1.4.3
Establish processes for obtaining and distributing investigation new drug (IND) consent forms at
POD sites
480 Target Capabilities List
RESPOND MISSION: MASS PROPHYLAXIS
Res.C2a 1.5 Develop credentialing mechanisms for volunteers and staff at mass prophylaxis dispensing sites
Res.C2a 1.5.1 Develop programs to ensure security of mass prophylaxis during dispensing operations
Res.C2a 1.6 Identify and address legal issues regarding authorizations for mass prophylaxis practitioners
Res.C2a 1.3.3.1
Establish processes for communicating with the public regarding nature of event and mass
prophylaxis operations in coordination with Emergency Public Information and Warning
Capability,
Preparedness Measures Metric
Percent of state/local plans that contain elements included in the State/Local SNS
Assessment Tool
100 %
Mass prophylaxis plan is incorporated into overall emergency response plan Yes/No
Plan addresses requesting and receiving Mass Prophylaxis from the State and/or CDC. Yes/No
Plan addresses the distribution of mass therapeutics (e.g. Points of Dispensing, medical
supplies, staffing, security).
Yes/No
Plan addresses cultural characteristics of populations to be treated (e.g. religious needs,
language barriers).
Yes/No
Plan addresses the provision of prophylaxis to special needs populations (e.g. disabled
people, quarantined individuals, people requiring ongoing medical support).
Yes/No
Plan addresses infection control measures to protect staff and patients (e.g. medical
screening is performed in separate area away from mass prophylaxis site).
Yes/No
Frequency with which mass prophylaxis plan is reviewed and updated Every 12 months
Mass prophylaxis plan incorporates input from all relevant stakeholders, including health
department, emergency management agency, public works, department of transportation,
law enforcement, EMS, fire, hospitals, military installations, department of finance)
Yes/No
Treatment center point of contact is identified and documented in mass prophylaxis plan Yes/No
Mass prophylaxis plan provides authorization for practitioners to issue standing orders
and protocols for dispensing sites
Yes/No
Mass prophylaxis plan provides authorization for practitioners to dispense medications Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.C2a 2.1 Develop and implement training for mass prophylaxis operations
Res.C2a 2.1.1 Conduct training of all key personnel on fundamentals of NRP, ICS and NIMS
Res.C2a 2.1.2
Develop and implement training for key personnel on tactical communications during mass
prophylaxis operations
Res.C2a 2.1.3
Develop and implement training on public information and communication for mass prophylaxis
operations
Res.C2a 2.1.4 Develop and implement training on security of mass prophylaxis
Res.C2a 2.1.5 Develop and implement training for mass prophylaxis inventory management
Target Capabilities List 481
RESPOND MISSION: MASS PROPHYLAXIS
Res.C2a 2.1.6 Develop and implement training for mass prophylaxis repacking, distribution, and dispensing
Res.C2a 2.2 Create and implement plans and drills for mass prophylaxis
Preparedness Measures Metric
Exercises evaluate the tactical communications portion of the mass prophylaxis plan Yes/No
Exercises evaluate the public information and communication portion of the mass
prophylaxis plan
Yes/No
Exercises evaluate the mass prophylaxis plan procedures to maintain security Yes/No
Exercises evaluate the mass prophylaxis inventory management system plan Yes/No
Exercises evaluate the mass prophylaxis plan procedures to distribute prophylaxis Yes/No
Exercises evaluate the mass prophylaxis dispensing procedures Yes/No
Exercises evaluate the treatment center coordination plan Yes/No
Frequency with which all key emergency and public health personnel to include Leaders
and POD Managers are trained in accordance with identified training plans
Every 12 months
Frequency with which at least one full scale POD exercise to test Mass Prophylaxis
capability is conducted
Every 12 months
Performance Tasks and Measures/Metrics
Activity: Direct Mass Prophylaxis Tactical Operations
Definition: In response to notification of a mass prophylaxis incident, provide overall management
and coordination of mass prophylaxis operations
Critical Tasks
Res.C2a 3.2 Coordinate dispensing/administration of mass prophylaxis
Res.C2a 3.4 Coordinate public information releases regarding location of PODs
Res.C2a 3.3.1 Coordinate with the Medical Supply and Distribution Capability to ensure that medical stockpile
warehouses can re-supply Points of Dispensing (PODs) as needed
Res.B3b 3.2.2
Coordinate with public information agencies to disseminate health and safety information to the
public
Res.B3b 3.3.2 Coordinate mass prophylaxis to functional and medical support sheltering locations for special
needs populations
Res.C2a 3.3.4 Coordinate with law enforcement to provide security to protect medicines, supplies, and public
health personnel
Res.C2a 3.5 Establish and maintain tactical equipment and communication networks including establishing
redundant systems
Res.C2a 3.2.4 Coordinate Point of Dispensing (POD) locations and hours of operations
Res.C2a 3.2.5 Establish shift change procedures to ensure continuity of operations
Performance Measures Metric
Percent of public health personnel who arrive safely within target timeframe to perform
capability
100%
482 Target Capabilities List
RESPOND MISSION: MASS PROPHYLAXIS
Percent of PODs that completely deplete all medical resources prior to re-supply 0%
Time in which public is provided with accurate and consistent information messages
regarding POD locations
Within 4 hours from
POD opening
Testing and functionality of tactical equipment and communication networks is
demonstrated and documented
Yes/No
The availability of the intervention is not affected by supply chain or other logistical
problems
Yes/No
Percent of population covered by PODs that are secured, open, and prepared to serve 100%
Activity: Activate Mass Prophylaxis Dispensing Operations
Definition: Upon notification, activate points of dispensing for mass prophylaxis operation
Critical Tasks
Res.C2a 4.4
Implement local, regional, and State plans for distributing and dispensing prophylaxis. This
should include procedures for requesting federal SNS assets when state and local caches and
other available resources have been depleted
Res.C2a 4.2.1 Initiate staff call down lists for POD operations
Res.C2a 4.3.1 Ensure POD site operations are established in accordance with POD specific plans and protocols
Res.C2a 4.3.2 Provide internal and external security for POD sites
Res.C2a 4.4.1
Have or have access to information systems that support tracking mass prophylaxis allocation
that comply with the Public Health Information Network (PHIN) functional requirements for
Countermeasure and Response Administration
Res.C2a 4.2.3
Assemble needed supplies and equipment for POD operations including materials to prepare oral
suspension
Res.C2a 4.5 Create and assemble signage for POD
Res.C2a 4.6
Implement the plan to provide mass prophylaxis to functional and medical support sheltering
locations for populations with disabilities, etc.
Performance Measures Metric
Percent of sufficient, competent personnel available to staff dispensing centers or
vaccination clinics, as set forth in SNS plans and State/local plans
100%
Time for all first shift staff to be at the POD Site and ready 3 hours from
notification
Time for all equipment and operational supplies to be in place 4 hours from
notification
Percent of security forces designated in the POD specific plan who report for duty 100%
Target Capabilities List 483
RESPOND MISSION: MASS PROPHYLAXIS
Activity: Establish Points Of Dispensing
Definition: Set up POD to receive members of the general public, according to POD plan
Critical Tasks
Res.C2a 5.2
Implement processes for providing prophylaxis for public health responders and their families
prior opening POD to general population
Res.C2a 5.3
Implement processes for providing prophylaxis for first responders and critical infrastructure
personnel and their families prior to opening POD to general population
Res.C2a 5.1.4 Ensure adequate staffing levels for anticipated mass prophylaxis throughput
Res.C2a 5.6
Implement processes for obtaining and distributing mass copies of IND protocol consent forms at
POD sites
Res.C2a 5.5 Post signage to inform and direct the public
Res.C2a 5.1.3.1 Implement processes to ensure the mobility impaired populations have access to PODs
Performance Measures Metric
Percent of POD staff, first responders, and critical infrastructure personnel and their families given
prophylaxis prior to POD opening to general public
100%
Percent of PODs that are easily accessible and fully functional
100%
Percent of IND drugs dispensed that have corresponding consent forms
100 %
Percent of population directed to appropriate stations
100 %
Activity: Conduct Triage for Symptoms
Definition: Conduct initial screening of individuals prior to their entering the POD
Critical Tasks
Res.C2a 6.1.2
Establish number of triage stations to commensurate with the anticipated size of the throughput
Res.C2a 6.1.3 Ensure symptomatic individuals are directed to appropriate treatment facility
Res.C2a 6.2.1
Transport or direct symptomatic individuals to appropriate health facility prior to their entering
POD sites
Res.C2a 6.2.2 Ensure that personnel conducting triage and other persons in the area are not exposed to disease
Performance Measures Metric
Time in which clinical staff and volunteers become available at triage station Within 4 hours from
decision to activate site
Transportation assets are available to bring symptomatic individuals to appropriate
treatment facility
Yes/No
484 Target Capabilities List
RESPOND MISSION: MASS PROPHYLAXIS
Activity: Conduct Medical Screening
Definition: Review patient screening documentation and available medical history to determine
proper course of treatment
Critical Tasks
Res.C2a 7.1 Ensure proper documentation is created for each individual receiving prophylaxis
Res.C2a 7.2 Identify appropriate prophylaxis based on medical history and exposure
Res.C2a 7.3 Ensure sufficient staffing at the POD site screening station to prevent initial bottlenecks
Res.C2a 7.4 Take appropriate actions for individuals for whom prophylaxis is determined to be inappropriate
Performance Measures Metric
Time in which clinical staff and volunteers become available at medical screening station Within 4 hours from
decision to activate site
Proper documentation secured Yes/No
Percent of people dispensed the appropriate drug 100 %
Activity: Conduct Mass Dispensing
Definition: Dispense oral medication/administer vaccination according to standing medical orders
Critical Tasks
Res.C2a 8.2.6
Dispense the appropriate medication and dosage to the population, including children, infants
and special needs populations
Res.C2a 8.3
Maintain a system for inventory management to ensure availability of critical prophylaxis
medicines and medical supplies
Res.C2a 8.3.1
Ensure adequate supply of pharmaceuticals, ancillary medical supplies and drug information
sheets
Res.C2a 8.3.3 Ensure availability of and distribute pre-printed drug information sheets
Res.C2a 8.3.4 Distribute IND consent forms as needed for mass prophylaxis/vaccine administration
Res.C2a 8.1.1 Monitor patient throughput per hour
Performance Measures Metric
Percent of dispensing centers or vaccination clinics that are able to process patients at the
rate (persons per hour) specified in SNS Plans and State/Local Plans
100%
Percent of at-risk population that was successfully provided initial prophylaxis within 48
hours of State/local decision to provide prophylaxis
100%
Dispensing is not interrupted due to lack of preparation, availability of forms and
materials and equipment
Yes/No
Percent of patients who are transported from station to station within times specified in
SNS Plans and State/local plans
100%
Percent of parents receiving appropriate dosage and/or instructions to prepare oral
suspensions for their children according to FDA Guidelines
100%
Target Capabilities List 485
RESPOND MISSION: MASS PROPHYLAXIS
Percent of individuals receiving appropriate medication 100%
Activity: Monitor Adverse Events
Definition: Through monitoring, identify individuals who have an adverse reaction to prescribed
medication and initiate appropriate medical care
Critical Tasks
Res.C2a 9.1 Continue to track outcomes and adverse events following mass distribution of prophylaxis
Res.C2a 9.3 Provide alternate medication as ordered by clinician
Res.C2a 9.1.1
Access information systems that support monitoring of adverse reactions that comply with the
PHIN functional requirements for Countermeasure and Response Administration
Res.C2a 9.1.2
Establish a call center to triage individuals to receive appropriate medical care in case of an
adverse effect
Performance Measures Metric
Percent of patients who receive instructions for adverse event reaction 100%
Adverse event monitoring system is in place Yes/No
Number of staff or mechanisms to monitor individuals is adequate based on number of
individuals receiving prophylaxis
Yes/No
Activity: Demobilize Mass Prophylaxis Operations
Definition: Upon completion, stand down POD operations, return site to normal operations, and
release or redeploy staff
Critical Tasks
Res.C2a 10.1 Debrief POD personnel
Res.C2a 10.2 Reconstitute POD personnel and supplies
Performance Measures Metric
Percent of staff debriefed after mass prophylaxis distribution 100%
Linked Capabilities
Linked Capability Relationship
Emergency Public Information
and Warning
Mass Prophylaxis provides releasable public information of POD sites and other
relevant information to Emergency Public Information and Warning for public
notification.
486 Target Capabilities List
RESPOND MISSION: MASS PROPHYLAXIS
Linked Capability Relationship
Emergency Operations Center
Management
Emergency Operations Center Management provides situation reports to Mass
Prophylaxis, which provides situation reports in return.
Medical Supplies Management
and Distribution
Medical Supplies Management and Distribution provides medical assets to Mass
Prophylaxis, including the request for SNS and the receipt, staging, and storage of
mass prophylaxis
Emergency Public Safety and
Security Response
Emergency Public Safety and Security Response provides perimeter security and
crowd/traffic control for Mass Prophylaxis.
Epidemiology Surveillance and
Investigation
Epidemiology Surveillance and Investigation provides information for Mass
Prophylaxis.
Target Capabilities List 487
RESPOND MISSION: MASS PROPHYLAXIS
Direct Mass
Prophylaxis
Tactical
Operations
End: PODs closed and staff
released
Activate Mass
Prophylaxis
Start: Indication of
need for mass
prophylaxis
Emergency Public
Information and
Warning
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Emergency
Operations Center
Management
Medical Supplies
Management and
Distribution
SNS/Staff requested
Establish Points of
Dispensing
Conduct Medical
Screening
Conduct Mass
Dispensing
Monitor Adverse
Events
SNS deployed; staff
ready to open POD(s)
Demobilize Mass
Prophylaxis
Operations
All adverse effects addressed
All persons received treatment
Ready to open POD(s) to
public
Determine proper treatment
Perimeter security and
crowd/traffic control
provided
Medical assets provided
Provide sitreps
Provide information for
public release
Provide SNS/medical assets; provide site provide
additional staff
Conduct Triage for
Symptoms
Asymptomatic persons
ready for medical screening
Transport symptomatic to definitive medical care
Provide inventory management
Appropriately reduce number of POD(s) and staff
based on need
Isolation and
Quarantine
Provide symptomatic
persons, as appropriate
Provide site security
Notification of dispensing complete
Linked
Capabilities
Relationship
Mass Prophylaxis Capability
Capability Activity Process Flow
Epidemiology
Surveillance and
Investigation
Provides information for
Mass Prophylaxis
Emergency
Public Safety
and Security
Response
488 Target Capabilities List
RESPOND MISSION: MASS PROPHYLAXIS
Resource Element Description
Resource Elements Components and Description
Multiagency Coordination
Systems (MACS)
Command and control center based on incident command system (ICS)
functions (planning, logistics, operations, finance/administration and
information)
Dispensing/Vaccination Centers
(DVC) Points of Distribution
(PODs)
Locations where prophylaxis will be provided. Includes all equipment and
trained and available fulltime staff and volunteers to include: clinicians/public
health professions; ancillary support personnel, traffic control personnel,
security personnel, inventory assistants, and staff for storing, receiving and
distributing federal medical supplies and equipment to fully staff 24 hour
operations at each POD
Prophylaxis supplies and
materials
Pharmaceuticals, medical supplies and materials, available from local, state and
federal stockpiles. This may include follow-on managed inventory (MI)
supplies
Receiving, Staging, and Storage
(RSS)
Technical Advisory Response
Unit (TARU) Teams
Adverse event monitoring
system
Triage call center system and personnel equipped to address affected
populations who have had an adverse reaction. Vaccines and drugs used under
the IND protocol require monitoring and reporting of such adverse events.
Monitoring and reporting the adverse effects of IND vaccines and drugs are the
joint responsibility of designated State adverse event coordinators and the CDC
through established mechanisms
Countermeasure Response and
Administration system
Planning Assumptions
Assume population potentially exposed and requiring prophylaxis is 2 million in one Metropolitan
Statistical Area (MSA). Additional geographic locations would require resource considerations
according to population estimates in affected areas.
Additional illnesses will occur prior to mass prophylaxis campaign. Many people are likely to
present who fear they might have been exposed multiple unexplained physical symptoms (MUPS).
Due to time elapsed prior to plan execution and non-informed public. Studies show that between 4
and 50 times as many people seek medical care after an event for MUPS than for diagnosable
symptoms treatable by medical providers.
State/local medicines and medical supplies are insufficient for mass prophylaxis.
Federal medical assets are requested and received at each location within 12 hours from the Federal
decision to deploy assets.
Adequate prophylaxis is readily available from the Strategic National Stockpile; initial 10-day
regimen with ciprofloxacin (Cipro) or doxycycline (Doxy). Amoxicillin (10-day regimen) is also
available based on antimicrobial sensitivity results. Goal is to protect exposed or potentially exposed
population as quickly as possible based on current Centers for Disease Control (CDC)
recommendations for anthrax prophylaxis.
Target Capabilities List 489
RESPOND MISSION: MASS PROPHYLAXIS
Follow-on prophylaxis with vaccine and antibiotics (50-day supply) for persons at highest risk of
exposure based on epidemiological data and current CDC recommendations for anthrax prophylaxis.
State/locals have sufficient personnel to fully command or staff a mass prophylaxis dispensing
operation. This may include assistance from Federal response teams, if requested.
State/locals have developed and exercised both and emergency response plan and a Mass Prophylaxis
response plan.
Guidelines for post exposure prophylaxis populations will be developed by public health officials and
subject matter experts depending on epidemiological circumstances. Decision will be based on
estimates of timing, location and conditions of exposure.
Point of Distribution (POD) Staffing: Number of PODs determined assumes 24 hour operation,
population equally distributed among PODs, performance at 100% capacity at all times, constant flow
of people, staffing is constant and adequate. PODs should be located where easily accessible to the
public i.e., publicly owned buildings.
Medical Assets/Supplies – Adequate prophylaxis and medical supplies are readily available in the
SNS.
Due to limited pediatric suspension, states have established MOAs with local compounding
pharmacies and are prepared to use the FDA’s crushing guidelines to enhance pediatric prophylaxis
capability.
The regulatory mechanism for providing investigational product(s) for Mass Prophylaxis may be
under an IND or an Emergency Use Authorization.
States will be prepared for both IND and EUA regulatory channels.
Population Centers – resources readily available for largest urban areas for duration of prophylaxis
period.
Receiving, Staging, and Storing (RSS) – State/local jurisdictions with mass prophylaxis plans have
identified a site for receiving, staging, and storing Federal assets. In some worse case scenarios, more
than one site may need to be identified.
Risk Factors:
The occurrence of multiple events could deplete the availability of Federal stockpiled medical
assets and Federal resources i.e., staff, supplies, etc.
The unavailability of staff and volunteers to operate the POD system.
Fear and mass panic could escalate.
Inadequate planning for mass prophylaxis would result in delays in response and ultimately risk
of loss of life.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource
Organization
Estimated
Capacity
Scenario
Requirement
Values
Quantity of
Resources Needed
Multiagency Coordination
Systems (MACS)
24 hours/7 days Number/shift Number/2–3 shifts
Dispensing/Vaccination
Centers (DVC) Points of
Distribution (PODs)
47,667 patients per
hour (PPH)
Prophylaxis for 2
million
47 DVCs (PODs)
Receiving, Staging, and Single warehouse, Prophylaxis medicines Federal assets from SNS
490 Target Capabilities List
RESPOND MISSION: MASS PROPHYLAXIS
Resource
Organization
Estimated
Capacity
Scenario
Requirement
Values
Quantity of
Resources Needed
Storage (RSS) minimum 12,000
square feet
for 2 million based on estimated
number of exposed
persons
Technical Advisory
Response Unit (TARU)
Teams
12-hour response.
1 7-9 member team for
logistics, operations,
and communications
1 team per single
geographic incident
Adverse event monitoring
system
24 hours
Triage call center(s)
and personnel to
support affected
population
Estimates will vary
depending on population
receiving prophylaxis and
who have an adverse
reaction
Approaches For Large-Scale Events
The information and analysis included in this capability reflects only one of the 15 scenarios - aerosolized
anthrax.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Multiagency
Coordination
Systems (MACS)
1 Federal/State/
Local
Command and
Control (Mass
Prophylaxis
Tactical)
Dispensing/Vaccin
ation Centers
(DVC) Points of
Distribution
(PODs)
Resource
Organization
1 Per population of
42,554
(47 DVC/PODs per
2 million people)
State/Local Establish POD
Conduct Triage for
Symptoms
Conduct Medical
Screening
Conduct Mass
Dispensing
Conduct Adverse
Events Monitoring
Prophylaxis
supplies and
materials
Equipment Federal/State/
Local/Private
Sector
Conduct Mass
Dispensing
Adverse event
monitoring system
Non-NIMS
Resource
Organization
1+ National Federal/State/
Local
Conduct Adverse
Events Monitoring
Target Capabilities List 491
RESPOND MISSION: MASS PROPHYLAXIS
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Countermeasure
Response and
Administration
system
Non-NIMS
Resource
Organization
1 Nationally Federal
(HHS/CDC)
Conduct Adverse
Event Monitoring
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Modular Emergency Medical System: Concept of Operations for the Acute Care Center. U.S. Army Soldier and
Biological Chemical Command, Biological Weapons Improved Response Program. Maryland. May 2003.
5. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
6. Emergency Response Training Necessary for Hospital Physicians/Nurses That May Treat Contaminated
Patients. Standard interpretation. Occupational Safety and Health Administration. March 1999.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22710.
