catastrophic incident search and rescue addendum to the national search and rescue supplement to the...
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CATASTROPHIC INCIDENTSEARCH AND RESCUE ADDENDUM
to theNational Search and Rescue Supplementto the
International Aeronautical and MaritimeSearch and Rescue Manual
Version 2.0
November 2009Department of Homeland Security
Department of Interior
Department of CommerceDepartment of Defense
Department of TransportationNational Aeronautics and Space Administration
Federal Communications Commission(www.uscg.mil/nsarc)
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9/11, Hurricane Katrina, and other calamitous events continue to challenge Federal, State, Tribal,Territorial, and local Search and Rescue (SAR) responders in the planning and execution of large-scale SAR operations. NSARC realizes the Federal governments response to large-scaleCatastrophic Incident SAR (CISAR; pronounced See-Eye-SAR) must continue to improve.
As a result of feedback and lessons learned from previous CISAR operations, NSARC hasrevised and added several new Sections to the original Catastrophic Incident Search and Rescue(CISAR) Addendum to the National Search and Rescue Supplement (NSS.) In 2010, NSARC willfocus its effort on updating the NSS. Meanwhile, it plans to update this CISAR manual asnecessary at the conclusion of the 2010 hurricane season.
There are many different Federal, State, Tribal, Territorial, and local SAR response cultures.Each possesses unique capabilities, language, and responsibilities. During a CatastrophicIncident, NSARC member Departments and Agencies are required to conduct multi-agency SARoperations within a unified command. This CISAR Addendum (Version 2.0) has been written to:(1) provide a concise description of the Federal Governments civil SAR response to catastrophicincidents; (2) guide Federal authorities involved in the response; and (3) inform States, Tribes,and Territories on what to expect from Federal SAR responders .
Response to several catastrophic incidents has demonstrated that a unified command is crucial toan effective CISAR response. CISAR Addendum (Version 2.0) sets baseline guidance andprinciples that can improve the effectiveness of the unified command in the conduct of theCISAR, and provide important guidance for the CISAR.
Correspondence Work GroupNational Search and Rescue Committee
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Foreword
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Letter of Promulgation iiiForeword vTable of Contents viiList of Acronyms ixIntroduction 1
Part 1: CISAR Organization 3
Section 1-1: CISAR Primary Reference and Guidance Documents 5Section 1-2: Catastrophic Incident SAR 6Section 1-3: Emergency Support Function #9 8Section 1-4: Lead Federal Responsibilities 11Section 1-5: Federal Emergency Management Agency 14Section 1-6: Department of Defense 16Section 1-7: United States Coast Guard 22Section 1-8: National Park Service (NPS) 25Section 1-9: States 26Section 1-10: Nongovernmental Organizations 28
Part 2: CISAR Planning and Management 29
A. PlanningSection 2-1: CISAR Operating Principles 31Section 2-2: CISAR Planning Considerations 34Section 2-3: Notice and No-Notice Events 44Section 2-4: Risk Assessment 46
B. ManagementSection 2-5: National Incident Management System 50Section 2-6: CISAR Management 52
Section 2-7: Search and Rescue Mission Coordinator (SMC) 55
Part 3: CISAR Operational Guidance 59
Section 3-1: Aircraft Management 61Section 3-2: Airspace Temporary Flight Restrictions 65Section 3-3: Animals 67
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Table of Contents
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Section 3-4: Boat Operations Management 70Section 3-5: Chemical, Biological, Radiological, Nuclear and High-Yield Explosive(CBRNE) Incidents--Introduction 74Section 3-6: CBRNE--Chemical Incidents 77Section 3-7: CBRNE--Biological Incidents 81Section 3-8: CBRNE--Radiological Incidents 85Section 3-9: CBRNE--Radiological Dispersal Device (RDD) Response Actions 94Section 3-10: CBRNE--Improvised Nuclear Device (IND) Response Actions 96Section 3-11: CISAR Searches 99Section 3-12: CISAR--Conclusion of Operations 102Section 3-13: Communications 105Section 3-14: Delivery of Survivors 108Section 3-15: Exercises 110Section 3-16: Geo-referencing 112Section 3-17: Handling of Animal Remains 120Section 3-18: Handling of Human Remains 122Section 3-19: Health and Safety 125Section 3-20: Media and Public Relations 134Section 3-21: Operational Messages 136Section 3-22: Persons with Special Needs 138Section 3-23: Structural Marking Systems 140Section 3-24: Traumatic Stress and Children 143Section 3-25: Traumatic Stress Reactions 145
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ACO Aircraft CoordinatorAOB Air Operations BranchADA Americans with Disabilities ActAFRCC Air Force Rescue Coordination
CenterALARA As Low As Reasonably
AchievableAOR Area of ResponsibilityBOB Boat Operations Branch
CBRNE Chemical, Biological,Radiological, Nuclear, and High-Yield Explosives
CERFP CBRNE Enhanced ResponseForce Package
CISAR Catastrophic Incident Search andRescue
CPG Comprehensive PreparednessGuide
CSP Commence Search Point
CST Civil Support TeamDART Disaster Assistance Response
TeamDCO Defense Coordination OfficerDEN Domestic Events Network DHS Department of Homeland
SecurityDNDO Domestic Nuclear Detection
OfficeDoD Department of DefenseDOI Department of InteriorDSCA Defense Support of Civil
AuthoritiesEICC Emergency Incident
Coordination CenterEMAC Emergency Management
Assistance Compact
EMP Electromagnetic PulseEMS Emergency Medical SystemEOC Emergency Operations CenterEPLO Emergency Preparedness Liaison
OfficerESF Emergency Support FunctionFAA Federal Aviation AdministrationFCO Federal Coordinating OfficerFEMA Federal Emergency
Management AgencyFRD FAA Recovery Desk GARS Global Area Reference SystemGPS Global Positioning SystemHAV Hepatitis A VirusHEPA High-Efficiency Particulate AirHSPD Homeland Security Presidential
DirectiveIAMSAR International Aeronautical and
Maritime Search and RescueIAP Incident Action PlanIC Incident CommanderICISF International Critical Incident
Stress FoundationICS Incident Command SystemIND Improvised Nuclear DeviceIPS Integrated Planning SystemIST Incident Support TeamINSARAG International Search and Rescue
Advisory GroupJAC Joint Analysis CenterJFO Joint Field OfficeJIC Joint Information CenterJPRC Joint Personnel Recovery
CenterJTF Joint Task Force
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List of Acronyms
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kHz KilohertzMHz MegahertzMOA Memorandum of AgreementMOU Memorandum of Understanding
MRO Mass Rescue OperationNDART National Disaster AnimalResponse Team
NIFOG National Interoperability FieldOperations Guide
NIMS National Incident ManagementSystem
NOK Next-of-kinNAD North American DatumNGO Nongovernmental Organization
NPS National Park ServiceNRCC National Response Coordinator
CenterNRF National Response Framework NSP National Search and Rescue PlanNSS National Search and Rescue
SupplementOSC On Scene CoordinatorPIO Public Information OfficerPPE Personal Protective EquipmentPR Personnel RecoveryRCC Rescue Coordination CenterRDD Radiological Dispersion Device
REAC Radiation Emergency AssistanceCenter
SAP Search Action PlanSAR Search and RescueSBTF Small Boat Task ForceSC Search and Rescue CoordinatorSGS Strategic Guidance StatementSITREP Situation ReportSMC Search and Rescue Mission
CoordinatorSOSC System Operations Support
CenterSRT Special Response TeamSRU Search and Rescue Unit
TFR Temporary Flight RestrictionUCG Unified Coordinating GroupUS&R Urban Search and RescueUSC United States CodeUSCG United States Coast GuardUSNG U.S. National GridUSNORTHCOM U.S. Northern CommandUSPACOM U.S. Pacific CommandVHF Very High Frequency
VOAD Voluntary Organizations Activein Disasters
WGS World Geodetic System
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WMD Weapons of Mass Destruction
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Introduction
In recent years, our nation has faced aremarkable series of disasters andemergencies. As a result, our nationalresponse structures are evolving to meetthese threats. The National ResponseFramework (NRF) is the next step in thisevolution. It defines how we respond as anation to these challenges.
Based on best practices and lessons learned,the NRF has been developed to provideguiding principles that enable all Federalresponse partners to prepare for and providea unified national response to disasters andemergencies from the smallest incident tothe largest catastrophe.
The NRFs key principles include: Engaged partnership;
Tiered response; Scalable, flexible, and adaptable
operational capabilities; and Unity of effort through unified
command,
In support of these principles, the NationalSearch and Rescue Committee (NSARC)
has created the Catastrophic Incident Searchand Rescue (CISAR) Addendum (Version2.0) to the National Search and RescueSupplement (NSS). Its purpose is to addressthe continuing process of nationalpreparedness and response to catastrophicincidents in support of State, Tribal,Territorial, and local authorities.
Purpose CISAR Addendum (Version 2.0) is intendedto provide a concise description of the: Federal Governments civil search and
rescue (SAR) response to catastrophicincidents;
Guide Federal authorities involved in theresponse; and
Inform States, Tribes, and Territories onwhat to expect when Federal SAR
responders are requested to assist.Limited Scope The CISAR Addendum (Version 2.0)provides guidance for SAR operationsduring Catastrophic Incidents. CISARconsists of civil SAR operations carried outas all or part of the response to an
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Introduction Introduction
Purpose
Limited Scope
Potential Large Scale
Effective CISAR Communication
Effective CISAR Planning
Federal Preparedness and Response
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emergency or disaster declared by thePresident, under provisions of the NRF andEmergency Support Function (ESF) #9.
This Addendum does not supersede otherFederal, State, Tribal, or Territorial SARplans.Potential Large Scale
Depending on the nature of a catastrophicincident (i.e., earthquake, hurricane, terroristattack, etc.), CISAR operations may berequired. If CISAR operations are conductedand ESF #9 is implemented, operations maybe either a minor or major aspect of theoverall incident response. Even if CISARoperations are conducted, it may very well
be that State, Tribal, Territorial, and localauthorities can conduct CISAR operationsusing their own resources. This Addendumrecognizes the need for a Federal, scalable,coordinated SAR effort that can be tailoredto the incident.
An effective response to a majorcatastrophic incident typically requiresimmediate, well-planned, and coordinatedlarge-scale actions and use of resources frommultiple organizations.
Effective CISAR Communication
Effective communication is required to meetthe anticipated needs of CISAR responders,
decision makers, the media, and the public.Coordination of information throughdisparate communications systems willlikely be long-term and logisticallydemanding. Mobilization, deployment and
employment of personnel, equipment, andcommunications systems will requireinteragency coordination to ensure timelyand accurate information is available to allstakeholders.
Effective CISAR Planning
Successful large-scale CISAR operationsdepend on flexible contingency plans.Intense integrated planning and operationalefforts must also be conducted throughoutrescue efforts (See Section 2.-2: CISARPlanning Considerations).
Federal Preparedness and Response Moral and legal obligations, as well aspublic and political expectations, drive theneed to be prepared to carry out CISARoperations safely and effectively.
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Normally, Federal resources are used torespond to Catastrophic Incidents only whenState, Tribal, Territorial, and local response
capabilities are overwhelmed or when anaccelerated, proactive national response to acatastrophic incident is necessary.
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Part 1: Organization
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Table 1-1-1 below provides a summary of primary references and guidance documents forCISAR operations.
Table 1-1-1: Key CISAR References
Robert T Stafford DisasterRelief and EmergencyAssistance Act (Stafford Act)
The Stafford Act (PL 100-707, 23 Nov 88) is the statutory authority for most Federaldisaster response activities, especially as they pertain to programs of the FederalEmergency Management Agency (FEMA).
Flood Control and CoastalEmergencies Act, 33 U.S.C. 701n (2007) (commonlyreferred to as Pub. L. 84-99)
Authorizes an emergency fund for preparation for emergency response to, among other things, natural disasters, flood fighting and rescue operations, repair or restoration of flood control and hurricane protection structures, temporary restoration of essentialpublic facilities and services, and provision of emergency supplies of water.
Executive Order 12148, 44 Fed.Reg. 43239 (1979), as amended,by Executive Order 13286, 68Fed. Reg. 10619 (2003)
Designates DHS as the primary agency for coordination of Federal disaster relief,emergency assistance, and emergency preparedness. The order also delegates thePresidents relief and assistance functions under the Stafford Act to the Secretary of Homeland Security, with the exception of the declaration of a major disaster or emergency.