7. Emergency Response Training Requirements for Hospital Staff. Standard interpretation. Occupational Safety
and Health Administration. April 1997.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=22393.
8. Hazardous Waste Operations and Emergency Response, 29 CFR 1910.120. Occupational Safety and Health
Administration. November 2002.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=STANDARDS&p_id=9765.
9. Medical Personnel Exposed to Patients Contaminated with Hazardous Waste. Standard interpretation.
Occupational Safety and Health Administration. March 1992.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20609.
10. Training Requirements for Hospital Personnel Involved in an Emergency Response of a Hazardous Substance.
Standard interpretation. Occupational Safety and Health Administration. October 1992.
http://www.osha.gov/pls/oshaweb/owadisp.show_document?p_table=INTERPRETATIONS&p_id=20911.
11. Mass Antibiotic Dispensing-Managing Volunteer Staffing. Centers for Disease Control and Prevention.
December 2004. http://www.phppo.cdc.gov/PHTN/webcast/antibiotic2/default.asp.
12. Mass Antibiotic Dispensing: A Satellite Web Cast Primer. Centers for Disease Control and Prevention. June
2004. http://www.phppo.cdc.gov/phtn/antibiotic/default.asp.
13. U.S. Postal Service May Deliver Medicine in the Event of a Catastrophic Incident. Memorandum of
understanding between the U.S. Departments of Homeland Security and Health and Human Services and the
U.S. Postal Service. February 2004.
http://www.usps.com/communications/news/press/2004/pr04_015.pdf#search='U.S.%20POSTAL%20SERVIC
E%20MAY%20DELIVER%20MEDICINE.
14. DHS, Office for Domestic Preparedness, Metropolitan Medical Response System (MMRS) program,
http://mmrs.fema.gov.
15. Receiving, Distributing, and Dispensing Strategic National Stockpile (SNS) Assets: A Guide for Preparedness,
Version 10 – Draft, June 2005.
492 Target Capabilities List
RESPOND MISSION: MASS PROPHYLAXIS
16. “Community-Based Prophylaxis. A Planning Guide for Public Health Preparedness.” Weill Medical College
of Cornell University, Department of Public Health, August 2004.
17. Hupert, Nathaniel. Modeling the Public Health Response to Bioterrorism: Using Discrete Event Simulation to
Design Antibiotic Distribution Centers, in a September-October 2002 supplement to Medical Decision Making
(Med Decis Making 2002:22(Suppl): S17-S25).
18. “PHIN Preparedness - Countermeasure/Response Administration Functional Requirements”, Version 1.0,
Centers for Disease Control and Prevention, April 2005.
19. “State and Local Technical Assistance Review Tools, Centers for Disease Control and Prevention, September
11, 2006.
Target Capabilities List 493
RESPOND MISSION: MASS CARE
MASS CARE (SHELTERING, FEEDING, AND
RELATED SERVICES)
Capability Definition
Mass Care is the capability to provide immediate shelter, feeding centers, basic first aid, bulk distribution
of needed items, and related services to persons affected by a large-scale incident. Mass Care is usually
provided by nongovernmental organizations (NGOs), such as the American Red Cross, or by local
government.
The capability also provides for companion animal care/handling through local government and
appropriate animal-related organizations.
Functional and Medical Support Shelters (formerly known as Special Needs Shelters) are addressed as a
separate capability. However, this capability does cover those individuals who have disabilities that can
be accommodated in general population shelters. These individuals could include the following:
A person requiring medication, Consumable Medical Supplies ([CMS], such as hearing aid
batteries, incontinence supplies), or Durable Medical Equipment ([DME], such as wheelchairs,
walkers, canes, etc);
A person with a stable medical or psychiatric condition;
A person who requires a caregiver where the regular caregiver can stay with the person;
A person requiring assistance with transferring from a wheelchair to a cot where the assistance
does not require specialized training or lifting equipment;
A person requiring oxygen who is mobile and does not require medical attention; or
A person needing assistance with some activities of daily living such as cutting of food.
This list does not include all accommodations that can be made in a general population shelter, but each
shelter will have different capabilities based on location and available facilities at the time of the disaster
Outcome
Mass care services, including sheltering, feeding, and bulk distribution, are rapidly provided for the
population and companion animals within the affected area.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
ESF #6: Mass Care, Housing, and Human Services
494 Target Capabilities List
RESPOND MISSION: MASS CARE
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.C3a 1.3
Develop plans, policies, and procedures for the provision of mass care services to general
populations in coordination with all responsible agencies
Res.C3a 1.6.1.1
Develop plans, policies, and procedures for the provision of services for companion animals in
coordination with all responsible agencies
Res.C3a 1.3.4
Develop processes and criteria for conducting an assessment (functional, cultural, dietary,
medical) of the general population registering at the shelter to determine suitability for the
shelter, and the transference of individuals and caregivers/family members, to more appropriate
care facilities
Res.C3a 1.9
Develop plans, policies, and procedures to ensure maximum retention of people with disabilities
in general population shelters
Res.C3a 1.9.1
Develop procedures to ensure that general population shelters allow individuals to bring in
existing support systems (including service animals and care-givers)
Res.C3a 1.9.3
Establish procedures for identifying and receiving individuals to general population shelter when
they no longer need to be accommodated at Functional & Medical Sheltering Service location
Res.C3a 1.3.5
Develop plans, policies, and procedures for close cooperation between general population
shelters, Functional and Medical Support Shelters and other medical facilities
Res.C3a 1.1 Develop plans, policies, and procedures for activation and mobilization of mass care staff
Res.C3a 1.3.1
Develop plans, policies, and procedures to address common issues (e.g. cultural, language,
people with disabilities in general population shelters, etc.) as part of the mass care service
delivery
Res.C3a 1.2.2
Develop plans, procedures and protocols for pre-identification of sufficient and suitable facilities
for evacuation and post-impact shelters (to include non-traditional shelter facilities such as
camps, hotels, etc.)
Res.C3a 1.2.7 Enter pre-identified shelter facilities into the National Shelter System (NSS)
Res.C3a 1.2.8 Identify accessible shelters as part of pre-identification of shelter option choices
Res.C3a 1.2.3
Develop shelter contingency plans that allow for shelter self-sufficiency for a minimum 48 hours
without re-supply
Res.C3a 1.3.8
Develop shelter contingency plans that allow for shelter relocation when shelter is no longer
habitable due to changing incident conditions (e.g., structural damage, contamination, etc.)
Res.C3a 1.3.2
Develop plans, procedures, and protocols for coordination of mass care services with agencies
providing human services and housing, (e.g., welfare inquiry, transitional/interim housing
services, other individual/family assistance programs), and family reunification
Res.C3a 1.3.3
Develop plans, policies, and procedures for coordination of mass care services with supporting
agencies (e.g., conducting decontamination, citizen evacuation/shelter-in-place, volunteer
management and donations, environmental health, and public safety and security)
Res.C3a 1.5 Develop public education materials concerning mass care services
Res.C3a 1.6.1 Develop criteria and guidance materials for sheltering companion animals
Target Capabilities List 495
RESPOND MISSION: MASS CARE
Res.C3a 1.4.1 Develop vendor agreements, MOUs, or MOAs for critical mass care resources as appropriate
Preparedness Measures Metrics
A mass care plan for the general population is in place Yes/No
Mass care plan is integrated with our plans for evacuation (e.g. evacuation
routes to shelters are identified, exercise evacuation from various locations to
local shelters)
Yes/No
Mass care plan addresses cultural characteristics and needs of populations to be
sheltered (e.g. religious needs, language barriers).
Yes/No
Mass care plan addresses the shelter requirements of special needs populations
(e.g. disabled people, people requiring ongoing medical support).
Yes/No
Mass care plan addresses the feeding needs of affected populations (e.g.
estimate projected need, identify distribution, preparation, and feeding sites,
establish mobile feeding routes).
Yes/No
Plans for the transference of individuals with needs beyond the shelter’s
capacity to a Functional and Medical Support Shelter or other appropriate care
facility with their caregivers/family are in place
Yes/No
Plan to utilize ARC/HHS Initial Intake and Assessment Tool to assess
individuals arriving at shelters is in place
Yes/No
A mass care plan for companion animals (includes provision of shelter, food,
and animal welfare inquiry services) is in place
Yes/No
Shelter agreements for each jurisdiction are in place Yes/No
Mass care plan addresses the safety and security of shelter facilities Yes/No
The mass care plan includes MOUs with non-governmental organizations
(NGOs) to provide personnel and equipment support following an incident
Yes/No
Mass care plan includes programs for recruiting volunteers Yes/No
Local government has a companion animal care/handling plan coordinated with
appropriate partners
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.C3a 2.1.1
Develop and implement training programs for mass care personnel to include sheltering, feeding
and bulk distribution for general population
Res.C3a 2.1.1.1 Develop and implement training for shelter staff
Res.C3a 2.2.1
Develop and implement exercise programs for mass care personnel to include sheltering, feeding
and bulk distribution for general population
Res.C3a 2.2.3
Develop and implement exercise programs for mass care personnel for delivery of mass care
companion animal services
Res.C3a 2.1.3
Develop and implement training programs for mass care personnel for delivery of companion
animal services
496 Target Capabilities List
RESPOND MISSION: MASS CARE
Preparedness Measures Metrics
Training and exercise program for mass care personnel is in place and covers
sheltering, feeding and bulk distribution services
Yes/No
Training and exercise program addresses common mass care issues (e.g.,
culture, language, accommodating people with disabilities in general population
shelters etc.)
Yes/No
Training and exercises for mass care operations occur on regular basis Yes/No
Shelter staff are familiar with ARC/HHS Initial Intake and Assessment Tool
that is used for initial screening of clients
Yes/No
Training and exercise program is in place Yes/No
Performance Measures and Metrics and Critical Tasks (by Activity)
Activity: Direct Mass Care Operations
Definition: In response to requests made by agencies, provide management and coordination of
Mass Care Capability
Critical Tasks
Res.C3a 3.1 Conduct initial and ongoing mass care needs assessment for sheltering, feeding, bulk distribution
Res.C3a 3.1.1.1
Obtain information on population and location of potentially affected populations as part of
planning process
Res.C3a 3.1.2.1 Coordinate anticipated need for mass care services with agencies responsible for evacuation
Res.C3a 3.3
Designate sites to serve as mass care facilities to include shelters, feeding sites, reception centers,
food preparation sites, distribution points, etc.
Res.C3a 3.1.2.2 Estimate numbers requiring sheltering services
Res.C3a 3.1.2.3 Estimate numbers requiring feeding services
Res.C3a 3.1.2.4 Estimate numbers requiring bulk distribution of relief items
Res.C3a 3.7.4
Implement a daily counting and reporting system for sheltering, feeding, and bulk distribution
items delivered
Res.C3a 3.7.5 Activate contingency plans for shelter surge capacity, as needed
Res.C3a 3.7.6 Activate vendor agreements/MOUs/MOAs in support of mass care activities as needed
Res.C3a 3.7.1 Acquire and provide resources necessary to support mass care services
Res.C3a 3.8 Provide appropriate communication systems for mass care personnel and facilities
Res.C3a 3.4.1 Supervise and support day-to-day mass care operations
Res.C3a 3.8.1
Disseminate accurate, timely, and accessible information to the public, media, support agencies,
and vendors about mass care services
Res.C3a 3.4 Coordinate mass care services for general population with appropriate agencies
Target Capabilities List 497
RESPOND MISSION: MASS CARE
Res.C3a 3.4.2
Coordinate with appropriate agencies on common population issues (e.g. disability, language,
culture, etc.)
Res.C3a 3.4.3
Coordinate environmental health assessment of mass care operations with agencies responsible
for environmental health
Res.C3a 3.8.2 Disseminate notification of cessation of mass care operations
Res.C3a 3.6 Coordinate mass care services for companion animals and owners with appropriate agencies
Performance Measures Metric
Time in which the mass care plan is activated Within 2 hours from notification
of need for mass care services
Time in which the initial mass care needs assessment is completed (sheltering,
feeding, and bulk distribution)
Within 4 hours from notification
of need for mass care services
Time in which appropriate organizations are tasked to mobilize resources to
provide mass care services
Within 6 hours from the
notification of need for mass care
services
Frequency with which reports of shelter populations and locations are received
from all mass care facilities
Every 24 hours
Frequency with which mass care needs are assessed Every 24 hours
Percent of total number of people seeking shelter who are either sheltered or
referred to appropriate facilities
100%
Time in which oversight of sanitation of shelters, food service, and distribution
operations is established
Within 12 hours
Activity: Activate Mass Care
Definition: Activate and mobilize mass care personnel and resources
Critical Tasks
Res.C3a 4.2 Notify mass care staff
Res.C3a 4.3 Mobilize needed mass care resources
Res.C3a 4.2.1.1 Assemble mass care teams for each identified mass care facility
Res.C3a 4.2.1
Assemble mass care teams for each identified mass care site (e.g. shelter, feeding, bulk
distribution)
Res.C3a 4.1 Activate emergency shelters
Res.C3a 4.4 Mobilize veterinary and animal shelter services
Res.C3a 4.4.1 Assemble teams for each identified companion animal site
Performance Measures Metric
Time in which mass care staff are notified Within 2 hours from notification
of need for mass care services
498 Target Capabilities List
RESPOND MISSION: MASS CARE
Percent of mass care staff mobilized within timeframe designated in SOPs 100%
Time in which to determine availability of shelter and staff within jurisdiction Within 4 hours from activation of
mass care plan
Activity: Establish Shelter Operations
Definition: Staff and equip shelter in preparation to receive displaced persons
Critical Tasks
Res.C3a 5.1
Determine whether areas are located in a safe area as determined by appropriate government
agencies
Res.C3a 5.2.1 Staff shelter with appropriately trained personnel
Res.C3a 5.2 Set-up shelter for operations
Res.C3a 5.2.2 Establish self-sufficiency (water/food/staffing) of shelter for minimum of 48 hours
Res.C3a 5.2.3 Ensure adequate communication systems are available for shelter staff
Res.C3a 5.3 Conduct regular communications with mass care management
Res.C3a 5.2.4 Provide regular updates on shelter needs and capacity
Res.C3a 5.3.1 Coordinate provision of mass care services within the shelter
Res.C3a 5.4 Coordinate provision of shelter support services with appropriate agencies
Res.C3a 5.4.1 Ensure shelter facility is accessible or provides temporary accessibility solutions where feasible
Res.C3a 5.5
Coordinate with appropriate government agency to conduct an environmental health assessment
for mass care operations
Res.C3a 5.2.1
Coordinate with appropriate government agency to ensure any necessary decontamination is
provided for shelter residents prior to entering shelter facility
Res.C3a 5.6
Coordinate dissemination of information about locations of different kinds of shelter, including
companion animal shelters, general population shelters, and Functional and Medical Support
Shelters
Performance Measures Metric
Time in which shelters are opened with appropriate staff Within 6 hours from activation of mass care plan
Activity: Shelter General Population
Definition: Provide temporary shelter for those individuals displaced during an incident
Critical Tasks
Res.C3a 6.1 Conduct shelter registration for general population
Res.C3a 6.1.1
Conduct initial assessment of population registering at shelter ensure appropriate shelter services
are provided
Target Capabilities List 499
RESPOND MISSION: MASS CARE
Res.C3a 6.1.4
Conduct detailed assessments to identify types and levels of support needed to maintain
functional independence of those individuals with disabilities and determine whether these needs
can be met in general population shelters
Res.C3a 6.4.1
Coordinate with Functional and Medical Support Shelter Capability to ensure that individuals are
referred to appropriate settings and appropriate functional and medical care is provided
Res.C3a 6.1.2 Establish processes to address issues identified in the assessment of shelter registrants
Res.C3a 6.1.3
Make arrangements to transfer individuals and caregivers/family members to appropriate care
facilities when necessary
Res.C3a 6.4 Request additional resources and equipment necessary to support shelter operations
Res.C3a 6.2.1 Implement mechanisms for daily reporting of shelter population and locations
Res.C3a 6.2.4 Coordinate to provide security services if needed
Res.C3a 6.2.5 Coordinate feeding services for general populations in shelters
Res.C3a 6.2.5.1 Provide culturally and restricted diet appropriate feeding services when possible
Res.C3a 6.3.1 Provide regular updates on shelter needs and capacity
Res.C3a 6.3.2 Assess ongoing medical and public health needs of shelter population and refer as appropriate
Res.C3a 5.5.1 Coordinate environmental health assessment of mass care operations
Performance Measures Metric
Percent of general population shelters that have access to the ARC/HHS Initial Intake and
Assessment Tool
100%
Time in which all individuals at general population shelters are evaluated for health and
mental health services
Within 12 hours from
arrival
Percent of population initially assessed and referred to appropriate accommodation within
24 hours of seeking shelter
100%
Percent of shelter population registered within 24 hours of residing in shelter 100%
Frequency with which shelter population is reported Every 24 hours
Time in which shelter is able to provide 2 meals per day Within 24 hours from
shelter opening
Activity: Shelter Companion Animals
Definition: Provide temporary shelter for companion animals of displaced owners or those
companion animals who are abandoned
Critical Tasks
Res.C3a 7.1.2 Establish companion animal shelter
Res.C3a 7.1.3 Arrange for companion animal care/handling services
Res.C3a 7.3 Operate companion animal care/handling facilities
Res.C3a 7.3.1 Coordinate provision of veterinary medical services with appropriate agencies
500 Target Capabilities List
RESPOND MISSION: MASS CARE
Res.C3a 7.2.1
Coordinate with entities responsible for search and rescue for transference of companion animals
into animal shelters
Res.C3a 7.2.2
Coordinate message regarding companion animal evacuation with agencies responsible for
issuing evacuation orders
Res.C3a 7.3.2 Coordinate animal shelter operations with agencies responsible for environmental health
Res.C3a 7.4.3
Coordinate acquisition of needed companion animal resources with appropriate agencies
receiving donations
Res.C3a 7.2.3 Coordinate transportation of companion animals with appropriate agencies
Res.C3a 7.3.3
Identify any special procedures necessary for the intake of companion animals (e.g.,
decontamination)
Res.C3a 7.3.4 Identify and implement special procedures (e.g., decontamination) for companion animal intake
Res.C3a 7.3.5 Implement procedures for companion animal intake/registration
Res.C3a 7.3.6
Implement tracking system for intake and export of companion animals in compliance with local
holding regulations
Res.C3a 7.4.1 Provide feeding services that ensure adequate nutrition for companion animals
Res.C3a 7.4.2
Establish guidance for staff on integrating volunteers while maintaining health and safety for
staff, companion animals, and volunteers
Res.C3a 7.3.7 Manage shelter facility maintenance
Performance Measures Metric
Time in which shelters are opened for staff and set-up Within 8 hours from
mobilization
Companion animal import/export process complies with local holding regulations Yes/No
Percent of companion animals sheltered and/or referred to appropriate responsible
authority
100%
Activity: Close Shelter
Definition: Deactivate shelter and staff upon determination that immediate shelter needs have
been met or if the shelter is no longer suitable to meet mission needs
Critical Tasks
Res.C3a 8.2.1 Ensure appropriate referral information is provided to shelter residents
Res.C3a 8.1
Transport and/or coordinate with agencies responsible for transportation of shelter population to
residence or temporary/interim housing
Res.C3a 8.2
Disseminate notification to close shelter operations to shelter residents, appropriate government
agencies, and other partners
Res.C3a 8.3 Conduct closing inspection and walk-through of shelters
Performance Measures Metric
Target Capabilities List 501
RESPOND MISSION: MASS CARE
Percent of shelter residents transitioned from shelter to their residence or to
alternative accommodations prior to shelter closure
100%
Time in which shelter closure notification is provided Within 48 hours prior to shelter
closure
Activity: Establish Feeding Operations
Definition: Identify availability of resources for feeding operations
Critical Tasks
Res.C3a 9.1 Estimate projected feeding services required
Res.C3a 9.2.1 Identify kitchens, vendors, and other capabilities to prepare and distribute food
Res.C3a 9.2.2 Identify additional mobile feeding resources necessary to meet feeding need
Res.C3a 9.2.3 Assess number of pre-packaged meals needed to augment feeding services
Res.C3a 9.2 Develop a strategy to meet projected feeding need
Res.C3a 9.3.1
Conduct inspection of identified food operation facilities to determine structural integrity,
capability, and suitability
Res.C3a 9.3.2 Ensure kitchen facilities are in compliance with local health regulations
Res.C3a 9.3.3 Staff kitchens with appropriately trained personnel
Res.C3a 9.3.4 Acquire foodstuffs for feeding operations
Res.C3a 9.4 Determine mobile feeding routes
Res.C3a 9.5 Implement reporting mechanism for daily meal counts
Res.C3a 9.6 Coordinate with shelter managers to ensure adequate feeding is conducted at shelters
Performance Measures Metric
Time in which strategy is developed to meet demand for feeding
services
Within 6 hours from notification of need
for mass care services
Time in which feeding services are mobilized Within 12 hours from activation of mass
care plan
Time in which locations are identified for effective service delivery to
meet feeding needs
Within 36 hours from activation of mass
care plan
Frequency with which reassessment of feeding strategy is conducted Every 24 hours
502 Target Capabilities List
RESPOND MISSION: MASS CARE
Activity: Prepare and Distribute Food
Definition: Prepare and distribute meals to affected general populations
Critical Tasks
Res.C3a 10.1 Implement strategy to meet feeding needs of affected population
Res.C3a 10.4 Evaluate effectiveness of ongoing feeding operations
Res.C3a 10.1.2 Conduct food preparation and distribution using safe food handling protocols
Res.C3a 10.2 Conduct mass feeding operations, including mobile and fixed
Res.C3a 10.3.1 Conduct food preparation and distribution using safe food handling protocols
Res.C3a 10.1.3 Provide culturally and diet-restriction appropriate feeding services as available
Res.C3a 10.1.4 Ensure adequate nutrition is provided for shelter populations
Res.C3a 10.4.1 Report accurate count of meals and snacks served
Res.C3a 10.4.2 Disseminate notification of end to feeding operations
Performance Measures Metric
Percent of anticipated need for feeding services met 100%
Time in which initial food is provided Within 6 hours from activation
Time in which notification of end to feeding services is provided 48 hours prior to end of
operations
Activity: Establish Bulk Distribution Operations
Definition: Establish bulk distribution sites and prepare them to distribute items to the affected
population
Critical Tasks
Res.C3a 11.1.2 Establish distribution sites and routes
Res.C3a 11.2.1
Conduct inspection of identified mass care bulk distribution facilities to determine structural
integrity, capability, and suitability
Res.C3a 11.2.2 Staff bulk distribution site with appropriately trained personnel
Res.C3a 11.2.3 Ensure adequate communication systems are available for bulk distribution staff
Res.C3a 11.2.3.1 Conduct communications with mass care management
Res.C3a 11.2.4 Establish reporting mechanisms for daily distribution count
Res.C3a 11.2 Establish bulk distribution operations at fixed sites
Res.C3a 11.1.1 Determine mobile bulk distribution routes
Res.C3a 11.3 Acquire items for bulk distribution, ensuring coordination with logistics resources
Target Capabilities List 503
RESPOND MISSION: MASS CARE
Res.C3a 11.1
Coordinate with appropriate agencies to determine bulk distribution needs of affected
population
Res.C3a 11.3.1
Coordinate with agencies receiving donations to acquire items needed for bulk distribution,
including supplies for companion animals
Performance Measures Metric
Time in which operational sites receive logistics support to maintain service
delivery
Within 24 hours from site
activation
The locations of distribution centers are accurately and clearly communicated to
the public
Yes/No
Activity: Conduct Bulk Distribution Operations
Definition: After establishing bulk distribution operations, distribute items to the affected
population
Critical Tasks
Res.C3a 12.1 Conduct bulk distribution of relief items at fixed sites
Res.C3a 12.1.1 Conduct mobile bulk distribution operations
Res.C3a 12.1.2 Report daily distribution count and number of people served
Res.C3a 12.2 Disseminate notification of end to bulk distribution operations
Performance Measures Metric
Time in which facilities can receive and distribute disaster relief items Within 24 hours from site activation
Time in which notification of end to bulk distribution services is
provided
Within 48 prior to end of operations
Activity: Demobilize Mass Care Operations
Definition: Upon completion of assigned mission, demobilize mass care resources
Critical Tasks
Res.C3a 13.1 Coordinate demobilization of mass care resources with participating agencies
Res.C3a 13.2 Disseminate notification of demobilization of mass care resources/services
Res.C3a 13.4 Demobilize mass care resources
Res.C3a 13.5 Provide staff briefing
Res.C3a 13.6 Deactivate staff from operations
Performance Measures Metric
Percent of participating agencies notified of demobilization 100%
Percent of staff debriefed 100%
504 Target Capabilities List
RESPOND MISSION: MASS CARE
Linked Capabilities
Linked Capability Relationship
Emergency Operations
Center Management
Mass Care coordinates with Emergency Operations Center Management on resource
requests and situation reports.