Homeland Security PresidentialDirective (HSPD) 5:
Management of DomesticIncidents, February 28, 2003
HSPD-5 serves to enhance the ability of the United States to manage domestic incidentsby establishing a single, comprehensive national incident management system. Thismanagement system is designed to cover the prevention, preparation, response, and
recovery from terrorist attacks, major disasters, and other emergencies. The directivegives further detail on which government officials oversee and have authority for variousparts of the national incident management system.
National Response Framework(NRF)(www.fema.gov/emergency)
The NRF presents the guiding principles that enable all response partners to prepare for and provide a unified national response to disasters and emergencies. It establishes acomprehensive, national, all-hazards approach to domestic incident response.
Emergency Support Function(ESF) #9 - Search and RescueAnnex
ESF #9 details the Federal Governments SAR responsibilities, identifies FEMA as theESF #9 Coordinator, and explains the duties of the Federal Agency(s) assigned as LeadPrimary Agency for a specific incident requiring Federal SAR assistance (See Section 1-3: Emergency Support Function #9).
National Search and RescuePlan (NSP)
The NSP is an interagency agreement that constitutes the primary authority and policyguidance for involvement of Federal Agencies (including the military), in coordinating,providing, or supporting civil SAR services so that the United States can meet bothdomestic needs and international commitments.
National Search and RescueSupplement (NSS)
The NSS is a Federal manual on civil SAR that, together with its various addenda,provides extensive guidance for implementation of the NSP.
International Aeronautical andMaritime Search and RescueManual (IAMSAR Manual)
The IAMSAR Manual is a three-volume Manual used worldwide for aeronautical andmaritime civil SAR. In the United States, the IAMSAR Manual is supplemented by theNSS and this Addendum .
Section 1 -1: CISAR Primary Reference and Guidance Documents
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Section 1 -2: Catastrophic Incident SAR Catastrophic Incident Search and Rescue (CISAR)
Homeland Security Presidential Directive 5 (HSPD-5)
State, Tribal, or Territorial Authorities Request for Assistance
Catastrophic Incident Search andRescue (CISAR)
Civil SAR is composed of search operations,rescue operations, and associated civilian
services provided to assist persons andproperty in potential or actual distress in anon-hostile environment.
CISAR consists of civil SAR operationscarried out as all or part of the response toan emergency or disaster declared by thePresident under provisions of the NRF andESF #9.
The nature of CISAR could range fromnormal SAR operations to the conduct of
mass rescue operations. Two criteria mustbe met for an incident to be identified asCISAR. First, the response must beassociated with a Presidential Declaration.Second, ESF #9 must be implemented. Cleardelineation between normal SAR, massrescue operations, and CISAR may not beapparent. However, it is important to
understand that flexible response options areavailable for these progressive or potentiallyoverwhelming events. This Addendumattempts to provide standardized andflexible options for any type of CISARoperation.
Provisions of the NSP, NSS, and relevantaddenda always apply to civil SARregardless of whether the operations areCISAR. If the operations are CISAR, thenprovisions of the NRF and its relevantsupporting documents also apply.
Homeland Security PresidentialDirective 5 (HSPD-5)
HSPD-5 explains the Federal Governmentspolicy on responding to disasters. HSPD-5states the following:
To prevent, prepare for, respond to, and recover from terrorist attacks, major disasters, and other emergencies, the United States Government shall establish a single,comprehensive approach to domesticincident management. The objective of theUnited States Government is to ensure that all levels of government across the Nation
have the capability to work efficiently and effectively together, using a nationalapproach to domestic incident management.
In these efforts, with regard to domesticincidents, the United States Government treats crisis management and consequencemanagement as a single, integrated
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Catastrophic Incident
A catastrophic incident is any natural or manmadeincident, including terrorism, which results inextraordinary levels of mass causalities, damage, or disruption severely affecting the population,infrastructure, environment, economy, national morale,and/or government functions.
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function, rather than as two separate functions.
The Secretary of Homeland Security is the principal Federal official for domesticincident management. Pursuant to the
Homeland Security Act of 2002, theSecretary is responsible for coordinatingFederal operations within the United Statesto prepare for, respond to, and recover fromterrorist attacks, major disasters, and other emergencies. The Secretary shall coordinatethe Federal Government's resources utilized in response to or recovery from terrorist attacks, major disasters, or other emergencies if and when any one of the
following four conditions applies:
(1) A Federal Department or Agency actingunder its own authority has requested theassistance of the Secretary;
(2) The resources of State and localauthorities are overwhelmed and Federalassistance has been requested by theappropriate State and local authorities;
(3) More than one Federal department or agency has become substantially involved inresponding to the incident; or
(4) The Secretary has been directed toassume responsibility for managing thedomestic incident by the President.
State, Tribal, or Territorial AuthoritiesRequest for Assistance
Figure 1-2-1 below details a typical Staterequest for Federal assistance.
Local responders notify elected officials that mutual aid, as wellas State, Tribal, and/or Territorial assistance is requested.
State Governor requests interstate assistance and Presidentialdeclaration via the cognizant FEMA Regional Office and FEMAAdministrator.
President makes the necessary emergency or major disaster declaration.
Figure 1-2-1: Emergency or Major Disaster Declaration
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Response teams and other Federal resources deploy (if enough warning exists, Federal resources may be able todeploy in advance of an expected incident or declaration).
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Emergency Support Functions
Federal, State, Tribal, Territorial, and local
governments, as well as other organizations,organize resources and capabilities under 15Emergency Support Functions (ESFs). ESFsalign categories of resources and providestrategic objectives for their use.
ESFs may be selectively activated for bothStafford Act and non-Stafford Act incidentswhere Federal authorities requestDepartment of Homeland Security (DHS)assistance or under other circumstances asdefined in HSPD-5. Not every incidentresults in the activation of all ESFs.Activation depends on the nature andmagnitude of the event, the suddenness of onset, and for ESF #9, the existence of SARresources in the affected area.
The ESF #9 SAR response is scalable tomeet the specific needs of each incident,
based upon the nature and magnitude of theevent, the suddenness of onset, and thecapability of local SAR resources.