On-Site Incident
Management
Mass Care coordinates with On-Site Incident Management on resource requests and
situation reports.
Isolation and Quarantine
Mass Care relies on Isolation and Quarantine to provide quarantine information to mass
care personnel.
WMD/Hazardous
Materials Response and
Decontamination
Mass Care relies upon WMD/Hazardous Materials Response and Decontamination to
provide decontamination to persons and companion animals prior to shelter entry.
Triage and Pre-Hospital
Treatment
Mass Care notifies Triage and Pre-Hospital Treatment of sick or injured people in need
of transport.
Public Safety and
Security Response
Mass Care relies upon Public Safety and Security Response to provide security at mass
care facilities, including companion animal shelters.
Environmental Health
Mass Care relies upon Environmental Health to provide a health assessment of
facilities, food, persons, and companion animals.
Medical Surge
Mass Care relies upon Medical Surge to provide alternative care facilities for people
needing medical care.
Fatality Management Mass Care notifies Fatality Management of remains.
Citizen Evacuation and
Shelter-In-Place
Mass Care coordinates with the Citizen Evacuation and Shelter-In-Place Protection
capability to ensure mass care services are in place for evacuating populations.
Volunteer and
Donations Management
Mass Care relies upon Volunteer and Donations Management to provide volunteers and
donations at mass care facilities.
Search and Rescue
(Land-Based)
Mass Care coordinates with Search and Rescue (Land-Based) for transference of
rescued companion animals.
Target Capabilities List 505
RESPOND MISSION: MASS CARE
506 Target Capabilities List
RESPOND MISSION: MASS CARE
Resource Element Description
Resource Elements Components and Description
Volunteer Agency Shelter
Management Team (Type I)
For 1,000 shelter residents: personnel (8 shelter managers, 16 assistant shelter
managers, 8 logistics supervisors, 8 feeding managers, 3 health services
workers, 12 mental heath services workers, 12 safety & asset protection
workers)
Volunteer Agency Shelter
Management Team (Type II)
For 750 shelter residents: personnel (6 shelter managers, 12 assistant shelter
managers, 6 logistics supervisors, 2 feeding managers, 6 health services
workers, 9 mental heath services workers, 9 safety & asset protection workers)
Volunteer Agency Shelter
Management Team (Type III)
For 500 shelter residents: personnel (4 shelter managers, 8 assistant shelter
managers, 4 logistics supervisors, 4 feeding managers, 6 health services
workers, 10 mental heath services workers, 6 safety & asset protection
workers)
Volunteer Agency Shelter
Management Team (Type IV)
For 250 shelter residents: personnel (2 shelter managers, 4 assistant shelter
managers, 2 logistics supervisors, 2 feeding managers, 3 health services
workers, 5 mental heath services workers, 3 safety & asset protection workers)
Voluntary Food Service
Delivery Unit (Type I)
Personnel (2 drivers); 1,500 vehicles (converted Ford F-450 with dual wheels,
22’ x 10’); food equipment (including 2 12-inch tongs, 2 6-ounce solids, 2 4-
ounce solids, 4 4-ounce slotted, 1 food thermometer); emergency equipment (2
fire extinguishers and 1 first aid kit); tools (including 2 flathead screwdrivers, 2
phillips screwdrivers, 1 allen or star wrench, 2 crescent wrench, 1 set of
open/closed end wrench, 1 pliers, 1 tire gauge); miscellaneous equipment
(including 1 mesh barrier/door, 1 visor organizer, 2 flashlights, 6 food cambros,
6 5-gallon beverage cambro, 1 satellite tracking unit, 6 cambro clips, 3 cambro
molds, 6 cargo straps, 3 road reflectors, 1 100-foot electrical extension, 1 lug
wrench, 1 jumper cable, 2 wheel chocks, 2-4 drainage plugs)
Voluntary Agency Field Kitchen
(Type I)
Personnel (40 workers capable of producing 30,000 meals); electrical
equipment (1 box fan, 1 propane space heater(s), 1 100kw generator, vendor
agreements for daily refueling of generators; 1 electrical drop/generator, 2
portable lighting system(s)); sanitation equipment (1 power washer, 12 portable
toilets, 1 hand wash stations, 1 public water system connection); transportation
equipment (10 rental truck(s)/van(s), 2 hand truck(s), 2 pallet jack(s), 1 3000-
3500 lbs outside forklift(s), 1 kitchen support trailer); emergency equipment (2
first-aid kit/supplies, 6 fire extinguishers); storage equipment (300 cs cambro
liners, 1 portable office trailer, 1 gray water storage system, 1 potable water
storage system & bulk water, 30 wood pallets, 2 dry storage drop trailer(s), 2
refrigerated drop trailer(s), 2 stretch wrap for palletizing); cleaning equipment
(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster,
1 steam jenny); administrative equipment (16 chairs, 4 tables); communication
equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio
system, 1 phone lines/satellite system, 6 cell phones, 1 fax machine/copier);
miscellaneous equipment (support material shipment, 2 drag chain w/ hooks, 8
padlocks, keyed alike, 2 wall tent/canopy, 10 tarps)
Voluntary Agency Field Kitchen
(Type II)
Personnel 30 workers capable of producing 20,000 meals); electrical
equipment (1 box fan, 1 propane space heater(s), 1 100kw generator, vendor
agreements for daily refueling of generators; 1 electrical drop/generator, 2
portable lighting system(s)); sanitation equipment (1 power washer, 10 portable
toilets, 1 hand wash stations, 1 public water system connection); transportation
Target Capabilities List 507
RESPOND MISSION: MASS CARE
Resource Elements Components and Description
equipment (6 rental truck(s)/van(s), 1 hand truck(s), 1 pallet jack(s), 1 3000-
3500 lbs outside forklift(s), 1 kitchen support trailer); emergency equipment (2
first-aid kit/supplies, 4 fire extinguishers); storage equipment (20 cs cambro
liners, 1 portable office trailer, 1 gray water storage system, 1 potable water
storage system & bulk water, 20 wood pallets, 1 dry storage drop trailer(s), 1
refrigerated drop trailer(s), 1 stretch wrap for palletizing); cleaning equipment
(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster,
1 steam jenny); administrative equipment (12 chairs, 3 tables); communication
equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio
system, 1 phone lines/satellite system, 4 cell phones, 1 fax machine/copier);
miscellaneous equipment (support material shipment, 2 drag chain w/ hooks, 6
padlocks, keyed alike, 2 wall tent/canopy, 8 tarps)
Voluntary Agency Field Kitchen
(Type III)
Personnel (20 workers capable of producing 10,000 meals); electrical
equipment (1 box fan, 1 propane space heater(s), 1 100kw generator, vendor
agreements for daily refueling of generators; 1 electrical drop/generator, 1
portable lighting system); sanitation equipment (1 power washer, 4 portable
toilets, 1 hand wash stations, 1 public water system connection); transportation
equipment (4 rental truck(s)/van(s), 1 hand truck(s), 1 pallet jack(s), 1 3000-
3500 lbs outside forklift(s), 1 kitchen support trailer); emergency equipment (1
first-aid kit/supplies, 2 fire extinguishers); storage equipment (10 cs cambro
liners, 1 portable office trailer, 1 gray water storage system, 1 potable water
storage system & bulk water, 10 wood pallets, 1 dry storage drop trailer(s), 1
refrigerated drop trailer(s), 1 stretch wrap for palletizing); cleaning equipment
(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster,
1 steam jenny); administrative equipment (8 chairs, 2 tables); communication
equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio
system, 1 phone lines/satellite system, 3 cell phones, 1 fax machine/copier);
miscellaneous equipment (support material shipment, 1 drag chain w/ hooks, 4
padlocks, keyed alike, 1 wall tent/canopy, 6 tarps)
Voluntary Agency Field Kitchen
(Type IV)
Personnel (15 workers capable of producing 5,000 meals); electrical equipment
(1 box fan, 1 propane space heater(s), 1 100kw generator, vendor agreements
for daily refueling of generators; 1 electrical drop/generator, 1 portable lighting
system(s)); sanitation equipment (1 power washer, 2 portable toilets, 1 hand
wash stations, 1 public water system connection); transportation equipment (4
rental truck(s)/van(s), 1 hand truck(s), 1 pallet jack(s), 1 3000-3500 lbs outside
forklift(s), 1 kitchen support trailer); emergency equipment (1 first-aid
kit/supplies, 2 fire extinguishers); storage equipment (5 cs cambro liners, 1
portable office trailer, 1 gray water storage system, 1 potable water storage
system & bulk water, 20 wood pallets, 1 dry storage drop trailer(s),1
refrigerated drop trailer(s), 1 stretch wrap for palletizing); cleaning equipment
(1 clean-up kits/supplies, 1 trash bags, trash removal service, 1 40 yd dumpster,
1 steam jenny); administrative equipment (8 chairs, 2 tables); communication
equipment (1 computer & printer, 1 antenna tower/repeater, 1 low band radio
system, 1 phone lines/satellite system, 3 cell phones, 1 fax machine/copier);
miscellaneous equipment (support material shipment, 1 drag chain w/ hooks, 4
padlocks, keyed alike, 1 wall tent/canopy, 6 tarps)
Voluntary Agency Field Support
Unit (Type I)
1 vehicle (48-53’ trailer); 2 drivers
Voluntary Agency Mobile
Kitchen (Small) (Type I)
3 workers (capable of producing 800 meals) [Commensurate with Salvation
Army Canteen]
Voluntary Agency Warehouse 1 facility (100,000 sq ft) with personnel (1 manager, 4 supervisors, 12 team
508 Target Capabilities List
RESPOND MISSION: MASS CARE
Resource Elements Components and Description
Team (Type I) leads, 33 workers)
Voluntary Agency Warehouse
Team (Type II)
1 facility (25,000 sq ft) with personnel (1 manager, 4 supervisors, 15 workers)
Voluntary Agency Warehouse
Team (Type III)
1 facility (15,000 sq ft) with personnel (1 manager, 3 supervisors, 11 workers)
Voluntary Agency Warehouse
Team (Type IV)
1 facility (10,000 sq ft) with personnel (1 manager, 2 supervisors, 7 workers)
Voluntary Agency Drop Trailer
Team
1 dry box trailer, 1 refrigerated trailer, 1 tractor, 1 driver, 1 forklift
Prepackaged meals Meal, Ready to Eat (MRE) via mission assignment and other private
corporations such as HeaterMeal
Shelter Childcare Team (Type 1) 1 worker per 3 infants and 1 worker per 5 non-infants; or 1 team per 250
shelter residents
Meals from contractors (e.g.,
vendors, caterers)
Contracted caterers and vendors
Type 1 Small Animal Sheltering
Team
Per NIMS, there are Type I, II, and III Small Animal Sheltering Teams
Small Animal Transportation
Team
Per NIMS, there is a Type I Small Animal Transport Team
Animal Incident Response Team Per NIMS, there is a Type I, II, and III Incident Management Team for Animal
Protection
Planning Assumptions
General population shelters management will make every attempt to accommodate people with
disabilities in general population shelters. In such cases where an individual cannot be
accommodated, care should be taken to ensure appropriate referral to a Functional and Medical
Support Shelter (formerly known as special needs shelter) or other appropriate facility.
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Major Earthquake scenario. Other scenarios were
reviewed to identify required adjustment or additions to the planning factors and national targets.
This capability applies to a wide range of incidents and emergencies, including major hurricanes,
improvised explosives, pandemic influenza, and improvised nuclear devices.
An immediate and sustained need for bulk distribution of relief supplies will be required.
Requirements will depend on the nature of the human needs produced by the incident.
Populations likely to require mass care services include the following: 1) Primary victims (with
damaged or destroyed homes; 2) Secondary and tertiary victims (denied access to homes); 3)
Transients (visitors and travelers within the affected area); and 4) Emergency workers (seeking
feeding support, respite shelter(s), and lodging).
Target Capabilities List 509
RESPOND MISSION: MASS CARE
In the initial phase (hours and days) of a catastrophic disaster, organized and spontaneous sheltering
will occur simultaneously within and at the periphery of the affected area as people leave the area.
Additional congregate sheltering may be required for those evacuating to adjacent population centers.
Mass care may need to be setup pre-incident for some types of incidents such as a hurricane where
evacuations occur prior to landfall. In other instances, the need for mass care may not emerge until
after an incident has occurred.
Depending on the nature of the incident, additional services such as decontamination may need to be
arranged prior to admission into a shelter facility.
The type of incident will affect when mass care services are required (e.g. hurricane may necessitate
mass care services being set-up pre-landfall for evacuees, an earthquake would be post-incident).
The location of the incident will affect the time needed for arrival on-scene.
The type of incident affects the time needed to verify shelter availability after evaluating structural
factors (e.g. accessibility, structural integrity, and level of contamination).
The type of incident will determine the timeliness of establishing feeding operations due to
accessibility of affected populations.
The population density will affect the demand for feeding at centralized sites.
The type of incident will determine the accessibility of affected populations in need of bulk
distribution services, and determine the availability of resources needed to conduct bulk distribution.
Shelters will likely experience large numbers of elderly with specific medication requirements and
other evacuees on critical home medical care maintenance regimens.
Significant numbers of Functional and Medical Support Shelters (formerly known as special needs
shelters) will likely be required as nursing homes and other similar care facilities are rendered
inoperable and are unable to execute their evacuation mutual aid plans and agreements with other
local facilities.
Family reunification within the affected area will be an immediate and significant concern as many
family members may be separated at the time of the event.
Populations with the resources to help themselves will be encouraged to take independent action.
Assume 763,000 people need mass care support: 313,000 will need shelter and feeding (3 meals a
day for the 313,000 people would equal 939,000 meals a day for shelters) immediately, and an
additional 450,000 people remaining in the affected area will need feeding. Shelter population will
vary between low during the day and higher at night.
More people will initially flee and seek shelter from terrorist attacks involving CBRNE agents that for
natural catastrophic disaster events. They will also exhibit a heightened concern for the health-related
implications related to the disaster agent.
Substantial numbers of trained mass care personnel will be required for an extended period of time to
sustain mass care sheltering and feeding activities.
Timely logistical support to shelters and feeding sites will be essential and required for a sustained
period of time. Food supplies from the U.S. Department of Agriculture (USDA) positioned at various
locations across the country will need to be accessed and transported to the affected area in a timely
manner.
Census data indicate that 20 percent of the population have a disability, 15 percent of people needing
mass care support have a physical or cognitive disability that will require some level of functional
care (i.e. personal care assistance, sign language interpreter, mobility assistance, etc.).
510 Target Capabilities List
RESPOND MISSION: MASS CARE
Twenty-five percent of the self-evacuee population will seek shelter out of the area.
Approximately 37,000 trained workers will be needed to support the general population (worker to
recipient ratio—1:30): 32,500 for shelter operations (30,000 within the affected area, 2,500 outside
the area) and 4,500 for other human services.
As a result of the incident, many local emergency personnel – paid and volunteer – that normally
respond to disasters may be dead, injured, involved with family concerns, or otherwise unable to
reach their assigned posts.
State and local resources will immediately be overwhelmed; thus, Federal assistance will be needed
immediately.
The event will exceed local capacity for trained mass care staff.
Service delivery to affected populations by voluntary agencies and NGOs will occur in locations
deemed safe by appropriate government officials.
Immediately following major CBRNE events, decontamination facilities may not be readily available
in all locations during the early stages of self-directed population evacuations. Unaware
contaminated persons therefore may seek entry to shelters. These facilities may, as a result, become
contaminated, adversely affecting resident health and general public trust.
The average population per shelter will rise with a catastrophic event (estimate 1,000 residents per
shelter, versus 250 residents typically) because fewer facilities will be available than the preplanning
estimation.
Public health and medical care will be a significant challenge as local emergency medical services
(EMS) resources and medical facilities will likely be overwhelmed quickly. The deployment of
public health and medical personnel and equipment to support medical needs will need to be
immediate and sustained by the U.S. Department of Health and Human Services.
Mental health services will be needed by victims and responders in and near the affected area, as well
as (on a lesser scale) throughout the nation.
Some previously identified structures will not be able to be shelters due to actual or potential damage.
Significant disruption of the affected area’s infrastructure, particularly power, transportation, and
communications systems, may occur.
Timely logistical support to shelters and feeding sites will be essential and required for a sustained
period of time.
Close liaison and coordination with numerous voluntary and nongovernmental organizations (NGOs)
will be necessary on the Federal, regional, state, and local levels.
Disaster welfare information may be a priority concern for family members throughout the nation.
Transient populations such as tourists, students, and foreign visitors, within the affected areas will
require assistance.
Coordination of information will be extremely important, including informing the public of different
types shelters available (e.g. companion animal shelter, Functional, and Medical Support Shelter).
Immediate response activities focusing on meeting urgent mass care needs should be located in safe
areas.
Adjacent communities need to be prepared to deal with significant numbers of evacuating persons
from the affected area. (Those host communities will also need significant mass care support.)
Co-located but separate companion animal shelters and general population shelters are desired.
Target Capabilities List 511
RESPOND MISSION: MASS CARE
If the general population shelter is not located near the companion animal shelter, more support staff
will be necessary in the animal shelter to feed, walk, and care for the animals.
The evacuation policy of an affected area will determine the number of companion animals arriving at
companion animal shelters.
Sixty percent of the affected population will have companion animals.
Scenarios typically count the number of persons in shelters as the basis for computing the number of
companion animals (CAs). In a scenario with many dead and injured people (which varies by type of
event), additional sheltering of CAs will be required. Some CAs will have perished in the same event
that killed or injured humans. The assumption is made that the number of animals needing shelter
will rise by 10 percent because their owners are either dead or injured.
Assume 14,000 workers (includes some owners and volunteers) will be needed for companion animal
care.
Companion (small) animal sheltering team requirements assume that the shelters will house only
animals. “Pet friendly” shelters (that include owner families with their companion animal) will have
a reduced need for staff after the initial setup.
USDA will coordinate Federal activities in support of companion animals.
Planning Factors from an In-Depth Analysis of a Scenario with Significant Demand for
the Capability (Major Earthquake)
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of Resources
Needed
Voluntary Agency Shelter
Management Team (Type
IV)
Capable of managing 1
shelter of 250 shelter
residents
(Note: In a catastrophic
event, the average number
of residents per shelter will
rise to an average of 1,000
per shelter, changing target
levels and type of Shelter
Team used to a Type I
Shelter Management
Team)
313,000 people
needing shelter
1,252 Type IV Shelter Teams
(an average of 250 people in
each shelter)
Voluntary Food Service
Delivery Unit (Type I)
Capable of distributing
1,500 meals per day in
accordance with safe food
handling requirements
1.5 million meals
delivered per day
1,000 food service/delivery
units (1,000 x 1,500 meals =
1,500,000)
Voluntary Agency Field
Kitchen (Type IV)
Capable of providing 5,000
meals per day
1.5 million meals
needed per day
300 Voluntary Agency Field
Kitchens (Type IV) (300 x
5,000 meals = 1,500,000)
Voluntary Agency Field
Kitchen (Type III)
Capable of providing
10,000 meals per day,
1.5 million meals
needed per day
150 Voluntary Agency Field
Kitchens (Type III) (150 x
10,000 meals = 1,500,000)
Voluntary Agency Field
Kitchen (Type II)
Capable of providing
20,000 meals per day
1.5 million meals
needed per day
75 Voluntary Agency Field
Kitchens (Type II) (75 x
512 Target Capabilities List
RESPOND MISSION: MASS CARE
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of Resources
Needed
20,000 meals = 1,500,000
Voluntary Agency Field
Kitchen (Type I)
Capable of providing
30,000 meals per day
1.5 million meals
needed per day
50 Voluntary Agency Field
Kitchens (Type I) (50 x 30,000
= 1,500,000)
Voluntary Agency
Mobile Kitchen (Type I)
Capable of providing 800
meals per day
1.5 million meals
needed per day
1,875 Voluntary Agency
Mobile Kitchens (1,875 x 800
meals = 1,500,000)
Voluntary Agency Field
Support Unit (Type I)
1 per Type IV kitchen
2 per Type III kitchen
3 Per Type II kitchen
4 per Type I kitchen
300 Type IV
kitchens
150 Type III
kitchens
75 Type II kitchens
50 Type I kitchens
300 Field Support Units for
Type IV
300 Field Support Units for
Type III
150 Field Support Units for
Type II
200 Field Support Units for
Type I
Voluntary Agency
Warehouse Team (Type
I)
Capable of providing
100,000 square feet
Need 100,000
square feet of space
1 Voluntary Agency Warehouse
Teams (Type I)
Voluntary Agency
Warehouse Team (Type
II)
Capable of providing
25,000 square feet
Need 100,000
square feet of space
4 Voluntary Agency Warehouse
Teams (Type II)
Voluntary Agency
Warehouse Team (Type
III)
Capable of providing
15,000 square feet
Need 100,000
square feet of space
7 Voluntary Agency Warehouse
Teams (Type III)
Voluntary Agency
Warehouse Team (Type
IV)
Capable of providing
10,000 square feet
Need 100,000
square feet of space
10 Voluntary Agency
Warehouse Teams (Type IV)
Voluntary Agency Drop
Trailer Team
Each kitchen site needs
each needing 1 drop trailer
for dry goods and 1 drop
trailer for refrigerated
goods
Maximum of 300
kitchen sites
300 Voluntary Agency Drop
Trailer Teams (1 dry goods
trailer x 300 kitchen sites max
plus 1 refrigerated goods trailer
x 300 kitchen sites = 600
trailers)
Prepackaged meals 1 meal per person
1.5 million meals
needed per day
1.5 million prepackaged meals
Shelter Childcare Team
(Type 1)
Capable of supporting
average 250 shelter
residents
313,000 people
needing shelter
1,252 Shelter Childcare Teams
(an average of 250 people in
each shelter)
Meals from contractors
(e.g., vendors, caterers)
1 meal per person
1.5 million meals
needed per day
1.5 million meals from
contractors
Type 1 Small Animal
Sheltering Team
Capable of handling 300
companion animals per
Shelter Team
193,000 animals
displaced
643 Type 1 Small Animal
Sheltering Teams
Animal Shelter
Management
Capable of managing and
coordinating 5-7 Shelter
193,000 animals
displaced
90-130 Animal Shelter
Management Coordination
Target Capabilities List 513
RESPOND MISSION: MASS CARE
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of Resources
Needed
Coordination Team Teams per team
Teams
(5-7 Animal Shelter
Coordination Teams x 90-130 =
643 Type 1 Small Animal
Sheltering Teams)
Small Animal
Transportation Team
2 Small Animal
Transportation Teams each
per Type 1 Small Animal
Sheltering Team
193,000 animals
displaced
1,286 Small Animal
Transportation Teams
Animal Incident
Response team
4 animal incident response
teams per Type 1 Small
Animal Sheltering Team
193,000 animals
displaced
2,725 Animal Incident
Response Teams
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
6
Per Jurisdiction with
population ≤10K
15
Per Jurisdiction with
population <10-25K
30
Per Jurisdiction with
population <25-50K
60
Per Jurisdiction with
population <50-100K
150
Per Jurisdiction with
population <100-250K
Volunteer
Agency Shelter
Management
Team (Type IV)
NIMS Typed
Resource
Organization
300
Per Jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Activate Mass Care
Direct Mass Care
Operations
Establish Shelter
Establish Feeding
Operations
Shelter General
Population
Close Shelter
Demobilize
3
Per jurisdiction with
population ≤10K
6
Per jurisdiction with
population 10K-25K
12
Per jurisdiction with
population 25K-50K
23
Per jurisdiction with
population <50-100K
56
Per jurisdiction with
population <100-250K
Type 1 Small
Animal
Sheltering Team
NIMS Typed
Resource
Organization
111
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Federal/State/
Local/NGO/
Private Sector
Shelter Companion
Animals
514 Target Capabilities List
RESPOND MISSION: MASS CARE
Resource
Element Unit
Type of
Element
# of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
5
Per jurisdiction with
population ≤10K
12
Per jurisdiction with
population 10K-25K
23
Per jurisdiction with
population 25K-50K
45
Per jurisdiction with
population <50-100K
111
Per jurisdiction with
population <100-250K
Small Animal
Transportation
Team
NIMS Typed
Resource
Organization
222
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Shelter Companion
Animals
9
Per jurisdiction with
population ≤10K
23
Per jurisdiction with
population 10K-25K
45
Per jurisdiction with
population 25K-50K
89
Per jurisdiction with
population <50-100K
222
Per jurisdiction with
population <100-250K
Animal Incident
Response Team
NIMS Typed
Resource
Organization
444
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Shelter Companion
Animals
1
Per jurisdiction with
population ≤10K
2
Per jurisdiction with
population 10K-25K
3
Per jurisdiction with
population 25K-50K
6
Per jurisdiction with
population <50-100K
16
Per jurisdiction with
population <100-250K
Voluntary agency
field kitchen
Type IV
NIMS Typed
Resource
Organization
30
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Feeding
Operations
Prepare and
Distribute Food
1
Per jurisdiction with
population <10K-25K
2
Per jurisdiction with
population <25K-50K
Voluntary agency
field kitchen
Type III
NIMS Typed
Resource
Organization
3
Per jurisdiction with
population <50-100K
Federal/State/
Local/NGO/
Private Sector
Establish Feeding
Operations
Prepare and
Distribute Food
Target Capabilities List 515
RESPOND MISSION: MASS CARE
Resource
Element Unit
Type of
Element
# of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
8
Per jurisdiction with
population <100-250K
15
Per jurisdiction with
population <250-500K
1
Per jurisdiction with
population <25K-50K
2
Per jurisdiction with
population <50-100K
4
Per jurisdiction with
population <100-250K
Voluntary agency
field kitchen
Type II
NIMS Typed
Resource
Organization
8
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Feeding
Operations
Prepare and
Distribute Food
1
Per jurisdiction with
population <25K-100k
2
Per jurisdiction with
population <100-250K
Voluntary agency
field kitchen
Type I
NIMS Typed
Resource
Organization
4
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Feeding
Operations
Prepare and
Distribute Food
4
Per jurisdiction with
population ≤10K
10
Per jurisdiction with
population <10K-25K
20
Per jurisdiction with
population <25K-50K
38
Per jurisdiction with
population <50-100K
100
Per jurisdiction with
population <100-250K
Voluntary agency
mobile kitchen
(Type I)
NIMS Typed
Resource
Organization
188
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Feeding
Operations
Prepare and
Distribute Food
1
Per jurisdiction with
population ≤10K-50K
2
Per jurisdiction with
population <50-250K
Voluntary
Agency
Warehouse Team
(Type IV)
Non-NIMS
Resource
Organization
3
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Bulk
Distribution
Operations
Conduct Bulk
Distribution
Operations
1
Per jurisdiction with
population ≤10K-100K
2
Per jurisdiction with
population <100-250K
Voluntary
Agency
Warehouse Team
(Type III)
Non-NIMS
Resource
Organization
3
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Bulk
Distribution
Operations
Conduct Bulk
Distribution
Operations
516 Target Capabilities List
RESPOND MISSION: MASS CARE
Resource
Element Unit
Type of
Element
# of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
1
Per jurisdiction with
population ≤10K-250K
Voluntary
Agency
Warehouse Team
(Type II)
Non-NIMS
Resource
Organization
2
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Bulk
Distribution
Operations
Conduct Bulk
Distribution
Operations
Voluntary
Agency
Warehouse Team
(Type I)
Non-NIMS
Resource
Organization
1
Per jurisdiction with
population ≤500K
Federal/State/
Local/NGO/
Private Sector
Establish Bulk
Distribution
Operations
Conduct Bulk
Distribution
Operations
2
Per jurisdiction with
population ≤10K
4
Per jurisdiction with
population <10K-25K
8
Per jurisdiction with
population <25K-50K
15
Per jurisdiction with
population <50-100K
38
Per jurisdiction with
population <100-250K
Voluntary
Agency Drop
Trailer Team
Non-NIMS
Resource
Organization
75
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Establish Bulk
Distribution
Operations
Conduct Bulk
Distribution
Operations
3,000
Per jurisdiction with
population ≤10K
7,500
Per jurisdiction with
population <10K-25K
15,000
Per jurisdiction with
population <25K-50K
30,000
Per jurisdiction with
population <50-100K
75,000
Per jurisdiction with
population <100-250K
Prepackaged
meals
Equipment
150,000
Per jurisdiction with
population <250-500K
Federal/State/
Local/NGO/
Private Sector
Prepare and
Distribute Food
6
Per jurisdiction with
population ≤10K
15
Per jurisdiction with
population <10K-25K
30
Per jurisdiction with
population <25K-50K
Voluntary
Agency Shelter
Childcare Team
(Type I)
Non-NIMS
Resource
Organization
60
Per jurisdiction with
population <50-100K
Federal/State/
Local/NGO/
Private Sector
Shelter General
Population
Target Capabilities List 517
RESPOND MISSION: MASS CARE
Resource
Element Unit
Type of
Element
# of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
150
Per jurisdiction with
population <100-250K
300
Per jurisdiction with
population <250-500K
Meals from
contractors (e.g.,
vendors, caterers)
Resource
Organization
1.75M
Nationally (1.5 Million
plus 250,000 capacity
needed to respond to
concurrent disasters)
Federal/State/
Local/NGO/
Private Sector
Prepare and
Distribute Food
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
518 Target Capabilities List
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Target Capabilities List 519
RESPOND MISSION: FATALITY MANAGEMENT
FATALITY MANAGEMENT
Capability Definition
Fatality Management is the capability to effectively perform scene documentation; the complete
collection and recovery of the dead, victim’s personal effects, and items of evidence; decontamination of
remains and personal effects (if required); transportation, storage, documentation, and recovery of
forensic and physical evidence; determination of the nature and extent of injury; identification of the
fatalities using scientific means; certification of the cause and manner of death; processing and returning
of human remains and personal effects of the victims to the legally authorized person(s) (if possible); and
interaction with and provision of legal, customary, compassionate, and culturally competent required
services to the families of deceased within the context of the family assistance center. All activities
should be sufficiently documented for admissibility in criminal and/or civil courts. Fatality management
activities also need to be incorporated in the surveillance and intelligence sharing networks, to identify
sentinel cases of bioterrorism and other public health threats. Fatality management operations are
conducted through a unified command structure
Outcome
Complete documentation and recovery of human remains and items of evidence (except in cases where
the health risks posed to personnel outweigh the benefits of recovery of remains). Remains receive
surface decontamination (if indicated) and, unless catastrophic circumstances dictate otherwise, are
examined, identified, and released to the next-of-kin’s funeral home with a complete certified death
certificate. Reports of missing persons and ante mortem data are efficiently collected. Victims’ family
members receive updated information prior to the media release. All hazardous material regulations are
reviewed and any restrictions on the transportation and disposition of remains are made clear by those
with the authority and responsibility to establish the standards. Law enforcement agencies are given all
information needed to investigate and prosecute the case successfully. Families are provided incident-
specific support services.
Relationship to National Response Plan ESF Annex
This capability supports the following Emergency Support Functions (ESFs):
ESF #4: Firefighting
ESF #8: Public Health and Medical Services
ESF #9: Urban Search and Rescue
ESF #10: Oil and Hazardous Materials Response
ESF #13: Public Safety and Security
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Res.C4a 1.1 Identify entity responsible for developing and maintaining plans, procedures, programs and
systems across all hazards
520 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Res.C4a 1.1.1 Involve Medical Examiner/Coroner (ME/C), emergency preparedness, public health, hospitals,
and funeral directors, at a minimum, in the development of plans and procedures
Res.C4a 1.1.2 Develop and maintain comprehensive fatality management mission critical list (i.e., facilities,
personnel and agencies)
Res.C4a 1.1.3 Develop contingency plan for obtaining surge personnel for fatality management
ResC4a 1.2 Develop plans, procedures, protocols, and systems for Scene Operations
ResC4a 1.3 Develop plans, procedures, protocols, and systems for Morgue Operations
ResC4a 1.4 Develop plans, procedures, protocols, and systems for Antemortem Data Management
ResC4a 1.5 Develop plans, procedures, protocols, and systems for Victim Identification
ResC4a 1.6 Develop plans, procedures, protocols, and systems for Final Disposition
ResC4a 1.6.6 Develop contingency plans for final disposition of remains
ResC4a 1.7 Develop plans, procedures, protocols, and systems for Fatality Surge
Preparedness Measures Metrics
A comprehensive fatality management plan is in place Yes/No
Fatality management plan addresses management of facilities (e.g. morgue locations,
portable and temporary morgues, decontamination, storage)
Yes/No
Fatality management plan addresses management of family relations (e.g. notification, grief
services, antemortem information)
Yes/No
Fatality management plan addresses victim identification (e.g. conduct DNA,
finger/palm/foot print analysis; compare morgue and Family Assistance Center information)
Yes/No
Fatality management plan addresses antemortem data management (e.g. establish record
repository and its housing facility, conduct DNA collection of family members, enter
interview data into library, balance victim needs with those who have lost family members)
Yes/No
Fatality management plan addresses personnel needs (e.g. medical, psychological, financial
assistance)
Yes/No
Fatality management plan addresses documenting on-site Fatality Management operations
(e.g. photographing, measuring, obtaining witness statements)
Yes/No
Frequency with which the comprehensive fatality management mission critical list (i.e.,
facilities, personnel and agencies) is reviewed and updated
Every 12 months
Frequency with which contingency plans with local, State, and private entities regarding
final disposition of remains (e.g., contaminated, unclaimed remains) are updated
Every 2 years
Frequency with which contingency plans with local, State, and private entities regarding
surge (e.g., pandemic flu, natural disasters, terrorism) are updated
Every 2 years
Frequency with which the collection, storage and management of antemortem data is
updated
Every 2 years
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Res.C4a 2.1 Develop and implement training programs for fatality management
Target Capabilities List 521
RESPOND MISSION: FATALITY MANAGEMENT
Res.C4a 2.2 Develop and implement exercise programs for fatality management
Preparedness Measures Metric
Frequency with which training is conducted for augmented fatality management personnel
(i.e., law enforcement, fire, dental ID team, anthropologists, funeral directors)
Every 2 years
Frequency with which exercises are conducted contingency plans with local, State, and
private entities regarding final disposition of remains (i.e., contaminated, unclaimed
remains)
Every 2 years
Frequency with which exercises are conducted for contingency plans with local, State,
and private entities regarding surge (i.e., pandemic flu, natural disasters, terrorism)
Every 2 years
Frequency with which training is conducted on the collection, storage and management of
antemortem data
Every 2 years
Performance Tasks and Measures/Metrics
Activity: Direct Fatality Management Tactical Operations
Definition: Direct all internal Fatality Management Operations, coordinating with other capabilities
as needed
Critical Tasks
Res.C4a 3.1
Coordinate Fatality Management
Res.C4a 3.6.1
Coordinate Federal mortuary/morgue services
Res.C4a 3.6.2
Coordinate with local legal authority in mortuary affairs
Res.C4a 3.4.3
Coordinate State assistance for next-of-kin notification and collection of antemortem information
Res.C4a 3.1.1
Identify medico-legal authority
Res.C4a 3.1.2
Coordinate with medical facility/Department of Public Health/general medical community
Res.C4a 3.2.1
Develop fatality management inputs to an incident action plan (IAP) by evaluating previously
developed plans, procedures, protocols, and systems
Res.C4a 3.1.4
Coordinate with public health and regulatory agencies to develop plans, procedures, and
protocols to protect fatality management personnel from infectious diseases, environmental,
radiological, chemical, and other hazards when handling remains
Res.C4a 3.3.1 Identify key morgue staff
Res.C4a 3.4.1
Identify Medical Examiner/Coroner staff for antemortem data collection in Family Assistance
Center
Res.C4a 3.5.1
Coordinate regional and State assistance for victim identification and mortuary services, and the
processing, preparation, and disposition of remains
Performance Measures Metric
Surge morgue resources are activated Yes/No
Time in which suitable facilities for fatality management activities are located
Within 18 hours from
report of deceased
victims
522 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Activity: Activate Fatality Management Operations
Definition: Notify and mobilize appropriate personnel
Critical Tasks
Res.C4a 4.1 Activate scene operations
Res.C4a 4.2.1 Mobilize medical examiner/coroner
Res.C4a 4.2.5 Provide primary care physician with medico-legal authority
Res.C4a 4.3.1 Deploy portable morgue as appropriate
Res.C4a 4.2 Activate and implement fatality surge plan
Res.C4a 4.3.2 Determine morgue location
Res.C4a 4.4 Request activation of DMORT as appropriate
Performance Measures Metric
Appropriate number of physicians with medical legal authority are available based on
incident needs
Yes/No
Time in which functional morgue facilities (e.g., portable morgue) are set up Within 24 hours from
arrival on-scene
Time in which surge resources and personnel are operational Within 12 hours from
callout
Time in which DMORT arrives on-scene and sets up Within 72 hours from
callout
Activity: Conduct On-scene Fatality Management Operations
Definition: Conduct scene evaluation, document, and remove fatalities from scene
Critical Tasks
Res.C4a 5.1 Conduct scene survey for fatality management operations
Res.C4a 5.2 Document scene for fatality management operations
Res.C4a 5.2.2
Document (photograph, measure, obtain witness statements) in a manner consistent with the
Medical Examiner/Coroner’s incident plan
Res.C4a 5.3.1 Gather forensic evidence for fatality management operations
Res.C4a 5.5 Remove remains to staging
Res.C4a 5.4 Decontaminate remains
Res.C4a 5.5.2 Recover human remains in a dignified manner
Res.C4a 5.5.3 Transport remains to staging
Res.C4a 5. Transfer remains from staging to morgue operations
Target Capabilities List 523
RESPOND MISSION: FATALITY MANAGEMENT
Performance Measures Metric
Time in which initial scene survey is completed Within 2 hours from
notification
Time in which appropriate refrigerated storage units arrive on-scene Within 48 hours from
notification
Activity: Conduct Morgue Operations
Definition: Store remains temporarily, and conduct multi-specialty forensic analysis of human
remains to determine the cause and manner of death
Critical Tasks
Res.C4a 6.1 Implement morgue operations
Res.C4a 6.3 Receive remains at morgue
Res.C4a 6.4 Store human remains
Res.C4a 6.6.2 Package personal effects found with remains for return to next of kin (if possible)
Res.C4a 6.5 Perform autopsies
Performance Measures Metric
Percent of remains tracked through morgue 100%
Percent of personal effects tracked with appropriate set of remains 100%
Percent of complete and accurate records following quality control procedure 100%
Activity: Manage Antemortem Data
Definition: Initiate plan for the collection and management of antemortem information from family
members and other sources
Critical Tasks
Res.C4a 7.1 Activate antemortem data collection activities
Res.C4a 7.1.1 Establish antemortem record repository and its housing facility
Res.C4a 7.2 Conduct collection of antemortem information
Res.C4a 7.2.3 Conduct DNA collection of family members
Res.C4a 7.4 Enter data obtained in interviews into library
Res.C4a 7.3
Implement a balanced approach to address the needs of victims versus those families who have
lost family members
Performance Measures Metric
Time in which a communications system is activated for the general public to report
missing persons
Within 60 minutes
from incident
Time in which first public announcement is made of missing persons reporting Within 4 hours from
incident
524 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Time in which Jurisdictional Medical Examiner/Coroner (ME/C) participates in the
family assistance center (if one is established)
Within 2 hours from
Family Assistance
Center establishment
Time in which the antemortem information collection process is activated and staffed Within 48 hours from
incident
Time in which the repository/library is ready to receive antemortem victims’ records from
establishment of Family Assistance Center (FAC)
Within 48 hours from
incident
Activity: Conduct Victim Identification
Definition: Compile antemortem records of missing individuals and compare those to the
repository of postmortem data collected through On-scene and Morgue Operations
Critical Tasks
Res.C4a 8.1 Activate victim identification operations
Res.C4a 8.2.5 Compare data from morgue and Family Assistance Center
Res.C4a 8.2.1 Conduct DNA analysis as indicated
Res.C4a 8.2.2 Conduct fingerprint/palmprint/footprint analysis
Res.C4a 8.2.3 Check with local/State/Federal/international databases
Res.C4a 8.3 Identify remains
Performance Measures Metric
Percent of recovered remains identified 100%
Time in which antemortem and postmortem medical, dental, and fatality management
databases are ready to receive records from establishment of Family Assistance Center
(FAC)
Within 48 hours from
FAC establishment
Activity: Conduct Final Disposition
Definition: Return the human remains and personal effects to the families or designated legal
authority (ie, ME/C, Sheriff) for final disposition following recovery, decontamination,
determination of the cause and manner of death and positive identification
Critical Tasks
Res.C4a 9.1 Activate final disposition operations
Res.C4a 9.1.1 Issue death certificate
Res.C4a 9.2 Notify next-of-kin
Res.C4a 9.2.1 Release remains to next-of-kin or local authorities if no next-of-kin are identified
Res.C4a 9.2.4 Return affects to next-of-kin
Performance Measures Metric
Percent of deceased individuals for whom death certificate is issued 100%
Target Capabilities List 525
RESPOND MISSION: FATALITY MANAGEMENT
Activity: Demobilize Fatality Management Operations
Definition: Return all fatality management assets and resources to pre-incident readiness levels
Critical Tasks
Res.C4a 10.2 Reconstitute fatality management personnel and equipment
Res.C4a 10.2.1 Participate in operational review of fatality management operations
Res.C4a 10.3.1 Identify fatality management staff post-operational needs
Res.C4a 10.3.2
Provide information to fatality management personnel on where and how to obtain medical,
psychological, and financial assistance
Performance Measures Metric
Time in which irretrievable resources are re-ordered
Within 48 hours from
start of demobilization
Percent of fatality management personnel participating in operational review 100%
Linked Capabilities
Linked Capability Relationship
On-Site Incident
Management
Fatality Management integrates itself into the local Incident Command/Unified
Command system. On-Site Incident Management also provides the initial notification
of deaths to Fatality Management.