ESF #9
ESF #9 rapidly deploys Federal SARresources to provide lifesaving assistance toState, Tribal, Territorial, and local SARCoordinator(s), SAR MissionCoordinator(s), and other authorities when arequest for assistance is made or anticipatedfrom an authority recognized by the NRF forincidents or potential incidents requiring anintegrated SAR response.
Table 1-3-1 on the next page lists the ESF#9 Primary Agencies, the type of SAR theywill coordinate, and an operational overviewof the type of SAR. These agencies areaddressed because they are Primary andothers may be added if it is determined theyshould be included.
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Section 1 -3: Emergency Support Function #9 -Search and Rescue (SAR)
Emergency Support Functions ESF #9
FEMA: ESF #9 Coordinator
Lead Primary Agency
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Table 1-3-1: ESF #9 Primary Agencies
Type of SAR Primary Agency Operational Overview
Structure Collapse(Urban) SAR (US&R)
DHS/Federal EmergencyManagement Agency
(FEMA)
Includes operations for natural and man-made disastersand Catastrophic Incidents as well as other structuralcollapse operations that primarily require DHS/FEMAUS&R task force operations. The National US&RResponse System integrates DHS/FEMA US&R taskforces, Incident Support Teams (ISTs), and technicalspecialists. The Federal structural collapse SARresponse integrates DHS/FEMA task forces in support of integrated SAR operations conducted in accordance withthe NSP.
Maritime/Coastal/
Waterborne SARDHS/U.S. Coast Guard
Includes operations for natural and man-made disastersthat primarily require DHS/USCG air, ship, boat, andresponse team operations. The Federal
maritime/coastal/waterborne SAR response integratesDHS/USCG resources in support of integrated SARoperations conducted in accordance with the NSP.
Land SARDOI/National Park Service
andDepartment of Defense
Includes operations that require aviation and groundforces to meet mission objectives other thanmaritime/coastal/waterborne and structural collapse SARoperations as described above. Land SAR PrimaryAgencies will integrate their efforts to provide an array of diverse capabilities under ESF #9.
(Note: DoDs role as primary agency is based on SARCoordinator responsibilities stipulated in the NSP and isgenerally limited to a coordination function. DoDdesignation as ESF #9 primary agency is not clearlydefined in current statutes, authorities, or DoD policies.Under the NRF, DoD will assist civil authorities byconducting SAR missions on a reimbursable basispursuant to the Stafford Act or Economy Act, asappropriate.)
As provided in ESF #9, immediate CISARoperations are conducted in accordance withthe IAMSAR Manual, NSP, and the NSS,which define SAR responsibilities andprovide guidance to the involved Federal
agencies. For CISAR, these agencies assistor augment State, Tribal, Territorial, andlocal capabilities.
FEMA: ESF #9 Coordinator
FEMA is the ESF #9 Coordinator and willactivate ESF #9 when an incident isanticipated or occurs that may result in a
request for an integrated SAR response to animpacted area.
FEMA will designate the Lead PrimaryAgency for an ESF #9 SAR response.Designation is dependent upon incidentcircumstances and the type of responserequired.
FEMA will coordinate with other ESFs toensure the most expedient and efficientresources are mobilized.
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Lead Primary Agency
An ESF Primary Agency is a FederalAgency with significant authorities, roles,resources, or capabilities for a particularfunction within an ESF. A Primary Agencyserves as an executive agent under theFederal Coordinating Officer (or FederalResource Coordinator for non-Stafford Actincidents) to accomplish the ESF mission.
The Federal Agency designated LeadPrimary Agency will coordinate integrationof Federal SAR resources in support of theState, Tribe, or Territory that is requestingFederal SAR support. Coordination effortswill also include Support Agency equities.
The other ESF #9 Agencies will providesupport to the designated Lead PrimaryAgency as required by the UnifiedCommand.
In accordance with ESF #9, for incidents inwhich a Federal Agency is designated theLead Primary Agency, the following dutiesshall be performed:
Coordinate resolution of conflictingoperational demands for SAR responseresources;
Coordinate the provisioning of additional support assets;
Coordinate with Federal, State, Tribal,Territorial, and local designated SARauthorities to integrate Federal SARresources;
Coordinate planning and operationsbetween Primary and Support Agencies;
As required, provide representation atFEMAs National ResponseCoordination Center (NRCC), Joint
Field Office (JFO), and State, Tribal,Territorial, and local EmergencyOperations Centers (EOC); and
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Provide incident reports, assessments,and situation reports as required.
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General Provisions
The NRF provides an overview of keyfederal roles and responsibilities in disasterresponse operations. Additionally, the NSPprovides an overview key Federal roles andresponsibilities for routine civil SARoperations.
When the overall coordination of Federalresponse activities is required, it isimplemented through DHS and HSPD-5.Other Federal Departments and Agenciescarry out their response authorities andresponsibilities within the National IncidentManagement System's (NIMS) Incident
Command System (ICS).It is important to note that nothing in theNRF alters or impedes the ability of Federal,State, Tribal, Territorial, or localgovernments to carry out their specificstatutory authorities and responsibilities.
CISAR Operations vs. Routine SAR
ESF #9 always applies for CISARoperations. Within ESF #9, the NSP and itsassociated documents are identified as thekey policy and guidance documents forimplementing ESF #9 CISAR operations.
SAR authorities under both ESF #9 and theNSP provide and arrange for SAR services.SAR services involve application andmanagement of CISAR capabilities throughthe use of public and private resources.These resources include: cooperatingaircraft, vessels, other craft, response teams,and installations.
Table 1-4-1 on the next page highlights thedifferences between CISAR operations androutine SAR.
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Section 1 -4: Lead Federal Responsibilities General Provisions
CISAR Operations vs. Routine SAR
NSP: SAR Coordinator (SC)
Summary of Federal Responsibilities
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Table 1-4-1: CISAR Operations vs. Routine SAR
Catastrophic Incident SAR Routine SAR
What type of SARis conducted?
CISAR consists of civil SAR operations carried out asall or part of the response to an emergency or disaster declared by the President under provisions of the NRF and ESF #9.
Any SAR operations that do not meet the threshold of a CISAR operation.
What guidanceapplies?
The IAMSAR Manual, NRF, ESF #9, NSP, NSM, thisAddendum, and Agency specific policy and doctrine.
IAMSAR Manual, NSP, NSM, and Agency specificpolicy and doctrine.
Which FederalAgency is thelead?
As per ESF #9, the Federal Lead Primary Agency for a particular type of CISAR incident (DHS/FEMA:Urban; DHS/U.S. Coast Guard: Maritime/Coastal/Waterborne; DOI/NPS or DoD: Land SAR) will be thelead. This only identifies the Federal Lead PrimaryAgency. The State, Tribe, or Territory requestingassistance should be managing the unified CISARresponse.
(Note: DoDs Lead Primary Agency responsibilitieswill be in accordance with DoD stipulations identifiedin Section 1-3, Table 1-3-1.)
The SAR Coordinator (SC) for a particular SARRegion is the lead agency.
As per the NSP, the SC is the Federal person or Agency with overall responsibility for establishing andproviding SAR services for a SAR region in which theU.S. has primary responsibility.
What is the LeadFederal Agencysrole?
Federal executive agent under the FederalCoordinating Officer (a FEMA representative) toaccomplish the ESF #9 mission.
As per the NSP, the SC is responsible for providing or arranging for SAR services within United States SARRegions.
Who is responsiblefor conducting theSAR mission?
Federal CISAR responders are under the tacticalcontrol of the Incident Command and SMC.
The overall responsibility for SAR within a particular geographic region is the SAR Coordinator (SC). TheSMC or agency lead will coordinate each specific SARcase based on Agency policies and procedures.
What Commandand Controlsystem will beused?
NIMS/ICS As per the NSP, various command and controlsystems are used based on agency specific policiesand procedures
NSP: SAR Coordinator (SC)
According to the NSP, when conductingnormal SAR operations (not CISAR), an SCis one or more persons or agencies withoverall responsibility for establishing andproviding SAR services, and for ensuringthat planning for those services is properlycoordinated. Similar to the ESF #9 PrimaryAgencies, the Federal SCs identified in theNSP are associated with certain types of SAR, but also with responsibilities forcertain geographic areas known as SARRegions (Note: Details about SAR Regions
and associated responsibilities are providedin the NSS.).
Federal SC responsibilities apply to allrelevant types of SAR (except urban SAR)covered by the NSP within each SARRegion. Additionally, certain SARresponsibilities for SAR services have beenassumed by SCs according to agreementssigned with States.
Summary of Federal Responsibilities
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Refer to ESF #9 for information aboutPrimary and Supporting Agencies, the typesof CISAR operations, and the responsibleLead Primary Agency for each.
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Refer to the NSP concerning Federal SCresponsibilities.
It is important to understand that the NSPcontinues to apply even when ESF #9 isimplemented. As such, both the Federal SCand ESF #9 Primary Agencies willcoordinate providing SAR resources for aCISAR incident. However, the designatedESF #9 Primary Agency has lead
responsibility in coordinating Federal SARresources in support of the requesting State,Tribe, or Territory for the particularincident.
Table 1-4-2 below explains how ESF #9Primary Agency and Federal SCresponsibilities compare.
Table 1-4-2: Federal Responsibilities: Routine SAR and CISAR Operations (ESF #9)
CISAR Operations
ESF #9: Primary AgenciesPrimary Agency:Federal Agency with significant authorities,roles, resources, or capabilities for a particular function withinan ESF. Under ESF #9, the Primary Agency is assignedbased on the nature of the SAR operations to be conducted.
--------------------------------------------------------------------The Primary Agencies under ESF #9 and their areas of responsibility are as follows:
FEMA:Urban SAR
Coast Guard: Maritime/Coastal/Waterborne SAR
National Park Service/DoD:Land SAR
(Note: The NSP remains applicable, even during CISARoperations. Federal SAR Coordinators will continue to manage
SAR operations in their respective area of responsibility.)
Routine SAR (non-CISAR)
NSP: Federal SAR CoordinatorsSAR Coordinator:One or more persons or agencies with overallresponsibility for establishing and providing SAR services, and for ensuring that planning for those services is properly coordinated.
---------------------------------------------------------------------------The United States Federal SAR Coordinators and their area of responsibility are as follows:
U.S. Pacific Command: Alaska
Coast Guard: Maritime SAR Regions and Hawaii
National Park: Service: National Parks
U.S. Northern Command: Continental U.S. other than Alaska
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ESF #9 Primary Agencies working withthe Federal SC
CISAR Operations are a team effort.
Considering the differences between ESF #9 Primary Agencies
and the Federal SC responsibilities described in the NSP, ESF#9 Primary Agencies should work closely with the respectiveFederal SC in the affected area.
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FEMAs RoleThe Federal Emergency ManagementAgency (FEMA) is an Agency within DHS.Under HSPD-5, the Secretary of DHS isresponsible for: Administering NIMS for use by Federal,
State, Tribal, Territorial, and localgovernments; and
Developing/administering the NRF forall-hazards emergency and disaster
response.All Federal Departments and Agencies mustadopt and implement NIMS and the NRFwhere applicable. FEMA helps DHS meetthese HSPD-5 responsibilities.
Federal assistance for incidents that do notrequire DHS coordination may be led byother Federal Departments and Agenciesconsistent with their authorities. DHS maymonitor such incidents and may activate
specific NRF mechanisms to providesupport to Departments and Agencieswithout assuming overall leadership for theFederal response to the incident.
FEMA, ESF #9, and Urban Search andRescue (US&R) Task ForceResponsibilities
FEMA is the ESF #9 Coordinator. Inaddition, FEMA is the ESF #9 Lead PrimaryAgency for Structural Collapse SAR, whichincludes operations for natural and man-made disasters and catastrophic incidents aswell as other structural collapse operationsthat primarily require FEMA US&R task force operations.
FEMA develops national US&R policy,provides planning guidance andcoordination assistance, standardizes task force procedures, evaluates task forceoperational readiness, funds specialequipment and training within availableappropriations, and reimburses, asappropriate, task force costs incurred as aresult of ESF #9 deployment.
National US&R Response System
FEMAs National US&R Response Systemintegrates FEMA US&R task forces,Incident Support Teams (ISTs), andtechnical specialists. The Federal StructuralCollapse SAR response integrates FEMAtask forces in support of unified SARoperations conducted in accordance with theNSP.