Search and Rescue
(Land-Based)
Fatality Management receives deceased victims from Search and Rescue (Land-Based)
personnel.
Emergency Triage and
Pre-Hospital Treatment
Fatality Management receives deceased victims from Emergency Triage and Pre-
Hospital Treatment personnel.
WMD and Hazardous
Materials Response and
Decontamination
Fatality Management receives deceased victims from HazMat personnel.
Fire Incident Response
Support
Fatality Management receives decease victims from Fire Incident Response Support
personnel.
Emergency Public Safety
and Security Response
Fatality Management receives deceased victims from Emergency Public Safety and
Security Response personnel. This capability also provides perimeter security for
Morgue Operations.
Emergency Public
Information and Warning
Emergency Public Information provides information on family assistance to next-of-kin
Counter-Terror
Investigation and Law
Enforcement
Fatality Management receives access to law enforcement databases to aid the victim
identification.
Epidemiological
Surveillance and
Investigation
Fatality Management coordinates with Epidemiological Surveillance and Investigation
in determining if a death is the result of an exposure or disease.
526 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Direct Fatality
Management
Tactical
Operations
Conduct Victim
Identification
Manage
Antemortem Data
Notification of deaths
Conduct
On-scene Fatality
Management
Operations
Autopsy
warranted?
Conduct Final
Disposition
Demobilize Fatality
Management
Operations
End: Remains identified and
returned to family, death
certificates issued
Estimate number of anticipated fatalities
Identify location and hazards
Provide location
of Family
Assistance Center
Utilize Law Enforcement databases
Provide number of remains recovered
Cause of death determined
Provide cause of
death information if
communicable
disease suspected
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Start:
Notification
of deaths
On-Site Incident
Management
Search and
Rescue (Land-
Based)
Emergency
Triage and Pre-
Hospital
Treatment
WMD/Hazardous
Materials
Response and
Decontamination
Remains provided
Database information
provided
Epidemiological
Surveillance and
Investigation
Remains documented and
transported to morgue
Victim identified,
cause of death
determined, death
certificate issued
No
Yes
Remains identified
All recovered remains identified and
returned to next of kin or legal authority
Remains
transported
to morgue
Remains provided
Provide perimeter
security
Emergency Public
Information and
Warning
Location
of Family Assistance
Center provided
Resources requested
Personnel identified, mobilized, and
on-scene ready to begin operations
Capability Activity Process Flow
Fatality Management Capability
Linked
Capabilities
Relationship
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Fire Incident
Response Support
Counter-Terror
Investigation and
Law Enforcement
Emergency
Public Safety
and Security
Response
Target Capabilities List 527
RESPOND MISSION: FATALITY MANAGEMENT
Resource Element Description
Resource Elements Components and Description
Department of Defense Mortuary
Disaster Mortuary Operational Response Team
(DMORT) – Type 1
Per NIMS
DMORT - WMD Per NIMS
DMORT-Family Assistance Center (FAC) Personnel: Family Assistance Center (FAC) manager, DNA
specialist, data entry, administrative, FAC core support
elements, scheduler, medical records specialist, interview
specialist, language interpreter (all necessary languages),
antemortem IT/communications team, notification team,
social services rep/Chaplain, ME/C public affairs officer
Deployable Portable Morgue Unit (DPMU) Per NIMS
Morgue Operations Team Personnel: Funeral director or embalmer, body tracker (should
be funeral directors, medico-legal investigators (MLI) or
similar), forensic odontologist team, fingerprint specialist, X-
Ray technician or radiologist, postmortem IT manager, post-
mortem data entry clerk, forensic anthropologist, DNA
specialist, forensic pathology team, PE technician (MLI),
evidence technician (LEO), lab technicians, security team,
safety officer
Morgue Security Team
DOJ/FBI Evidence Response Team Unit
Body Recovery Unit
Medical Support Team
Field Investigative Unit Per DPMU. Personnel: Medico-Legal Investigator (MLI),
Law Enforcement Investigative Unit, Photographer (Photo),
Scribe/GPS coordinates (Scribe), Anthropologists, Dental
Team
Scene Logistics Team
Escort Security Team (provided by ESF 13)
FM Staging Security Team
Incident Historian
Remains Decontamination Team
Underwater Recovery Team
(provided by ESF 9)
Jurisdictional Medical Examiner/Coroner
(ME/C)
Refrigerated storage
Mortuary Officers (Funeral Directors)
Family Assistance Center (FAC)
528 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Resource Elements Components and Description
personnel/Antemortem Data Collection Team
Medical Examiner/Coroner Public Affairs
Officer
ME/C Public Information Officer
Scene operations personnel/Recovery Team:
(per 12 hr shift)
Safety Officer
Scene Communications Team
Storage Officer
FAC Manager
DNA Specialist 20 personnel from law enforcement or DNA specialists per
shift
Data entry
Administrative
Scheduler
Medical Records Specialist
Interview Specialist
Language Interpreter (all necessary languages)
Antemortem IT/Communications Team
Notification Team
Social services representative /chaplain
Law Enforcement
Embalming Section
Body Tracker One or more Funeral Directors, MLIs, or similar personnel
Dental Section
Fingerprint Section
Radiology Section (digital equipment)
Postmortem IT Manager
Post-Mortem Data Entry Clerk
Anthropology Section
DNA Section
Pathology Section
Personnel Effects and Photography Section
Logistics Section
Safety Officer
Medical Team
Target Capabilities List 529
RESPOND MISSION: FATALITY MANAGEMENT
Resource Elements Components and Description
City Engineers/Inspectors
State Dental Association (Response Team)
State ME/C Association (Response Team)
State Funeral Director Association (Response
Team)
NTSB Family Assistance Team
DHS National Disaster Medical System’s
(NDMS) Disaster Medical Assistance Teams
(DMAT)
DHS Nuclear Incident Support Teams (NIST)
Planning Assumptions
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the Improvised Nuclear Device (IND) scenario. Other
scenarios were reviewed to identify required adjustments or additions to the planning factors and
national targets.
This Capability applies to a wide range of incidents and emergencies, accidental or deliberate
including disease outbreaks, geological and meteorological disasters, nuclear, hazardous materials
(hazmat) or conventional events and all manners of transportation incidents (land, air, marine).
Family members will mobilize to the incident scene to search for loved ones.
Families will surge for information on unaccounted family members and share information on
unaccounted family members.
Recovery and identification of remains is expected to continue for multiple years.
Active duty military will be victims in the event. Therefore, the military’s Casualty Assistance Office
will be involved.
Emergency workers, including those necessary for fatality management, may not report to duty due to
evacuating their families or because they have been injured or killed.
Sceneops: After the recovery process begins, a Recovery team (consisting of Field Investigation and
Body Handling Units) will process 3 bodies/hour (for a 12-hr shift).
Under ideal circumstances (non-contaminated, physically identifiable, and intact remains), the Dover
Mortuary – at full resource activation (12 (Medical Examiner/Coroner (ME/C), plus support staff and
logistic support) – can handle 100 cases per day.
Antemortem Data Collection In The Family Assistance Center (FAC) A 2-person interview team in
the FAC requires 2 hours/family interview (+ breaks). 5 families can be interviewed over the course
of a 12-hour shift by one team. Additional support elements handle the collection and management of
specimens (DNA) and records (medical).
Morgueops: One 35-member Morgue Operations team can process and positively identify 5
bodies/day (based on historical data – see attachment A)
The National Association of Medical Examiners recommends that a pathologist can adequately
perform 250-350 autopsies per year.
Scene hazards such as structural collapse, explosives and chemical hazards are communicated to the
ME/C upon notification and/or arrival.
530 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Fatality management staffing includes ME/C, funeral service personnel, cemetery and crematorium
personnel, dentist, anthropologist, crime lab technician, and any other person whose responsibility
involves direct handling of human remains.
The ME/C is defined as the agency chief and all staff authorized to act on behalf of his/her authority
(e.g., Medico Legal Investigators [MLI]).
Community leaders will support the time requirements to conduct a safe, efficient, methodical, and
complete collection of human remains and evidence for the purposes of crime scene investigation for
law enforcement (LE) and victim ID for the ME/C.
As worker safety permits, remains, personal effects and items of evidence will be processed by
fatality management personnel in accordance with incident action plan (IAP).
Deaths will be protracted and require medical treatment facilities to report deaths to ME/C.
There will be multiple sites for managing fatalities in multiple jurisdictions.
ME/C may have to institute a unified command with other ME/C.
ME/C may have to institute a decentralized approach due to lack of communications and
geographical distribution.
Different jurisdictions have different laws about public health emergencies and who has authority.
Different jurisdictions have different laws pertaining to the issuance of death certificates when there
is no scientific evidence of an individual’s remains.
Different jurisdictions may have different standards for processing remains, identifying remains,
ruling out atypical cases, those requiring autopsy and establishing cause and manner of death.
There may be a large discrepancy in the identification and release of bodies among jurisdictions.
In the event of widely dispersed mass fatalities, significant damage to infrastructure, and/or where the
risks posed to Fatality Management personnel outweigh the benefit of conducting scene operations,
performance of critical tasks will take longer to accomplish
IND in a single event located in a major urban area.
The explosion and electromagnetic pulse have disrupted/destroyed infrastructure, taking out
communications, electrical grids, water, transportation, and computers at ground zero. Electrical
outages may cascade down the stem causing blackouts on the entire Eastern seaboard.
There may be simultaneous transportation accidents due to flash blindness or permanent retinal
damage in operators.
The Federal Government would be severely impacted with cascading implications.
There will be up to 229,270 fatalities.
Due to the severity of the explosion, no remains will be found in the crater (30 percent of fatalities =
68,781). However, appropriate legal document will be required to be generated by the medical-legal
authority (death certificate by judicial decree).
Some remains will be in areas of high levels of fallout. (20 percent of fatalities = 45,854). These
remains in the hot zone will not begin to be recovered until between 3 and 14 days after incident at
which time the radiation level should be approximately 0.1 percent of its initial level following the
detonation of the IND.
The majority of remains available for immediate processing (50 percent of fatalities = 114,635) will
be burn victims in areas where radiation is not hazardous.
The local ME/C is no longer operationally functional due to the effects of the IND. Mutual aid with
the adjoining medical examiner system will respond to assist the local medical examiner.
Target Capabilities List 531
RESPOND MISSION: FATALITY MANAGEMENT
Decontamination: At present, decontamination assets are at the Federal level and consist of one
Department of Defense (DOD) team and one Disaster Mortuary Operational Response Team –
Weapons of Mass Destruction (DMORT-WMD) team. These resources would take 12 – 24 hours to
arrive on-scene after receiving orders and could process up to 25 bodies/hour. This assumption does
not include the actual recovery of the contaminated remains.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability
Resource Organization Estimated
capacity
Scenario
Requirement
values
Quantity of
resources needed
Disaster Mortuary Response
Team (DMORT)
DMORT-WMD
DMORT Family Assistance
Team
Deployable Portable Morgue
Unit (DPMU)
2 2 2
Morgue operations Team
Time frames are
based on 1.5 hrs
to perform each
autopsy.
112,000 set of remains
to autopsy.
A morgue ops team this
size can process 100 sets of
remains per day (12 hour
shift per morgue)
Security Team (provided by
ESF 13)
Body Recovery Unit
1 Body Recovery
Unit for each
Field
Investigative
Unit. 4 body
handlers per
team
15 units per 12 hr shift
(5 units suiting, 5 in
field and 5 coming out
of field)
414 days
Medical Support Team
Field Investigative Unit
Each unit can
recover 36
bodies per shift
15 units per 12 hr shift
(5 units suiting, 5 in
field and 5 coming out
of field)
414 days
Scene Logistics Team 1 per incident 1 per incident 414 days
Escort Security Team
(provided by ESF 13)
1 per field
investigative
unit, 1 per body
recovery unit
10 teams per 12 hr shift 414 days
FM Staging Security Team
2 teams, one for
hot and cold
414 days
532 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Resource Organization Estimated
capacity
Scenario
Requirement
values
Quantity of
resources needed
staging areas
Incident Historian
1 team per
incident
1 team per incident 1 team
Remains Decontamination
Team
2 remains per 1
hr per 35
member team
16 teams per day 388 days
Underwater Recovery Team
(provided by ESF 9)
Jurisdictional Medical
Examiner/Coroner (ME/C)
1 per jurisdiction 1 per jurisdiction
1 for each jurisdiction
affected
Family Assistance Center
(FAC) personnel/Antemortem
Data Collection Team
Historical data
shows 10 family
members will
present at the
FAC for each
victim.
If FACs are established
for the IND scenario we
assume 1,000,000 will
present at FACs/FAC.)
However, it may well be
that antemortem
information will be
collected telephonically.
Medical Examiner/Coroner
Public Affairs Officer
1 per shift 2 per day 6 per day
ME/C Public Information
Officer
1 1 1
Scene operations
personnel/Recovery Team:
(per 12 hr shift)
Safety Officer 1 per incident 1 per incident 414 days
Scene Communications Team 1 per incident 1 per incident 414 days
Storage Officer 1 per incident 1 per incident 414 days
FAC Manager 1 per FAC 1 per FAC
1 per affected jurisdiction =
3
DNA Specialist
each specialist
can collect 2
samples per hour
40 per day for each FAC 120 per day
Data entry 50-60 personnel
120 per day for each
FAC
360 per day
Administrative 5 per shift 10 per day 30 per day
Scheduler 2 personnel 4 per day 12 per day
Medical Records Specialist
10 personnel per
20 per day 60 per day
Target Capabilities List 533
RESPOND MISSION: FATALITY MANAGEMENT
Resource Organization Estimated
capacity
Scenario
Requirement
values
Quantity of
resources needed
shift
Interview Specialist
100 teams of 2
each per shift –
each team can
interview 5
families per day
200 per day - 600 per day
Language Interpreter (all
necessary languages)
As situation
dictates
Antemortem
IT/Communications Team
5 personnel per
team per shift
10 per day 30 per day
Notification Team
20 per daytime
shift
20 per day 60 per day
Social services representative
/chaplain
As determined
by social
services/chaplain
Law Enforcement
As determined
by law
enforcement
Embalming Section
4 personnel per
station
48 personnel (8
embalmings per shift)
1100 days
Body Tracker (should be
Funeral Directors, MLI’s or
similar)
8 personnel per
shift
16 personnel per day 1100 days
Dental Section
5 personnel per
station
10 personnel per day 1100 days
Fingerprint Section
2 personnel per
station
4 per day 1100 days
Radiology Section
(digital equipment)
2 personnel per
station
4 per day 1100 days
Postmortem IT Manager
1 = section
leader
2 per day 1100 days
Post-Mortem Data Entry Clerk 3 per section 6 per day 1100 days
Anthropology Section
2 personnel per
section
4 per day 1100 days
DNA Section
2 personnel per
section
4 per day 1100 days
Pathology Section
3 personnel per
section
6 per day 1100 days
534 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Resource Organization Estimated
capacity
Scenario
Requirement
values
Quantity of
resources needed
Personnel Effects and
Photography Section
4 personnel per
section
8 per day 1100 days
Logistics Section
4 personnel per
shift
8 per day 1100 days
Safety Officer 1 per shift
Medical Team 1 per morgue
City Engineers/Inspectors
State Dental Association
(Response Team)
State ME/C Association
(Response Team)
State Funeral Director
Association (Response Team)
NTSB Family Assistance
Team
DHS National Disaster
Medical System’s (NDMS)
Disaster Medical Assistance
Teams (DMAT)
DHS Nuclear Incident Support
Teams (NIST)
Approaches for Large-Scale Events
(Please see introduction to Fatality Management Target Capability document as well as discussion of IND
earlier in this document).
Pandemic Influenza
Personnel involved in fatality management should be considered as critical and be given as the same
priority group determination as first responders for the distribution of limited antiviral medications
and vaccines.
Because pandemic influenza is a natural disease event, the Medical Examiner/Coroner (ME/C) may
or may not have the lead responsibility to manage fatalities. In some areas, local jurisdictional
authorities in coordination with hospitals, funeral homes, and EMS and law enforcement responders
will likely manage the remains. In some jurisdiction, the Medical Examiner/Coroner’s (ME/C)
primary role may be to assist in the identification process.
The influenza pandemic would spread quickly across the United States, affecting most communities
virtually simultaneously for purposes of planning. The use of assets at the Federal Government
would likely be relatively small related to the local demands for its voluntary DMORT members.
Similarly, DOD assets would likely be stretched very thin.
Target Capabilities List 535
RESPOND MISSION: FATALITY MANAGEMENT
Among working aged adults, about 20 percent to 25 percent will become ill during the pandemic
wave. About 10 percent will be sick or caring for ill family members during the peak of the
community outbreak. Rates could be higher in some communities or work settings.
Aerosol Anthrax
Fatalities would be victims of crime (terrorism)
Most would die in medical facilities; could be dispersed geographically
ME/C in coordination with law enforcement would need to establish what level of evidence would
need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number)
Fatality Management workers should be treated as first responders are with respect to personal
protective equipment (PPE) and medications/vaccinations.
The need for restrictions on final disposition, if any, e.g. cremation should be addressed in the
planning process and implemented in the response.
Pneumonic Plague
Criminal event (terrorism).
ME/C in coordination with law enforcement would need to establish what level of evidence would
need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number)
Due to person-to-person transmission, some of the same issues as pandemic influenza.
The need for restrictions on final disposition (cremation), precautions for transportation of remains,
decontamination of transport vehicles, and other issues should be addressed in the planning process
and implemented in the response.
Fatality Management workers should be treated as first responders are with respect to PPE and
medications/vaccinations.
Blister Agent
Criminal event so ME/C would be heavily involved.
Fatalities would need to be decontaminated unless this had occurred en route to medical treatment.
Toxic Industrial Chemical
Fatalities would need to be decontaminated unless this had occurred en route to medical treatment.
State, Regional, or Federal assets may be needed depending on the jurisdiction in which it occurs.
Nerve Agent
ME/C in coordination with law enforcement would need to establish what level of evidence would
need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number)
Fatalities would need to be decontaminated unless this had occurred en route to medical treatment.
Due to the large number of fatalities, all levels of governmental response would likely be activated.
Chlorine Tank Explosion
ME/C in coordination with law enforcement would need to establish what level of evidence would
need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number)
Fatalities would need to be decontaminated unless this had occurred en route to medical treatment.
Due to the large number of fatalities, all levels of governmental response would likely be activated.
Major Earthquake
Search & Rescue (Land-Based) would be heavily involved in extracting remains from collapsed
structures. The rate of recovery would influence the mortuary workload.
536 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
The severe damage to infrastructure as well as large number of infrastructure makes it likely that a
centralized call center outside the region would be established to collect missing persons reports and
help reunite families/friends and determine those likely dead. This would also reduce the strain posed
by bringing personnel into an area already strapped for shelter, food, etc. Antemortem data could be
collected telephonically as needed. These capabilities could be returned to the State as infrastructure
is re-established.
While this is a natural event, ME/C would likely be heavily involved in the identification process of
remains.
Radiological Dispersal
Due to criminal nature of event, ME/C and law enforcement would work together closely.
Those who are killed by the explosion would need decontamination. Those dying later in a medical
facility should not require this.