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Section 1 -5: Federal Emergency Management Agency (FEMA)
FEMAs Role FEMA, ESF #9, and Urban Search and Rescue (US&R) Task Force
Responsibilities
National US&R Response System
FEMA Regional Offices
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The National US&R Response System isprepared to deploy SAR responders andinitiate operations immediately in support of ESF #9. US&R task forces are staffedprimarily by emergency services personnel
who are trained and have experience incollapsed structure SAR operations andpossess specialized expertise and equipment.
Upon activation under the NRF, FEMAUS&R task forces are considered Federalassets under the Robert T. Stafford DisasterRelief and Emergency Assistance Act andother applicable authorities.
ISTs provide coordination and logisticalsupport to US&R task forces duringemergency operations. They also conductneeds assessments and provide technicaladvice and assistance to State, Tribal,Territorial, and local government emergencymanagers.
Currently, there are 28 self-supportingUS&R task forces that can assist State,Tribal, Territorial, and local governments inSAR operations involving collapsedstructures.
FEMA Regional Offices
FEMA has ten regional offices that: Support development of NRF-related
response plans;
Assist States, Tribes, Territories, andlocal communities improve readiness;and
Mobilize FEMA assets and evaluationteams.
FEMA Regional OfficesRegion I Serving CT, MA, ME, NH, RI, VT
Region II Serving NJ, NY, Puerto Rico and the USVirgin Islands
Region III Serving DC, DE, MD, PA, VA, WV
Region IV Serving AL, FL, GA, KY, MS, NC, SC, TN
Region V Serving IL, IN, MI, MN, OH, WI
Region VI Serving AR, LA, NM, OK, TX
Region VII Serving IA, KS, MO, NE
Region VIII Serving CO, MT, ND, SD, UT, WY
Region IX Serving AZ, CA, GUAM, HI, NV, CNMI,RMI, FSM, American Samoa
Region X Serving AK, ID, OR, WA
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The National Response Coordination Center (NRCC)located at FEMA Headquarters in Washington, D.C.can be contacted at 1-202-646-2828.
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guidelines, and agreements and under theauthority of and consistent with the NSP.NSP support may be provided on areimbursable basis according to theEconomy Act or the Stafford Act. In
accordance with the NRF, and to ensure acoordinated DoD response, all requests forDoD support of CISAR operations should besubmitted to the Secretary of Defense fromthe FCO via the DCO at the Joint FieldOffice.
As discussed in the NSP, DoD may also, if requested, support civil SAR operationsanywhere in the world, consistent with itsexpertise, capabilities, and legal authority.
DoD Responsibilities
SC duties as detailed in the NSP are separateand distinct from ESF #9 Lead Agencyassignments. SC duties are assigned to theU.S. Northern Command for the continentalUnited States other than Alaska, and to theU.S. Pacific Command for Alaska.
As its name indicates, DSCA functions areprovided in support of non-DoD authorities.SC duties assigned to DoD (and approvedby the Deputy Secretary of Defense) by theNSP, which includes establishment of RCCs, are not generally considered to besupport functions, but rather a primaryfunction assigned to DoD.
The NSP also assigns substantial supportroles for civil SAR to the military. Theseroles are largely endorsed for CISAR byESF #9. For CISAR operations other thanUS&R, the NRF generally builds on ratherthan supplants provisions of the NSP.
(Note: DoDs role as an ESF #9 Lead Primary Agency is based on SARCoordinator responsibilities stipulated inthe NSP and is generally limited to acoordination function. DoD designation asan ESF #9 Lead Primary Agency is not clearly defined in current statutes,authorities, or DoD policies. Under the
NRF, DoD will assist civil authorities byconducting SAR missions on a reimbursablebasis pursuant to the Stafford Act or
Economy Act, as appropriate. If DoD SARcapabilities deploy at the direction of the Air Force Rescue Coordination Center (AFRCC) in support of the SDP, and subsequently if the Stafford Act is invoked,those capabilities will be administered bythe NRF and ESF #9. As soon as practical, aFEMA or other Department/Agency Mission
Assignment will be submitted and approved by DoD for those capabilities continued support.)
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DoD and DOI/National ParkService:
ESF #9 Primary Agencies - Land SAR
Operational Overview: Land SAR includesoperations that require aviation and ground forces tomeet mission objectives other than maritime/coastal/waterborne (Primary Agency: Coast Guard) andstructural collapse SAR operations (Primary Agency:FEMA).
DoD, through USNORTHCOM and USPACOM, willcoordinate facilities, resources, and specialcapabilities that conduct and support air, land, andmaritime SAR operations according to applicabledirectives, plans, guidelines and agreements. Per the NSP, the U.S. Air Force and USPACOM provideresources for the organization and coordination of civil SAR services and operations with their assigned SAR regions and when requested, assistFederal, State, Tribe, Territory, and local authorities.
See Note below.
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Resources
Civil authorities may use existingMOUs/MOAs to facilitate immediate use of DoD resources for civil SAR.
This authority is applicable only to DoDsupport provided within the 50 UnitedStates, the District of Columbia, theCommonwealth of Puerto Rico, the U.S.Virgin Islands, Guam, American Samoa, theCommonwealth of the Northern MarianaIslands, and any possession of the UnitedStates or any political subdivision thereof.
A Federal military commander or civilianequivalent may immediately respond to arequest for assistance from civil authoritiesto save lives, prevent human suffering, andmitigate property damage under imminentlyserious conditions without prior Secretary of Defense approval. As soon as possible,commanders must request approval from theSecretary of Defense to provide additionalsupport.
(Note: Civil authorities who verbally request military assistance in an emergency should
follow up with a written request.)Not later than 72 hours after resources havebeen employed under Immediate Response,the Heads of DoD Components,commanders, and/or responsible DoDcivilians, shall reassess whether conditionswarrant continuation of the response underthis authority.
A CISAR event may involve large numbersof persons needing assistance, and responsepriority must be given to saving humanlives. Lifesaving efforts must be immediate(within 48 hours or less, depending on the
circumstances), which often requiresdeploying resources before they arerequested. The AFRCC and/or JointPersonnel Recovery Center (JPRC) canprovide critical planning and deployment of aeronautical SAR assets to support State,Tribe, or Territory CISAR plans.