Improvised Explosive Device
Due to criminal nature of event, ME/C and law enforcement would work together closely.
Depending on the location, the number of fatalities could require State, regional, and, perhaps,
Federal assistance to manage the surge.
Food Contamination
ME/C in coordination with law enforcement would need to establish what level of evidence would
need to be collected from remains (e.g., would 100 percent need autopsies, or some lesser number)
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported
by Element
Department of
Defense Mortuary
Federal
Resource
Organization
1 Nationally Federal
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Manage
Antemortem Data
Conduct Victim
Identification
Conduct Final
Disposition
Demobilize
Disaster Mortuary
Operational
Response Team
(DMORT) – Type
1
NIMS
Resource
Organization
Nationally (DHS
FEMA NDMS)
Federal
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Conduct Morgue
Operations
Demobilize
Target Capabilities List 537
RESPOND MISSION: FATALITY MANAGEMENT
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported
by Element
DMORT - WMD
NIMS
Resource
Organization
Nationally (DHS
FEMA NDMS)
Federal
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
DMORT-Family
Assistance Center
(FAC)
Non-NIMS
Resource
Organization
Nationally (DHS
FEMA NDMS)
Federal
Activate Fatality
Management
Operations
Manage
Antemortem Data
Demobilize
Deployable
Portable Morgue
Unit (DPMU)
NIMS
Resource
Organization
3
Nationally (DHS
FEMA NDMS)
Federal
(DHS/FEMA)
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
Deployable
Portable Morgue
Unit (DPMU)
NIMS
Resource
Organization
1 Per every 5 States State
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
Morgue Operations
Team
Non-NIMS
Resource
Organization
1
Per Federal
Deployable Portable
Morgue Unit
Federal
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
Morgue Operations
Team per DPMU
Non-NIMS
Resource
Organization
1
Per State
Deployable Portable
Morgue Unit
State
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
Morgue Security
Team
Non-NIMS
Resource
Organization
1
Per Federal or State
Deployable Portable
Morgue Unit
State/Local
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
DOJ/FBI Evidence
Response Team
Unit
Non-NIMS
Resource
Organization
Federal
Activate Fatality
Management
Operations
Conduct On-
538 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported
by Element
scene Operations
Demobilize
Body Recovery
Unit
Non-NIMS
Resource
Organization
30
Per Federal or State
Deployable Portable
Morgue Unit
Federal/State
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Medical Support
Team
Non-NIMS
Resource
Organization
1
Per Federal or State
Deployable Portable
Morgue Unit
Federal/State
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Field Investigative
Unit
Non-NIMS
Resource
Organization
30
Per Federal or State
Deployable Portable
Morgue Unit
Federal/State
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Scene Logistics
Unit
Non-NIMS
Resource
Organization
1
Per Federal or State
Deployable Portable
Morgue Unit
Federal/State
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Escort Security
Team
Non-NIMS
Resource
Organization
30
Per Federal or State
Deployable Portable
Morgue Unit
Federal/State
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Fatality
Management
Staging Security
Team
Non-NIMS
Resource
Organization
1 Per staging area (26) State/Local
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Incident Historian
Team
Non-NIMS
Resource
Organization
1 Per State State
Direct Fatality
Management
Tactical
Operations
Activate Fatality
Management
Operations
Conduct On-
Target Capabilities List 539
RESPOND MISSION: FATALITY MANAGEMENT
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported
by Element
scene Operations
Conduct Morgue
Operations
Manage
Antemortem Data
Conduct Victim
Identification
Demobilize
Remains
Decontamination
Team
Non-NIMS
Resource
Organization
16
Per State
Deployable Portable
Morgue Unit
State/Local
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Conduct Morgue
Operations
Demobilize
Dive (underwater)
Recovery Team
Non-NIMS
Resource
Organization
28
Nationally at pre-
determined
locations
Federal
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Dive (underwater)
Recovery Team
Non-NIMS
Resource
Organization
1 Per State State
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Demobilize
Medical Examiner/
Coroner
Personnel 1 Per State State
Direct Fatality
Management
Tactical
Operations
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Conduct Morgue
Operations
Conduct Victim
Identification
Conduct Final
Disposition
Demobilize
Medical Examiner/
Coroner
Personnel 1 Per jurisdiction Local
Direct Fatality
Management
540 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported
by Element
Tactical
Operations
Activate Fatality
Management
Operations
Conduct On-
scene Operations
Conduct Morgue
Operations
Conduct Victim
Identification
Conduct Final
Disposition
Demobilize
Refrigerated
storage (to
accommodate 200
remains)
Equipment 1 Nationally Federal
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
Refrigerated
storage (to
accommodate 100
remains)
Equipment 1 Per State State
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
Refrigerated
storage
(accommodate
remains)
Equipment 1
Per 10% of local
population
Local
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Demobilize
Mortuary Officers
(Funeral Directors)
Personnel
Federal/State/L
ocal
Direct Fatality
Management
Tactical
Operations
Activate Fatality
Management
Operations
Conduct Morgue
Operations
Conduct Victim
Identification
Conduct Final
Disposition
Demobilize
Target Capabilities List 541
RESPOND MISSION: FATALITY MANAGEMENT
Resource
Element Unit
Type of
Element
# of Units Unit Measure
(number per x)
Lead Capability
Activity
supported
by Element
Antemortem Data
Collection Team
within Family
Assistance Center
Non-NIMS
Resource
Organization
3 Nationally Federal
Activate Fatality
Management
Operations
Manage
Antemortem Data
Demobilize
Antemortem Data
Collection Team
within Family
Assistance Center
Non-NIMS
Resource
Organization
1 Per State State
Activate Fatality
Management
Operations
Manage
Antemortem Data
Demobilize
Antemortem Data
Collection Team
within Family
Assistance Center
Non-NIMS
Resource
Organization
1 Per UASI Local
Activate Fatality
Management
Operations
Manage
Antemortem Data
Demobilize
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Resource Typing Definitions–I: First 60 Resources. National Mutual Aid and Resource Management Initiative.
U.S. Department of Homeland Security, Federal Emergency Management Agency. January 2004.
http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf
5. OSHA Technical Manual. U.S. Department of Labor. January 1999.
6. Biological and Chemical Terrorism: Strategic Plan for Preparedness and Response. Centers for Disease Control
and Prevention. April 2000. http://www.cdc.gov/mmwr/preview/mmwrhtml/rr4904a1.htm
7. First Responders Guidelines for Mass Casualty Decontamination during a Terrorist Chemical Agent Incident.
United States Army Soldier and Biological Chemical Command. 2000.
http://www1.va.gov/vasafety/docs/July25-2000-DASHOCall.pdf.
8. Mass Fatality Incidents: A Guide for Human Forensic Identification. Special report. Technical Working Group
for Mass Fatality Forensic Identification. U.S. Department of Justice, Office of Justice Programs, National
Institute of Justice. June 2005. NCJ 199758.
9. Capstone Document: Mass Fatality Management for Incidents Involving Weapons of Mass Destruction.
Department of the Army, Research Development and Engineering Command, Military Improved Response
Program and U.S. Department of Justice, Office of Justice Programs, Office for Domestic Preparedness.
February 2005 (forthcoming 2005).
10. Mass Fatality Plan. National Association of Medical Examiners.
http://www.thename.org/Library/NAME%20Mass%20Fatality%20Plan%20with%20appendices.pdf.
542 Target Capabilities List
RESPOND MISSION: FATALITY MANAGEMENT
11. Death Investigations System Descriptions. Centers for Disease Control and Prevention.
http://www.cdc.gov/epo/dphsi/mecisp/death_investigation.htm
Target Capabilities List 543
Recover Mission Area
Target Capabilities
544 Target Capabilities List
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Target Capabilities List 545
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
STRUCTURAL DAMAGE ASSESSMENT
Capability Definition
Structural Damage Assessment is the capability to conduct damage and safety assessments of civil,
commercial, and residential infrastructure and to perform structural inspections, and mitigation activities.
The capability includes being able to provide contractor management, construction management, cost
estimating, technical assistance, and other engineering services to support and manage response and
recovery operations.
Outcome
Accurate situation needs and damage assessments occur. The full range of engineering, building
inspection, and enforcement services are implemented, managed, and coordinated in a way that
maximizes the use of resources, aids emergency response, implements recovery operations, and restores
the affected area to pre-event conditions. Mitigation projects to lessen the impact of similar future events
are identified and prioritized.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports Emergency Support Function (ESF) #3: Public Works and Engineering.
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Rec.C3a 1.3.4
Develop standards and procedures to identify qualified contractors offering recovery/restoration
services
Rec.C3a 1.1.2 Develop damage assessment procedures
Rec.C3a 1.4 Develop mitigation plans and procedures
Rec.C3a 1.4.1 Identify mitigation measures and emergency restoration procedures
Rec.C3a 1.5 Develop qualification and certification standards for paid and volunteer staff
Rec.C3a 1.1.3 Maintain situation and damage assessment plans
Preparedness Measures Metrics
Damage assessment procedures are in place Yes/No
Procedures address identifying and mobilizing personnel to support structural damage
assessment operations
Yes/No
Procedures address required forms, reports, documentation, and follow-up notation Yes/No
Procedures address conducting inspections and assessments Yes/No
Procedures address post-incident assessments and follow-up Yes/No
546 Target Capabilities List
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
Procedures address demobilization of structural damage assessment operations Yes/No
Mitigation plans and procedures are in place Yes/No
Mitigation measures and emergency restoration procedures are in place Yes/No
Procedures address identifying qualified contractors offering recovery/restoration service Yes/No
Relevant qualifications and certification standards for paid and volunteer staff are in place Yes/No
Situation and damage assessment plans are in place Yes/No
Code enforcement activities are conducted Yes/No
Street maps are available for determining alternate routes Yes/No
Critical Resource List is in place Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Rec.C3a 2.1.2 Conduct training on damage assessment procedures
Rec.C3a 2.1.3 Conduct training on mitigation plans and procedures
Rec.C3a 2.2.1 Exercise damage assessment procedures
Rec.C3a 2.2.2 Exercise mitigation plans and procedures
Preparedness Measures Metric
“Just-in-time” training for personnel is developed and implemented Yes/No
Damage assessment procedures are exercised Yes/No
Mitigation plans and procedures are exercised Yes/No
Performance Tasks and Measures/Metrics
Activity: Activate Structural Damage Assessment
Definition: Alert assessment staff to the potential need for services and conduct notifications,
dispatch, and other staff mobilization activities necessary to begin assessment activities
Critical Tasks
Rec.C3a 4.1
Conduct emergency dispatch and notification for structural damage and mitigation assessment
personnel
Rec.C3a 4.2 Dispatch secondary response agencies
Performance Measures Metric
Time in which damage assessment personnel are mobilized after the observed end of the
incident
Within 24 hours from
notification
Target Capabilities List 547
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
Activity: Direct Structural Damage Assessment Operations
Definition: In response to a notification for recovery assets, provide the overall management and
coordination of the response, through to demobilization
Critical Tasks
Rec.C3a 3.1.2 Coordinate resources to conduct building inspections and damage assessment
Rec.C3a 3.7
Support incident response operations according to incident management team (IMT) assignments
on the inputs to the incident action plan (IAP)
Rec.C3a 3.1.3
Recommend prioritization schedule of critical infrastructure services, facilities, and assets
restoration based on structural damage and mitigation assessments
Rec.C3a 3.6
Develop standards and procedures to identify qualified contractors offering recovery/restoration
services
Rec.C3a 3.7.1
Report and document the incident by completing and submitting required forms, reports,
documentation, and follow-up notation
Rec.C3a 3.5 Integrate appropriate private-sector entities into incident response activities
Performance Measures Metric
Private sector entities participate in recovery efforts Yes/No
Time in which prioritization schedule for critical infrastructure is developed Within 24 hours from assessment
completion
FEMA and non-FEMA mitigation activities are identified and prioritized
concurrent to development of individual project worksheets for specific
repair/reconstruction projects
Yes/No
Activity: Conduct Inspections and Assessments
Definition: Conduct safety inspections to support the safety of first responders and to assess the
habitability of residences. Support assessments of public facilities, lending civil, structural, and
mechanical engineering support to affected entities and other assessment staff
Critical Tasks
Rec.C3a 5.4.3 Assist in the identification of incident response coordination centers for rebuilding property
Res.B1a 5.3 Conduct debris assessment
Res.B1a 5.3.1 Assess the requirement for decontamination or safe demolition, removal, and disposition of
contaminated debris.
Rec.C3a 5 Conduct building inspections and damage assessments of public and private structures
Rec.C3a 5.4.1 Assessment the need for emergency flood protection and/or emergency erosion control
Rec.C3a 5.2.2
Identify the need for additional engineering and assessment resources from other Federal
agencies and issue mission assignments to activate such resources
Rec.C3a 5.4.2
Assist with the assessment to determine the requirement to relocate affected essential services to
back-up locations
Rec.C3a 5.3.1 Assess buildings and private structures to determine occupancy eligibility
548 Target Capabilities List
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
Rec.C3a 5.3.2
Provide geo-coded status report of community, homes and facilities identified as safe or unsafe
to re-enter and re-occupy
Rec.C3a 5.4.4 Determine need for recovery programs
Performance Measures Metric
Situation assessments are conducted using one of following methods: (1)
aerial reconnaissance; (2) remote sensing; (3) computer modeling (e.g.,
HAZUS); (4) rapid field assessments/windshield surveys
Yes/No
Results of situation assessments are compared and contrasted to provide best
initial estimate
Yes/No
Time in which situation assessment is conducted and provides results Within 24 hours from the incident
Time in which a detailed situation assessment is conducted, to include
information on buildings that are in imminent danger of collapse and critical
resources of infrastructure are threatened
Within 48 hours from the
conclusion of the disaster
Time in which building safety inspections are conducted for habitability
(green, yellow, and red tags)
Within 4 weeks from the event
Time in which an emergency work damage assessment and public works (PW)
preparation is conducted
Within 6 months from end of the
incident period
Time in which a permanent work damage assessment and public works (PW)
preparation (FEMA and non-FEMA) is conducted
Within 12 months from end of the
incident period
Activity: Provide Mitigation and Technical Assistance
Definition: Support recovery personnel as they work to develop scopes of work and costs for
restoring public buildings and infrastructure. Participate in the identification of mitigation
opportunities that may be factored into repair, restoration, and recovery efforts.
Critical Tasks
Rec.C3a 6.1.8 Coordinate, fund, and implement contracts for construction management and inspection
Rec.C3a 6.1.5 Coordinate, fund, and implement contracts for emergency repair of utilities and other services
Rec.C3a 6.1.6
Manage, monitor, and/or provide of technical advice on debris management and
reestablishment of ground and water routes into the affected area
Rec.C3a 6.1.7
Assist with the implementation and management of Federal Emergency Management Agency
(FEMA) Public Assistance Program (PA) to support the repair and restoration of public
property
Rec.C3a 6.1.9
Participate in post-incident assessments of structures, public works and infrastructure to
develop cost estimates, complete written project worksheets, determine priority
repair/reconstruction projects, and help to prioritize engineering and construction resources
Performance Measures Metric
Time in which jurisdiction provides technical assistance to responders Within 24 hours from the end
of the disaster
Time in which all FEMA project worksheets are processed and eligibility and
other reviews are completed
Within 14 days from the
project worksheet entry
Target Capabilities List 549
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
Time in which 200 applicants’ briefings for FEMA’s Public Assistance Program
applicants are completed (based on estimate: 100,000 category E Projects, at 10
buildings per applicant)
Within 2 months
Activity: Demobilize Structural Damage Assessment
Definition: Account for all personnel and assets utilized and safely return them to their original
location and function
Critical Tasks
Rec.C3a 7.1 Develop a demobilization plan for structural damage and mitigation assessment
Rec.C3a 7.2 Restore personnel and equipment to normal operations
Rec.C3a 7.3 Complete appropriate documentation
Performance Measures Metric
Personnel and equipment are returned to normal operations Yes/No
Percent of appropriate documentation completed in timely manner 100%
Linked Capabilities
Linked Capability Relationship
Emergency Operations
Center Management
Structural Damage Assessment and Emergency Operations Center Management provide
situation reports to each other.
Restoration of Lifelines Structural Damage Assessment provides initial lifeline damage assessment to
Restoration of Lifelines, while Restoration of Lifelines provides technical expertise to
Structural Damage Assessment.
550 Target Capabilities List
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
Target Capabilities List 551
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
Resource Element Description
Resource Elements Components and Description
Public Assistance Teams:
buildings
A Public Assistance Team, led by a Public Assistance Coordinator, manages
the processing of all of the applicant's recovery projects. The Public
Assistance Coordinator is a NIMS-typed resource.
Public Assistance Teams: debris,
emergency measures
See above
Public Assistance Teams: other
permanent work
See Above
Rapid Needs Assessment Teams Per NIMS, a team of specialists (e.g., HazMat, medical, mass care,
infrastructure) that provides a rapid assessment capability immediately
following a major disaster or emergency.
Disaster Assessment Teams Per NIMS, there are Type I, II, and III Disaster Assessment Teams. NIMS also
defines Individual Assistance Disaster Assessment Teams.
Engineering service Teams A team of engineers that includes safety engineers
Home and Business Assessment
Teams
Teams that include staff who are SBA Verifiers
DOC NIST National
Construction Safety Team
National Institute of Standards and Technology (NIST) teams that are
authorized to investigate building failures.
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were
reviewed to identify required adjustments or additions to the planning factors and national targets.
Federal funding to State and local governments is dependent upon Presidential Disaster Declaration.
Management of significant debris removal operations, emergency protective measures for the public,
and the restoration of transportation routes will take immediate precedence over building and
structural assessments.
Requirement for Federal support will be increased because significant numbers of State, local, and
private sector personnel in the impacted area will not be available to support structural damage
assessment and mitigation activities.
Public Assistance Teams, Disaster Assessment Teams, and Engineering Services resources could be
based regionally (using 10 standard Federal Regions) or at the national level, given the longer
timeline of their missions.
Initial safety assessments will be required before deploying additional resources to conduct building,
structural, and mitigation assessments. The Federal Government can provide assistance to State and
local governments with building inspections to protect public health and safety.
Sufficient resources from Federal agencies and the private sector will be available for assessment and
recovery operations.
Appropriate and trained professional staff could be mobilized within 48 hours from multiple
locations, nationwide.
552 Target Capabilities List
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
All operations would be managed out of a Joint Field Office (JFO) established for the disaster
incident.
Initial meetings with impacted State/local governments would result in the formation of teams to
complete:
Emergency inspections (health/safety)
Repair/reconstruction project worksheets for public structures and mitigation activities.
Additional teams would be established by the private sector (including the insurance industry) to
focus on inspection/recovery for the private sector, to include mitigation activities. Government
should coordinate with these entities.
Scenario-Specific
Of the 1 million buildings moderately damaged, 200,000 were commercial buildings, 100,000 were
public buildings, and 700,000 were residences (300,000 red tagged unsafe for habitation). Of these
1,000 were large office buildings that were partially collapsed and where victims were trapped.
The scenario identifies earthquake damage to more than 1 million buildings. For purposes of
quantifying this capability, the indefinite amount above the 1 million was assumed to be statistically
insignificant.
Total number of Public Assistance Projects: 300,000.
Port facilities in the affected area are significantly damaged, cargo throughput is reduced by 50
percent.
Transit system is unavailable by 50 percent.
Rail system cargo throughput is reduced by 50 percent.
Highest probability U.S. earthquake areas are: Arkansas, Arizona, California, Colorado, Hawaii,
Idaho, Illinois, Kentucky, Missouri, Montana, Nevada, Oregon, South Carolina, Tennessee, Utah, and
Washington, according to the United States Geological Survey (USGS). There are approximately 64
metropolitan statistical areas (MSA) with populations greater than 100,000 in these States.
Rapid Needs Assessment Teams would need to be located in close proximity to these 64 MSAs to
perform necessary tasks immediately following the incident.
FEMA’s principal responsibility under this capability will be to prepare project worksheets for the
100,000 damaged public buildings in order to implement the Public Assistance Grant Program.
Assume that damaged building projects represents 33 percent of total number of FEMA eligible
projects with other categories as follows:
Debris – 15%
Emergency measures – 25%
Roads/bridges – 12%
Flood control - <1%
Utilities – 10%
Other – 5%
Rapid Needs Assessment Teams – 30 for this scenario
Population of affected area in this scenario – 10,000,000
Ratio of teams to population 3 teams/1 million people
From the Census Bureau’s Metropolitan Area Rankings 1997 press release, 69,704,815 people
live within the 64 MSA with populations greater than 100,000 that are located in States with the
highest earthquake probability.
Therefore, the total number of Rapid Needs Assessment Teams is 210.
Moderately damaged means that the impacted building is less than 50 percent damaged.
Target Capabilities List 553
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
Normal deployment time for required response personnel increased by 24-48 hours.
300,000 project worksheets for approximately 10,000 applicants
50 applicants will participate in each applicant’s briefing
20 of the Rapid Needs Assessment (RNA) Teams will be deployed to the county with the greatest
amount of damage, while the other affected counties will require only two RNA teams each.
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Major Earthquake)
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of
Resources
Needed
Public Assistance
Team: buildings
35 public structures
per team, per week
100,000 public structures
[(100000 structures
7 days/week)/
(35structures/team/week
*365days)]
55 Public Assistance
Teams for
completion within
365 days
Public Assistance
Team: debris,
emergency measures
30 PWs per team per
week
120,000 projects
[ (30 PWs/team/week *180
days/7 days)]
155 Public
Assistance Teams
Public Assistance
Team: other permanent
work
30 PWs per team per
week
80,000 projects
[(80,000 PWs)/(30
PWs/team/day * 365 days/7
days)]
51 Public Assistance
teams
Rapid Needs
Assessment Team
1.4 teams per counties
per day
Six counties impacted; 1,000
buildings partially collapsed
30 Rapid Needs
Assessment teams
Disaster Assessment
Team
30 structures per day,
per team
200,000 private/commercial
structures; 700,000 residences
[900,000 structures/(30
structures/team/day * 30 days)]
1,000 teams
Engineering Service
Teams
30 structures per day,
per team
100,000 public buildings with
15,000 destroyed; require
inspection to determine safety
(e.g., need for “Red Tag”).
[100,000 structures/(30
structures/team/day * 30 days)]
112 teams
Home and Business
Assessment
3,300 SBA Verifiers
Approaches for Large-Scale Events
By extending the time for public building inspections/project worksheets to be completed from one to
two years, the workload will be reduced by 50 percent.
By extending the time for private building inspections to be completed from one month to two or
more months, the workload is reduced by at least 50 percent.
554 Target Capabilities List
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
By extending the time for building inspections to be completed from one month to two or more
months, the workload is reduced by at least 50 percent.
Target Capability Preparedness Level
Resource
Element Unit
Type of
Element
Number
of Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Public Assistance
Teams: Buildings
NIMS Typed
Resource
Organization
110 Per incident
(with composition
apportioned 80%
Federal, 20%
State/local reps)
Federal/State/
Local
Provide Mitigation
and Technical
Assistance
Public Assistance
Teams: Debris,
emergency
measures
NIMS Typed
Resource
Organization
310 Per incident
(with composition
apportioned 80%
Federal, 20%
State/local reps)
Federal/State/
Local
Provide Mitigation
and Technical
Assistance
Public Assistance
Teams: Other
permanent work
NIMS Typed
Resource
Organization
102 Per incident
(with composition
apportioned 80%
Federal, 20%
State/local reps)
Federal/State/
Local
Provide Mitigation
and Technical
Assistance
Rapid Needs
Assessment Teams
NIMS Typed
Resource
Organization
210 Per incident
(with composition
apportioned 33%
Federal, 66%
State/local reps)
Federal/State/
Local
Conduct
Inspections and
Assessments
Disaster
Assessment Teams
NIMS Typed
Resource
Organization
1,000 Per incident
(with composition
apportioned 78%
State/local, 22%
private reps)
State/Local/
Private Sector
Conduct
Inspections and
Assessments
Engineering
Service Teams
Non-NIMS
Resource
Organization
112 Per incident Federal Conduct
Inspections and
Assessments
Provide Mitigation
and Technical
Assistance
Home and Business
Assessment
Personnel 3,000 Per incident Federal Provide Mitigation
and Technical
Assistance
National
Construction Safety
Team
Federal
Resource
Organization
Federal
(DOC/NIST)
Conduct
Inspections and
Assessments
Target Capabilities List 555
RECOVER MISSION: STRUCTURAL DAMAGE ASSESSMENT
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. National Strategy for Homeland Security. The White House, Office of Homeland Security. July 2002.
http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf.
5. The National Strategy for the Physical Protection of Critical Infrastructures and Key Assets. The White House.
February 2003. http://www.whitehouse.gov/pcipb/physical_strategy.pdf.
6. Protected Critical Infrastructure Information Program. U.S. Department of Homeland Security. 2004.
http://www.dhs.gov/dhspublic/display?theme=92&content=3755.
7. Public Works and Terrorism Response: Black Sunday. Mann, P., and Scott, T. American Public Works
Association. May 2005. http://www.apwa.net/documents/advocacy/IssueBrief_05052005.pdf.
8. Risk Management: An Essential Guide to Protecting Critical Assets. National Infrastructure Protection Center.
November 2002. http://www.iwar.org.uk/comsec/resources/risk/risk-mgmt.pdf.
9. Instrumentation and Monitoring Methods for Radiation Protection. NCRP Report # 57. National Council on
Radiation Protection and Measurement. 1978.
10. Post-Emergency Response Resources Guide. U.S. Nuclear Regulatory Commission and Federal Emergency
Management Agency. 1991.
11. Manual of Protective Action Guides and Protective Actions for Nuclear Incidents. EPA 400–R–92–0001. U.S.
Environmental Protection Agency. 1991.
12. Radiological Sources of Potential Exposure and/or Contamination. USACHPPM Tech Guide 238. Aberdeen
Proving Ground, MD. 1999.
13. Emergency Response to Terrorism Job Aid. Edition 2.0. Federal Emergency Management Agency and U.S.
Department of Justice. February 2003. http://biotech.law.lsu.edu/blaw/FEMA/ert-ja.pdf.
14. Code of Federal Regulations. Title 10, Part 835; Volume 4; Parts 500 to end. U.S. Government Printing Office.
2000. http://www.access.gpo.gov/nara/cfr/waisidx_03/10cfr835_03.html
556 Target Capabilities List
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Target Capabilities List 557
RECOVER MISSION: RESTORATION OF LIFELINES
RESTORATION OF LIFELINES
Capability Definition
Restoration of Lifelines is the capability to initiate and sustain restoration activities. This includes
facilitating the repair/replacement of infrastructure for oil, gas, electric, telecommunications, drinking
water, wastewater, and transportation services.
Outcome
Lifelines to undertake sustainable emergency response and recovery activities are established.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
ESF #1: Transportation
ESF #2: Communication
ESF #3: Public Works and Engineering
ESF #12: Energy
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Program, and Systems
Critical Tasks
Rec.C1a 1.1.1
Ensure lifeline restoration personnel can access and remain in the affected areas to complete
restoration activities
Rec.C1a 1.1.2
Coordinate with State and local emergency management officials to determine what credentials
lifeline restoration personnel will need to produce to enter potentially restricted areas and fulfill
their responsibilities
Rec.C1a 1.1.3
Create a mechanism to provide any incident-specific lifeline restoration contract personnel with
the necessary credentials to ensure unnecessary access issues will not impede them from
completing their responsibilities
Rec.C1a 1.1.4
Identify a sector/company-specific point of contact (POC) for police or emergency management
officials to contact to verify the credentials of lifeline restoration personnel
Rec.C1a 1.1.5
Create a plan to ensure that the sector/company-specific POC for credentialing issues has up-to-
date data on all personnel—contract and regularly-employed—involved in lifeline restoration
activities
Rec.C1a 1.1.6
Discuss measures that can be taken to ensure the safety of lifeline restoration personnel and
equipment working in affected areas with State and local emergency management officials
Rec.C1a 1.1.7
Identify the procedure for requesting safety measures (such as police escorts) for lifeline
restoration personnel
Rec.C1a 1.2.
Develop Mechanisms to Communicate and Coordinate restoration of lifelines information and
activities
558 Target Capabilities List
RECOVER MISSION: RESTORATION OF LIFELINES
Rec.C1a 1.2.1
Identify a lifeline Emergency Operations Center (EOC)/Joint Field Office (JFO) liaison or liaison
mechanism to ensure that lifeline restoration information and current situational updates can be
shared by all parties
Rec.C1a 1.2.2
Coordinate with local/State/Federal emergency management officials to ensure that lifeline
companies have an official contact person in each EOC/JFO to ensure situational awareness and
coordination
Rec.C1a 1.2.3
Create a mechanism to share restoration information among all the different lifeline
companies/sectors, i.e., create local/State/regional utility workgroups/associations to coordinate
emergency restoration operations across sectors and share best practices
Rec.C1a 1.2.4 Identify interdependencies among all the lifelines
Rec.C1a 1.2.5
Create reporting guidelines to ensure that all company/sectors department heads report important
event-specific information to the company/sector EOC/JFO liaison
Rec.C1a 1.2.6
Disseminate reporting guidelines—along with contact information for the company/sector
EOC/JFO liaison—to all appropriate (lifeline and government) personnel
Rec.C1a 1.2.7
Coordinate with State and local emergency management officials to determine which radio
frequencies lifeline restoration personnel can use to support restoration activities
Rec.C1a 1.3 Develop plans/mechanisms to assist in the allocation of constrained resources
Rec.C1a 1.3.1 Consider pre-staging equipment and identify barriers or gaps in developing this capability
Rec.C1a 1.3.2 Develop contingent contracts
Rec.C1a 1.3.3 Develop mutual aid networks within each lifeline
Rec.C1a 1.3.4 Develop mutual aid networks between lifelines and government
Rec.C1a 1.3.5
Develop a plan to deal with the distribution of fuel after an event to include lifeline restoration
activities. Consider the prioritization of primary infrastructure so there is less of a reliance on
back-up or secondary measures
Rec.C1a 1.3.6
Develop a plan to deal with the distribution of other critical components that facilitate the
restoration of primary infrastructure and processes
Rec.C1a 1.3.7
consider the essential needs of the lifeline restoration personnel when developing housing
strategies
Rec.C1a 1.3.8 Consider impacts on areas outside the area physically impacted
Rec.C1a 1.4 Pursue opportunities to solidify post-event regulatory relief
Rec.C1a 1.4.1 Investigate anti-trust regulations that prohibit some sectors from communicating during a disaster
Rec.C1a 1.4.2 Agree upon appropriate waivers to facilitate the restoration activities
Rec.C1a 1.4.3 Solidify appropriate waivers to facilitate restoration activities
Rec.C1a 1.4.4
Develop cross jurisdictional agreements to standardize regulatory requirements and post-disaster
waivers
Rec.C1a 1.4.5 Develop inter-State post-disaster reciprocity for certifications, qualifications, licenses, etc.
Preparedness Measures Metric
Credentialing procedures to allow repair personnel access to critical sites are in place Yes/No
Procedures for identifying affected lifelines (entities and structures) are in place Yes/No
Target Capabilities List 559
RECOVER MISSION: RESTORATION OF LIFELINES
Procedures for assessing and prioritizing affected lifelines are in place Yes/No
Interdependencies among lifelines have been identified Yes/No
Procedures are in place for mobilizing personnel and equipment for the restoration of lifelines. Yes/No
Procedures address housing and essential services for mobilized personnel Yes/No
EOC/JFO liaison has been identified Yes/No
Lifeline companies/sectors and government coordinated emergency planning and operations Yes/No
Contingent contracts and mutual aid agreements for personnel and equipment are in place Yes/No
Plans address establishing key transportation avenues (e.g. best routes for personnel and
equipment to access disaster locations, etc.).
Yes/No
Plans address demobilization of Restoration of Lifeline operations (e.g. consideration of
personnel and equipment for permanent repair operations, personnel and equipment are returned
to normal operations, appropriate documentation is completed, etc.).
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Rec.C1a 2.2
Coordinate with other lifelines companies/sectors to create cross-sector exercises to test
restoration plans
Rec.C1a 2.2.1 Ensure participation of lifeline sectors in established exercise programs
Rec.C1a 2.3
Share corrective actions and lessons learned with lifeline restoration personnel and government
entities
Rec.C1a 2.3.1 Incorporate corrective actions and lessons learned into restoration plans
Rec.C1a 2.1 Provide training to government entities regarding the restoration of lifelines process
Rec.C1a 2.3.2 Make best practices easily available
Rec.C1a 2.2.2
Create exercise elements that require the weighting of the benefits of lifeline restoration activities
verses the prioritization of constrained resources
Rec.C1a 2.1.1 Develop common definitions for essential services, credentialing, and access
Rec.C1a 2.1.2 Educate lifelines customers on what to expect after an event
Rec.C1a 2.1.3
Create a mentoring program that will allow disaster-experienced lifeline restoration personnel
(from states like California and Louisiana, for example) to support lesser experienced personnel
Rec.C1a 2.1.4
Provide training regarding the implications to the private sector of “hijacking” contracted
resources
Preparedness Measures Metric
Exercises include lifeline sectors Yes/No
Best practices are available Yes/No
Information has been disseminated to lifeline customers regarding what they should
expect after an event
Yes/No
Training occurred on lifeline restoration processes Yes/No
560 Target Capabilities List
RECOVER MISSION: RESTORATION OF LIFELINES
Performance Tasks and Measures/Metrics
Activity: Direct Mechanisms to Facilitate the Restoration of Lifelines
Definition: Coordinate activities between lifeline operations and government operations. Facilitate
communication to maximize the efficiency and effectiveness of restoration activities. Continually
update restoration status with the EOC and other impacted capabilities. (For exercise purposes
only)
Critical Tasks
Rec.C1a 3.1
Develop a common operating picture (COP) concerning lifeline restoration and government
operations
Rec.C1a 3.1.1 Identify entities affected by the loss of lifeline infrastructure
Rec.C1a 3.1.2 Identify resources required to manage and restore lifeline operations
Rec.C1a 3.2 Coordinate the dissemination of status and priority information on lifeline restoration activities
Rec.C1a 3.2.1 Coordinate between lifeline restoration EOC/JFO liaison and government EOC/JFO
Rec.C1a 3.3
Disseminate information about the required credentials for lifeline restoration personnel to police
and other on-the-ground government personnel
Rec.C1a 3.4.1 Discuss incident-specific safety measures for lifeline restoration personnel
Rec.C1a 3.4
Disseminate coordinated radio frequency information to all emergency responders and lifeline
restoration personnel, in order to prevent communications disruptions
Rec.C1a 3.4.2 Coordinate fuel and critical resource distribution plan for lifeline restoration activities
Rec.C1a 3.4.3 Coordinate housing strategy for lifeline restoration personnel
Rec.C1a 3.5 Disseminate established information on regulatory relief for lifeline restoration activities
Rec.C1a 3.6 Provide and coordinate alternate means for providing critical lifeline services
Performance Measures Metric
Entities affected by the loss of lifeline infrastructure are identified Yes/No
Resources required to manage and restore lifeline operations are identified Yes/No
Dissemination of status and priority information are coordinated Yes/No
Obstacles to the restoration of lifelines are removed Yes/No
Coordination between lifeline services’ EOCs and government EOC/JFO is
conducted
Yes/No
Alternate means for providing critical lifeline services are coordinated Yes/No
Activity: Activate Restoration of Lifelines
Definition: Initiate the process for getting the appropriate personnel and equipment to the disaster
locations (for exercise purposes only)
Critical Tasks
Rec.C1a 4.1 Notify appropriate lifeline restoration personnel
Target Capabilities List 561
RECOVER MISSION: RESTORATION OF LIFELINES
Rec.C1a 4.2 Deploy EOC/JFO liaison for lifeline restoration activities
Rec.C1a 4.3 Mobilize appropriate lifeline restoration personnel
Rec.C1a 4.4
Mobilize equipment and resources needed for lifeline restoration activities and appropriate for
the incident
Rec.C1a 4.4.1 Begin using information-sharing mechanisms to support lifeline restoration activities
Performance Measures Metric
Appropriate lifeline restoration personnel are notified Yes/No
Appropriate lifeline restoration personnel are mobilized Yes/No
Equipment and resources appropriate for the incident are mobilized Yes/No
Activity: Implement Restoration of Lifelines
Definition: Execute the restoration effort using established priorities, in a manner that maximizes
the efficiency and effectiveness of the response and recovery process (for exercise purposes
only)
Critical Tasks
Rec.C1a 5.1 Use mutual aid resources to increase the pace of lifeline restoration operations
Rec.C1a 5.2 Conduct lifeline restoration operations
Performance Measures Metric
Lifeline restoration operations are in process Yes/No
Activity: Demobilize Restoration of Lifelines Operations
Definition: Account for all assets utilized and return them safely to their original locations and
functions (for exercise purposes only)
Critical Tasks
Rec.C1a 6.1 Implement a demobilization plan for lifeline restoration
Rec.C1a 6.2 Restore personnel and equipment used for lifeline restoration to normal operations
Rec.C1a 6.3 Document restoration activities, as needed
Performance Measures Metric
Demobilization plan is implemented Yes/No
Personnel and equipment used for lifeline restoration are restored to normal operations Yes/No
Restoration activities are documented as needed Yes/No
562 Target Capabilities List
RECOVER MISSION: RESTORATION OF LIFELINES
Linked Capabilities
Linked Capability Relationship
Structural Damage
Assessment
Restoration of Lifelines provides technical expertise to Structural Damage Assessment,
while Structural Damage Assessment provides initial lifeline damage assessment to
Restoration of Lifelines
Emergency Operations
Center Management
Restoration of Lifelines and Emergency Operations Center Management both provide
situation reports to each other
Economic and
Community Recovery
Restoration of Lifelines provides lifeline infrastructure assessment to Economic and
Community Recovery
Environmental Health
Environmental Health provides information to Restoration of Lifelines regarding the
safety considerations for assessment and repair crews in the impacted area
Critical Resource
Logistics and
Distribution
Critical Resource Logistics and Distribution provides resource support to Restoration of
Lifelines
Critical Infrastructure
Protection
Critical Infrastructure Protection provides information to assist with the prioritization of
restoration activities
Epidemiological
Surveillance and
Investigation
Epidemiological Surveillance and Investigation provides waterborne disease outbreak
information to Restoration of Lifelines
Laboratory Testing Laboratory Testing provides water quality test results to Restoration of Lifelines
On-Site Incident
Management
On-Site Incident Management and Restoration of Lifelines coordinate information
Emergency Public
Information and Warning
Emergency Public Information and Warning and Restoration of Lifelines coordinate
messages
Emergency Public Safety
and Security Response
Emergency Public Safety and Security Response provides protection of personnel and
assets during Restoration of Lifelines
Restoration of Economy
and Institutions
Restoration of Lifelines provides information to Restoration of Economy and
Institutions
Target Capabilities List 563
RECOVER MISSION: RESTORATION OF LIFELINES
Capability Activity Process Flow
Linked
Capabilities
Relationship
Restoration of Lifelines Capability
Start: Damage/
destruction of
critical services/
systems
Direct
Restoration of
Lifelines
Operations
Activate
Restoration of
Lifelines
Implement
Restoration
Procedures for
Critical Facilities
Demobilize
Restoration of
Lifelines
Operations
End: Sufficient lifeline services
are available to safely support
ongoing recovery activities.
Provide EOC liaison
Ready to implement
Lifeline restoration
operations are initiated
and sustained
Situational awareness provided
Obstacles identified and removed
Structural Damage
Assessment
Emergency
Operations Center
Management
Economic and
Community
Recovery
Environmental
Health
Critical Resource
and Logistics
Distribution
Critical
Infrastructure
Protection
Epidemiological
Surveillance and
Investigation
On-Site Incident
Management
Emergency Public
Information and
Warning
Restoration of
Economy and
Institutions
Provide technical expertise
Provide situational
awareness and input
Response and restoration
efforts coordinated
Provide information
Safety information provided
Logistical support provided
Information provided
Waterborne disease
outbreak information provided
Water quality test
results provided
Coordination between
capabilities provided
Communication and
coordination of
messages provided
Protection of personnel
and assets provided
Provide information
Lifelines include: oil, gas,
electric, telecommunications,
drinking water, wastewater, and
transportation services.
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Laboratory
Testing
Emergency
Public Safety and
Security Response
564 Target Capabilities List
RECOVER MISSION: RESTORATION OF LIFELINES
Resource Element Description
Resource Elements Components and Description
EOC/JFO Liaison
Representation from each lifeline sector to provide status updates, answer
inquiries on Restoration of Lifelines efforts, and to request assistance as
necessary. (Per NIMS)
Lifelines Cross-Sector
Workgroup
An opportunity for sector representatives to get together and share best practices
and lessons learned; determine training needs, conduct training, and exercises; and
to coordinate planning for Restoration of Lifelines. As needed, consider the
involvement of State and Federal officials.
Mutual Assistance
A scalable response mechanism to share and provide resources, such as equipment
and personnel. Consider addressing issues of reimbursement and liability.
Business Continuity Plans
A plan for continued operation, post incident/impact. Although these plans differ
from sector to sector, the core elements of these plans include identification of
essential functions and contingency plans for the continuation of those functions.
Planning Assumptions
Applicable to all the 15 National Planning Scenarios.
Federal funding was available to eligible applicants of State and local governments, including some—
but not all—lifeline services, as a result of a Presidential Disaster Declaration.
Responsibility for lifeline repairs will be based on ownership of lifeline facilities (public vs. private).
The ability to communicate with lifeline personnel and obtain additional resources will be impacted
by the size and impact of the event.
The availability of appropriate resources will be limited.
Planning Factors
Resource
Organization
Estimated
Capacity
Scenario Requirement
Values
Quantity of Resources Needed
Lifeline restoration, in a major event, would be addressed with an appropriate combination of existing-resources and
mutual assistance sufficient to meet disaster needs.
Target Capability Preparedness Level
(Under Development)
Resource
Element Unit
Type of Element Number of
Units
Unit Measure
(number per x)
Lead Capability
Activity
supported by
Element
Lifeline restoration, in a major event, would be addressed with an appropriate combination of existing resources and
mutual assistance sufficient to meet risk and threat assessment based needs.
Target Capabilities List 565
RECOVER MISSION: RESTORATION OF LIFELINES
References
1. Electric Utility Industry Disaster Planning Meeting: After Action Report. Hosted by Edison Electric Institute
(EEI) and the U.S. Department of Energy (DOE).
2. Energy Leadership Forum: After Action Report. U.S. Department of Energy. February 2006.
3. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
4. Hurricane Security Operations. National Petrochemical & Refiners Association (NPRA) White Paper. May 31,
2006.