Defense Support of Civil Authorities(DSCA)
DoDs primary mission is national defense;because of this critical role, resources arenormally committed to NRF-relatedoperations only after approval by theSecretary of Defense or at the direction of the President. DoD support to civilauthorities is referred to as DSCA. Therelevant DoD Directives regarding DSCApolicy are DODD 3025.1, Military Supportto Civil Authorities, and 3025.15, MilitaryAssistance to Civil Authorities. The DoDDirective for DoD Support to Civil SAR isDODD 3003.01.
DSCA may involve Federal military forces,DoD civilians, contractor personnel, andDoD agencies and components.
In support of ESF #9, after a Stafford Actdeclaration, requests for DSCA aresubmitted by a DCO to DoD after Defenseassistance is requested by the FederalCoordinating Officer.
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AFRCCThe US Air Force Rescue Coordination Center (AFRCC) maintains MOUs/MOAs with each State andhas extensive resource files of available DoD andcivilian SAR assets. At the States request, the AFRCCcoordinates arrangements for their use.
Civil authorities requiring an immediate response fromDoD for civil SAR within the 48 contiguous statesshould contact the AFRCC at 1-800-851-3051 as soonas a need is anticipated or identified.
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Legal Restrictions
Posse Comitatus Act . The Posse Comitatus Act is a United States Federal law (18U.S.C. 1385) that prohibits most membersof the Federal armed forces (Army, AirForce, Navy, Marine Corps, and StateNational Guard forces when such are calledinto Federal service) from exercising lawenforcement, police or peace officer powersthat maintain "law and order" within theUnited States, except where expresslyauthorized by the Constitution or Congress(The fifth member of the armed forces, theCoast Guard, is exempt from the PosseComitatus Act by Title 14 of the U.S.Code.).
This is relevant because some CISAR
situations may involve the presence of military personnel supporting SAR on scenewhen law enforcement operations may needto be carried out concurrently in the samelocation.
DoD Support Structure forCatastrophic Incident SAR
U.S. Northern Command (USNORTHCOM) . USNORTHCOM hascommand and control of assigned personneland resources providing DSCA in their areaof responsibility (AOR). Additional forcescan be made available, under the commandand control of USNORTHCOM asauthorized by Secretary of Defense order(includes resources authorized under theDSCA Execution Order).
U.S. Pacific Command (USPACOM) .USPACOM has command and control of assigned personnel and resources providingDSCA in their AOR. Additional forces canbe made available, under the command andcontrol of USPACOM as authorized bySecretary of Defense order (includesresources authorized under the DSCAExecution Order).
USNORTHCOM and USPACOM haveestablished Joint Personnel Recover Centers(JPRC) to coordinate DoD SAR operationsin their respective AORs
Defense Coordinating Officer (DCO) .USNORTHCOM and USPACOM useDCOs to coordinate with FEMA in theirrespective AORs. USNORTHCOM has 10permanently assigned DCOs; one assignedto each of the 10 FEMA Regions within theContinental U.S. The DCO serves as DoD'ssingle point of contact within the UnifiedCoordination Group (UCG) for requestingDoD assistance. With few exceptions,DSCA requests originating at the UCG arecoordinated with and processed through theDCO.
Joint Task Force (JTF) . Based on thecomplexity and type of incident, and theanticipated level of DoD resourceinvolvement, USNORTHCOM orUSPACOM may designate a JTF to Federalcommand military activities in support of
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Department of DefenseNothing in this directive impairs or otherwise affectsthe authority of the Secretary of Defense over theDepartment of Defense, including the chain of
command for military forces from the President asCommander in Chief, to the Secretary of Defense, tothe commander of military forces, or military commandand control procedures. The Secretary of Defenseshall provide military support to civil authorities for domestic incidents as directed by the President or when consistent with military readiness andappropriate under the circumstances and the law. TheSecretary of Defense shall retain command of militaryforces providing civil support. The Secretary of Defense and the Secretary [of Homeland Security]shall establish appropriate relationships andmechanisms for cooperation and coordinationbetween their two departments.
Homeland Security Presidential Directive 5 (HSPD-5),Paragraph 9
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Figure 1-6-1
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In these instances the USCG providesassistance to the States, Tribes, Territories,and local jurisdictions, consistent with theirauthorities.
USCG Authority
The USCGs statutory authority to conductSAR missions is found in 14 USC 2, 88, and141.
In these routine types of SAR operations, theCoast Guard Addendum, NSS and NSPapply.
The USCG has many resources that may beimmediately available to support civil SAR
operations. Whether responding to notice ornon-notice events, emergency managersshould consider using these resources asearly in the planning process as possible.
ESF #9 SAR & CISAR
In CISAR operations, the response systemshifts to providing SAR resources throughthe ICS, which will include Federal, State,Tribal, Territorial, local, and volunteer SARorganizations. In addition to the USCG,DoD, NPS, FEMA and other SAR resourceswill be coordinated through the ICS toensure their most effective and safe use.
Routine USCG SAR Support to State,Tribal, Territorial, and LocalGovernments
For routine/normal SAR support, assistancedoes not require coordination by DHSthrough ESF #9 Mission Assignments (MA)and can be provided without a Presidentialemergency or major disaster declaration.
Section 1 -7: United States Coast Guard (USCG) USCG Authority
USCG Routine SAR Support to State, Tribal, Territorial, and Local Governments
ESF #9 & CISAR
CIS Coordination
USCG Capabilities in Support of a CISAR Response
DARTs Air Coordination Officers
References
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For CISAR, the SMC, as defined in the NSP and Coast Guard Addendum, will normallybe placed within the IC, typically as theSAR Branch Director or SAR GroupSupervisor in the Operations Section.
Simply put, the SAR response system plugsinto the IC organizational structure, wherethe SMC (or someone designated by theIncident Command (IC) to carry out thisfunction) serves as the plug or link.
USCG CISAR response assets will mostlikely be coordinated through the IC insupport of the State, Tribe, Territory, orother Federal lead as dictated by ESF #9.
(Note: In order to support a multi-agencyCISAR effort, Coast Guard responders must
be NIMS/ICS qualified to ensure effectiveintegration with other responseorganizations.)