5. National Response Plan. U.S. Department of Homeland Security. December 2004.
6. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
7. National Strategy for Homeland Security. The White House, Office of Homeland Security. July 2002.
http://www.whitehouse.gov/homeland/book/nat_strat_hls.pdf.
566 Target Capabilities List
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Target Capabilities List 567
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
ECONOMIC AND COMMUNITY RECOVERY
Capability Definition
Economic and Community Recovery is the capability to implement short- and long-term recovery and
mitigation processes after an incident. This will include identifying the extent of damage caused by an
incident, conducting thorough post-event assessments and determining and providing the support needed
for recovery and restoration activities to minimize future loss from a similar event.
Outcome
Economic impact is estimated; priorities are set for recovery activities; business disruption is minimized;
and individuals and families are provided with appropriate levels and types of relief with minimal delay.
Relationship to National Response Plan Emergency Support Function
(ESF)/Annex
This capability supports the following Emergency Support Functions (ESFs):
ESF#6: Mass Care, Housing, and Human Services
ESF#14: Long-Term Community Recovery and Mitigation
Preparedness Tasks and Measures/Metrics
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Critical Tasks
Rec.C3b 1.1.1 Develop resumption, restoration, and recovery plans
Rec.C3b 1.4 Coordinate recovery and mitigation planning
Preparedness Measures Metrics
Resumption, restoration, and recovery plans in place Yes/No
Protocols for ensuring access to qualified personnel (e.g., loan officers, community
planning officers, development officers, etc.) are in place
Yes/No
Processes are in place for mobilizing personnel to support economic and community
recovery operations
Yes/No
Plans address the assessment and prioritization of recovery needs Yes/No
Plans include processes for providing monetary relief (e.g. notify businesses and
individuals of disaster relief reimbursement vehicles, provide financial counseling)
Yes/No
Plans include processes for providing non-monetary direct assistance (e.g. facilitate
recovery activities related to public works and engineering, provide temporary housing,
initiate crisis counseling).
Yes/No
Plans address demobilization (e.g. personnel and equipment are returned to normal
operations, appropriate documentation is completed).
Yes/No
Recovery and mitigation planning efforts are coordinated with existing or ongoing Yes/No
568 Target Capabilities List
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Activity: Develop and Maintain Plans, Procedures, Programs, and Systems
Continuity of Operations Plan (COOP)
Private sector and voluntary agency input are reflected in planning process Yes/No
Appropriate insurance coverage policies are in place Yes/No
Each functional area has qualified personnel Yes/No
Protocols for locating and recalling staff during recovery process are in place Yes/No
Continuity of Operations Plans (COOP) are in place Yes/No
Debris management priorities have been established, to include improving restoration of
key community functions and critical infrastructures
Yes/No
Plan addresses the coordination of economic and community recovery operations (e.g.,
prioritizing recovery sequence, requesting State and Federal aid, establishing long-term
goals, etc.)
Yes/No
Activity: Develop and Maintain Training and Exercise Programs
Critical Tasks
Rec.C3b 2.1.1 Develop and conduct training in stabilization and recovery
Rec.C3b 2.2.1 Exercise recovery plans
Preparedness Measures Metric
Personnel are trained in stabilization and recovery plans Yes/No
Recovery Plans are exercised Yes/No
Performance Tasks and Measures/Metrics
Activity: Direct Economic and Community Recovery Operations
Definition: Command and control economic and community recovery operations, facilitate
prioritization of economic assistance for businesses, individuals, and governments, and ensure
that both monetary and non-monetary assistance relief is provided to minimize the negative
economic effects of the incident
Critical Tasks
Rec.C3b 3.4 Coordinate regional and State support for community recovery and rehabilitation services
Rec.C3b 3.2 Prioritize recovery sequence for economic and community recovery
Rec.C3b 3.3 Coordinate the request for State/Federal aid
Rec.C3b 3.6 Establish long-term recovery goals
Performance Measures Metric
Time in which a recovery plan is implemented Within 48 hours from need to activate
plan
Target Capabilities List 569
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Debris management strategies are implemented immediately and
continuously
Yes/No
Assessment and implementation of appropriate changes to codes and
code enforcement begins immediately and continuously
Beginning immediately and continuing
Time in which efforts to coordinate with nonprofit sector and relief
NGOs is initiated
Within 48 hours from incident
Time in which jurisdiction begins to estimate the social and economic
consequences of an event in the affected area
Within 7 days from incident
Time in which meetings with private industries and NGOs on long-term
community recovery begin
Within 30 days from incident
Mitigation plan is implemented Yes/No
Time in which estimates of social and economic consequences of an
event in affected area are refined
Within 30 days
Time in which property damage mitigation initiatives are implemented Within 90 days
Recovery efforts are coordinated with other levels of government Yes/No
Time in which an assessment of the effectiveness of recovery planning
and mitigation efforts is initiated
Within 12 months from the event
Activity: Activate Economic and Community Recovery
Definition: Alert recovery program staff of need for services, conduct notification, dispatch, and
other staff mobilization activities as necessary to begin recovery activities
Critical Tasks
Rec.C3b 4.2 Establish community recovery assistance programs
Rec.C3b 4.1 Conduct dispatch and notification for economic and community recovery personnel.
Rec.C3b 4.1.1 Mobilize requests for technical experts to assist in recovery efforts.
Rec.C3b 4.3 Implement Federal assistance programs
Rec.C3b 4.4 Implement State, regional, tribal, and local assistance and recovery plans
Rec.C3b 4.2.4 Implement private-sector recovery, local assistance, and recovery and mitigation plans
Performance Measures Metric
Percent of notified personnel who report 100%
Activity: Assess and Prioritize Recovery Needs
Definition: Assess economic recession in order to prioritize monetary and non-monetary relief
Critical Tasks
Rec.C3b 5.1
Conduct post-event assessment and planning to effect successful long-term recovery, including
the mitigation of damages from future disasters
Rec.C3b 5.2 Assess the situation and forecast economic needs for victims
570 Target Capabilities List
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Performance Measures Metric
Time in which 50 percent of impacted individuals and business are registered for
disaster assistance
Within 60 days from when
assistance is available
Activity: Provide Monetary Relief
Definition: Provide funding to damaged or impacted entities in advance of necessary recovery
expenditures or to reimburse entities
Critical Tasks
Rec.C3b 6.1 Assess business recovery needs
Rec.C3b 6.1.1 Provide disaster loans for business
Rec.C3b 6.3.2 Provide disaster loans for individuals
Rec.C3b 6.3 Operate individual assistance programs
Rec.C3b 6.2 Provide economic stabilization, community recovery, and mitigation support and/or financial
restitution to key service sectors (e.g., medical, financial, public health and safety)
Rec.C3b 6.4 Notify appropriate authorities of disaster relief reimbursement vehicles
Rec.C3b 6.3.3 Provide financial counseling
Rec.C3b 6.5 Process entity restitution/reimbursement claims
Performance Measures Metric
Businesses and individuals are notified of disaster relief reimbursement and available
financial counseling
Yes/No
Unmet economic needs have been identified Yes/No
Time in which process to manage individual assistance claims is activated Within 7 days
Time in which process to manage government-to-government assistance claims is
activated
Within 12 months
Time in which Federal disaster assistance grants are provided to affected individuals Within 14 days from
registration
Time in which Federal disaster assistance loans are provided to individuals and businesses Within 30 days from
application
Time in which Federal grant funds are obligated for 50 percent of FEMA’s Public
Assistance applications
Within 12 months
Time in which Federal grant funds are obligated for 75 percent of FEMA’s Public
Assistance applications
Within 2 years
Time in which Federal grant funds are obligated for 90 percent of FEMA’s Public
Assistance applications
Within 3 years
Time in which Federal grant funds are obligated for 95 percent of FEMA’s Public
Assistance applications
Within 4 years
Time in which Federal grant funds are obligated for 100 percent of FEMA’s Public
Assistance applications
Within 5 years
Target Capabilities List 571
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Time in which fair market value indemnity is provided to owners of destroyed animals
and materials
Within 72 hours from
destruction
Activity: Provide Non-monetary Relief
Definition: Provide direct assistance in the form of equipment, facilities, supplies, staff, technical
assistance, and other material resource support to meet recovery needs of affected entities
Critical Tasks
Rec.C3b 7.2 Participate in and facilitate recovery activities related to public works and engineering
Rec.C3b 7.1 Assess and quantify projected housing needs
Rec.C3b 7.1.1 Develop preliminary temporary housing plan
Res.C3a 7.5 Provide temporary housing
Rec.C3b 7.3 Provide family support services
Performance Measures Metric
Unmet social needs have been identified Yes/No
Time in which non-monetary forms of disaster assistance (e.g., crisis counseling, disaster
legal services) to individuals and businesses are initiated
Within 7 days
Time in which persons in temporary housing/interim shelters are relocated to long term
housing
Within 30 to 90 days
Activity: Demobilize Economic and Community Recovery
Definition: Account for all assets utilized and safely return them to their original locations and
functions
Critical Tasks
Rec.C3b 8.1 Develop a demobilization plan for economic and community recovery
Rec.C3b 8.2 Restore economic and community recovery personnel and equipment to normal operations
Rec.C3b 8.3 Complete appropriate economic and community recovery documentation
Performance Measures Metric
Personnel and equipment are returned to normal operations Yes/No
All appropriate documentation is completed Yes/No
572 Target Capabilities List
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Linked Capabilities
Linked Capability Relationship
Structural Damage
Assessment
Structural Damage Assessment provides a damage assessment to Economic and
Community Recovery
Restoration of Lifelines Restoration of Lifelines provides lifeline infrastructure assessments to Economic and
Community Recovery
Emergency Operations
Center Management
Emergency Operations Center Management and Economic and Community Recovery
both contribute to situation reports
Mass Care (Sheltering,
Feeding, and related
Services)
Mass Care (Sheltering, Feeding, and related Services) and Economic and Community
Recovery share individual assistance updates
Volunteer Management
and Donations
Volunteer Management and Donations provides cash and material contributions for
distribution during the recovery phase of the incident
Target Capabilities List 573
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Direct Economic
and Community
Recovery
Operations
Planning
Logistics
Comm.
Manage
Coordinate
Supervise
Safety
Resource
Requests
Need for economic and community
assessment
Activate Economic
and Community
Recovery
Assess and
Prioritize Recovery
Needs
Provide Monetary
Relief
Provide Non-
Monetary Relief
End: Extent of economic
and community damage
mitigated
Start: Significant
impact to the
economy and the
community
Structural Damage
Assessment
Restoration of
Lifelines
Emergency
Operations Center
Management
Volunteer
Management and
Donations
Lifeline infrastructure
assessments provided
Structural damage
assessments provided
Provide sitreps
Demobilize
Economic and
Community
Recovery
Cash and material
contributions provided
Mass Care
(Sheltering,
Feeding, and
Related Services)
Provide individual impact
updates
Ready to assess and prioritize
recovery needs
Needs prioritized
Application processed
and appropriate non-
monetary relief provided
Application processed
and appropriate
monetary relief provided
Report of needs and priorities provided
Relief guidance provided
Linked
Capabilities
Relationship
Capability Activity Process Flow
Economic and Community Recovery
Capability
574 Target Capabilities List
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Resource Element Description
Resource Elements Components and Description
Community Planning and
Development Officer
Coordinate economic recovery and mitigation plan
Damage Assessment Officer Assess damages to publicly and privately owned facilities
Loan Officers Process SBA applications in 60 days
Finance Officer Compile and administer financial assistance requests and applications; assumes
technical support and computer equipment
Economic Impact Community
Representatives Team
Assess the economic impact to private business; includes business leaders
(industry/major employers); Chambers of Commerce and business
associations; local trade organizations, and local professional associations.
Essential Service
Representatives Team
Assess impact to essential service infrastructure and basic service distribution
systems. Comprises 20 members, including representatives from water and
wastewater, public health and sanitation, utilities, transportation, hospital,
police, fire and EMS, communications, debris removal and disposal
Insurance Community Inspectors Manage insurance claims processing
Volunteer Organizations Active
in Disasters (VOADs) and
Nongovernmental organizations
(NGOs)
Personnel and equipment
Private sector and utility system
representatives
Manage repair and reconstruction of disaster damage. Includes representatives
from construction, building supplies, transportation assets
Personnel from individual
assistance and public assistance
programs
Implement disaster assistance programs to include registration of applicants,
inspection of disaster damages, and processing applications
Planning Assumptions
General
Although applicable to several of the 15 National Planning Scenarios, the capability planning factors
were developed from an in-depth analysis of the major earthquake scenario. Other scenarios were
reviewed to identify required adjustments or additions to the planning factors and national targets.
Federal funding to State and local governments is dependent upon Presidential Disaster Declaration.
This capability focuses on the recovery of a particular community (public infrastructure, individual
housing, businesses, etc); it does not address recovery of a large economic sector.
Due to the disruption of local and regional transportation systems, alternative methods of distribution
and transportation will need to be identified and/or implemented (based on historical information,
shows that for every 1 home destroyed, 10 will be damaged).
Multiple hazardous materials issues will need to be addressed.
Assume all displaced families will require some form of government sheltering and housing
assistance.
Level of losses may result in multiple bankruptcies. (Based upon historical data and the severe
economic impact scenarios, certain entities will be unable to overcome financial losses. Governments
as well as business may face bankruptcy.)
Target Capabilities List 575
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
The resource component is time sensitive since pre-event implementation of effective recovery and
mitigation planning efforts will impact response to community needs.
The resource package may be called to operate for years after the incident.
Scenario-Specific
300,000 homes have been destroyed; there are 1,400 deaths; 18,000 hospitalizations, 150,000
buildings destroyed and 1 million buildings damaged. 250,000 individuals seek shelter in safe areas
and over 250,000 people self-evacuate the area.
The wide dispersal of disaster victims will complicate the Federal Government assistance eligibility
and delivery processes for extended temporary housing, tracking, and need for registering the
diseased, ill, injured, and exposed
Of the 1 million buildings moderately damaged, 200,000 were commercial buildings and 100,000
were public buildings. Of these, 1,000 were large office buildings, they were partially collapsed.
(Estimates based on trends from previous disasters).
Planning Factors from an In-Depth Analysis of a Scenario with Significant
Demand for the Capability (Earthquake)
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
Community Planning
and Development
Officer
One per jurisdiction
Damage Assessment
Officer
Average of 5 inspections per day
– home/business
3.3 million homes
inspected
500,000 businesses
inspected
5,000 inspectors to process
work over a period of 6
months
Finance Officer
Up to 30,000 electronically
processed claims per day.
(FEMA only, and only those
claims that are auto-determined)
Small Business Administration
(SBA) loan officer can process
an average of 5 applications per
day
1.85 million applicants
in 60 days
1 million applications
received in 60 days by
SBA
One finance officer
(FEMA only- with
adequate support staff)
completes applications in
60 days
1,000 loan officers to
process SBA applications
in 60 days
Economic Impact
Community
Representative
Teams
One team can estimate the
economic impact of the disaster.
Size of team contingent on
disaster variables
The number on each
team will vary by
jurisdiction
Teams will be needed by
level of government
Essential services
representative Teams
One team serves to liaison with
key community functions in one
jurisdiction
Ongoing One team per jurisdiction
Insurance community
inspectors
Average of 4 inspections per day
– residential and commercial
185,000 (5% of total
damaged properties)
have earthquake
insurance
260 inspectors over 6
months
576 Target Capabilities List
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Resource
Organization
Estimated Capacity Scenario
Requirement
Values
Quantity of
Resources Needed
Volunteer
Organizations Active
in Disasters
(VOADs) and non-
governmental
organizations
(NGOs)
Elastic – surge capacity to fit
specific needs
VOAD Coordinator and
coordinated assistance
mechanism/system
Private sector and
utility system
representatives
Capacity is contingent on
availability of repair and
reconstruction contractors and
building supplies
Personnel from
individual assistance
and public assistance
programs
Agencies gear up and gear down
based on workload requirements
Estimated personnel
requirements would
roughly equal triple the
2004 hurricane season staff
level. (e.g., SBA level was
2800)
Approaches for Large-Scale Events
For temporary housing, potential exists to use tents, dorms, ships, train cars, terminals, temporary
relocation sites, military facilities, and converted commercial space instead of mobile homes and
trailers. Access to essential services (food, transportation, health care, etc) must accompany housing
resource.
Modes of delivery of assistance awards may vary, ranging from new expedited processes to
alternative distribution methods.
For temporary provisions, “Comfort Kits” may need to be instituted as a substitute for immediate
award of disaster assistance.
To foster communication, every neighbor tells a neighbor. Set up centralized information
dissemination posts (e.g. at 7/11 stores).
Target Capability Preparedness Level
Resource
Element
Unit
Type of Element Number of
Units
Unit
Measure
(number
per x)
Lead Capability
Activity
supported by
Element
Note: Many of the staff “pools” identified below will be generated in response to a specific incident by assembling
governmental and contract staff from various locations; they are not dedicated, standing organizations.
Federal/State/
Local
Community Planning
and Development
Officer
Personnel 1 Per jurisdiction Assess and Prioritize
Recovery Needs
Target Capabilities List 577
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
Resource
Element
Unit
Type of Element Number of
Units
Unit
Measure
(number
per x)
Lead Capability
Activity
supported by
Element
Federal/State/
Local
Damage Assessment
Officer
Personnel 5,000 Per incident Assess and Prioritize
Recovery Needs
Federal/State/
Local
Loan Officers Resource
Organization
1,000 Per incident Provide Monetary
Relief
Federal
(DHS/FEMA)
Finance Officer Personnel 1 Per incident Provide Monetary
Relief
Provide Non-
Monetary Relief
Local Economic Impact
Community
Representatives Team
Non-NIMS
Resource
Organization
10 Per
coordination
team
Assess and Prioritize
Recovery Needs
Local Essential Services
Representatives Team
Non-NIMS
Resource
Organization
1 Per jurisdiction Assess and Prioritize
Recovery Needs
Federal/State/
Local
Insurance Community
Inspectors
Personnel 260 Per incident Assess and Prioritize
Recovery Needs
Federal/State/
Local
Volunteer
Organizations Active in
Disasters (VOADs) and
Nongovernmental
organizations (NGOs)
Personnel,
Equipment
Elastic –
Surge
capacity to
fit specific
needs
Dependent
upon incident
Assess and Prioritize
Recovery Needs
Provide Monetary
Relief
Provide Non-
Monetary Relief
Federal/State/
Local
Private sector and
utility representatives
Personnel,
Equipment
Capacity is
contingent
on
availability
of repair and
reconstructi
on
contractors
and building
supplies
Dependent
upon incident
Assess and Prioritize
Recovery Needs
Federal/State/
Local
Personnel from
individual assistance
and public assistance
programs
Personnel 30,000 Per incident Provide Monetary
Relief
Provide Non-
Monetary Relief
578 Target Capabilities List
RECOVER MISSION: ECONOMIC AND COMMUNITY RECOVERY
References
1. Homeland Security Presidential Directive/HSPD–8: National Preparedness. The White House, Office of the
Press Secretary. December 2003. http://www.whitehouse.gov/news/releases/2003/12/20031217-6.html.
2. National Response Plan. U.S. Department of Homeland Security. December 2004.
3. National Incident Management System. U.S. Department of Homeland Security. March 2004.
http://www.dhs.gov/interweb/assetlibrary/NIMS-90-web.pdf.
4. Homeland Security Exercise and Evaluation Program, Volume II: Exercise Evaluation and Improvement. U.S.
Department of Homeland Security, Office for Domestic Preparedness. October 2003.
http://www.ojp.usdoj.gov/odp/docs/HSEEPv2.pdf.
5. Statement of Requirements for Public Safety Wireless Communications & Interoperability. Version 1.0. U.S.
Department of Homeland Security, SAFECOM Program. March 2004.
http://www.safecomprogram.gov/NR/rdonlyres/A1118073-1B21-42DC-941F-
C9DB26F4DBEF/0/PSCI_Statement_of_Requirements_v1_0.pdf.
6. Incident Communications Emergency Plan. ICEP–2004. U.S. Department of Homeland Security. 2004.
7. NFPA 1600: Standard on Disaster/Emergency Management and Business Continuity Programs. National Fire
Protection Association. 2004. http://www.nfpa.org/PDF/nfpa1600.pdf?src=nfpa.
8. National Mutual Aid and Resource Management Initiative: Resource Typing Definitions–I. Federal Emergency
Management Agency. January 2004. http://www.fema.gov/pdf/preparedness/initial_60_rtd.pdf.
9. Emergency Management Accreditation Program (EMAP) Standards. September 2003.
http://www.emaponline.org/index.cfm.
10. Federal Executive Branch Continuity of Operations. FPC–65. Federal Emergency Management Agency, Office
of National Security Coordination. June 2004. http://www.fema.gov/onsc/docs/fpc_65.pdf.
11. PDD–67: Enduring Constitutional Government and Continuity of Government. Emergency and Disaster
Management, Inc. October 1998. http://www.emergency-management.net/laws_pdd67.htm.
12. National Fire Protection Association, 2006 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=101 NFPA 5000, Building
13. Construction and Safety Code™, National Fire Protection Association, 2006 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=5000 NFPA 1,
14. Uniform Fire Code™, National Fire Protection Association, 2006 Edition.
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=1
15. NFPA 70, National Electrical Code®, National Fire Protection Association, 2005 Edition,
http://www.nfpa.org/aboutthecodes/AboutTheCodes.asp?DocNum=70
16. Public Health Workbook to Define, Locate, and Reach Special, Vulnerable, and At-Risk Populations in an
Emergency. CDC. 2006. http://www.bt.cdc.gov/workbook