USCG and ESF #9Under ESF #9, the USCG is the Primary Agency for Maritime/Coastal/Waterborne SAR operations. Thisincludes operations for natural and man-madedisasters that primarily require DHS/USCG air, ship,boat, and response team operations. The Federalmaritime/coastal/waterborne SAR response integratesDHS/USCG resources in support of integrated SARoperations conducted in accordance with the NSP.
In ESF #9 SAR operations, USCG SAR respondersassist and augment State, Tribal, Territorial, and localSAR capabilities in incidents requiring a coordinatedFederal response. USCG SAR responders willcoordinate SAR activities with other SAR responseagencies within the Incident Command.
In contrast, routine, immediate SAR operations (non-ESF #9) are conducted in accordance with the
IAMSAR Manual, NSP, and NSS, which define SARresponsibilities and provide guidance to FederalAgencies with civil SAR mandates. CISAR Coordination
Successful response requires unity of effort,which respects the chain of command of each participating organization whileharnessing seamless coordination across
jurisdictions in support of commonlifesaving objectives.
This kind of support may well requireUSCG personnel to liaise/interact at theFederal, State, Tribal, Territorial, or localEmergency Operations Centers (EOC) - thephysical location at which the coordinationof information and resources to support onscene operations is conducted.
The EOC will most likely be staffed bypersonnel representing multiple Federal,State, Tribal, Territorial, or local emergencyresponse agencies, the private sector, andnongovernmental organizations.
USCG Capabilities in support of aCISAR Response
The USCG uses a variety of platforms toconduct daily missions. A detailed listing of Coast Guard cutters, boats, aircraft, andresponse teams with their SAR capabilitiescan be found in the Coast Guard Addendum .
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USCG: CISAR vs. Routine SARThe USCG may support CISAR operations withUSCG assets that are organic to the region in whichthe catastrophic incident occurred. Other assets mayalso be deployed from other geographic locations.
In addition, the USCG will still continue to respond toother SAR operations within the U.S. maritime SARregions and waters under the jurisdiction of the U.S.As such, this may require the USCG to retain SMC of USCG assets during these other SAR operations andmay only be able to accept CISAR missionassignments on a not to interfere basis.
As CISAR operations are conducted, it is critical thatthe IC fully understands the USCGs continuedresponsibility to conduct other SAR operations inaddition to supporting ongoing CISAR operations.
National Command CenterThe National Command Center is located at Coast GuardHeadquarters in Washington, DC and can be reached at202-372-2100.
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DARTs
Disaster Assistance Response Teams(DARTs) are small deployable boat teamsthat provide flood response SAR resourcesprimarily in the Gulf of Mexico and midwest. DARTs consist of one trailer with towvehicle, containing three flat bottom boatsknown as flood punts, four engines, and aset of standard rescue and operatingequipment along with seven crew members.
DARTS are designed to provide SARsupport, transportation of victims, essentialwaterborne logistic support, delivery of vitalsupplies and materials and provide access tostorm-damaged area to key personnel.DART operations can be conducted in stillor standing waters but do not involve swiftwater response.
Air Coordination Officers
The USCG maintains a cadre of aircoordination officers. These aviationqualified officers are skilled in thecapabilities and use of USCG aviationassets. If a Federal, State, Tribal, Territorial,or local government requests USCG aviationassets to aid in the response to a catastrophic
incident, they should also ensure an aircoordination officer is also provided.
This officer or team of officers facilitates theintegration of USCG air assets into theCISAR operation through the applicableairspace coordination plan, thereby ensuringthat Coast Guard aviation assets are properlyand safely deployed. In addition, the AirCoordination Officer will support the overallCISAR effort by exchanging currentintelligence, operational data and supportrequirements.
References
The information in this section was obtainedfrom the following sources: Coast Guard Addendum to the U.S.
Search and Rescue Manual to the IAMSAR Manual ;
Coast Guard Incident Management Handbook ;
Coast Guard Eighth District Instruction3010.2A Disaster Assistance ResponseTeam for Flooding Response ; and
National Response Framework.
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Section 1 -8: National Park Service (NPS) NPS Authority
NPS Regional Offices
NPS, ESF #9 Land SAR Lead Primary Agency
NPS Authority
The National Park Service (NPS) is anagency within the Department of Interior(DOI).
The NPS traditionally provides visitor
protection services - including SAR - withinareas of the National Park System. Theprovision of these services is in accordancewith the Organic Act of August 25, 1916 (16USC). This Act allows for the rendering of emergency rescue and law enforcement forrelated purposes outside of the National Park System.
NPS Regional Offices
Each of the seven regional NPS offices
coordinates SAR resources and trainingthrough the NPS Regional SARCoordinator. This Coordinator will facilitatethe management of SAR resources andmaintains equipment and supplies that canbe available during CISAR operations.
ESF #9 Land SAR Lead PrimaryAgency
Under ESF #9, NPS is the Lead PrimaryAgency for Land SAR.
NPS Land SAR Teams provide personnel,equipment, and supplies for conductingoperations during a CISAR event. Theseteams are specially trained to operate invarious roles including ground search, smallboat operations, swiftwater rescue, helo-
aquatic rescue, and other technical rescuedisciplines.
In particular, NPS Small Boat Task Forces(SBTF) provide personnel and shallowdraft vessels for use in situations whererescue and evacuation are necessary.
NPS maintains preconfigured teams thatinclude personnel and equipment from theNPS, the U.S. Fish and Wildlife Service,U.S. Geological Survey, Bureau of Indian
Affairs, and other DOI components inplanning for ESF #9.
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The National Park Services Emergency IncidentCoordination Center (EICC) operates 24/7 andprovides resource management for routine lawenforcement and SAR events. During a CISARevent, the EICC provides coordination of theagencys assets.
The EICC may be contacted at 540-999-3422.
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Section 1 -9: States Overview
Providing and Requesting Assistance
SAR Agreements and Plans
Emergency Management Assistance Compact
Declarations Process
Overview
Key State-level SAR issues include: Designation of responsible State SAR
authorities; Effective SAR planning and resourcing; Support to local governments; Balancing lifesaving and jurisdictional
concerns; and Requesting assistance.
Providing and Requesting Assistance
The State provides assistance to localgovernments if requested. States havesignificant resources of their own thatinclude emergency management andhomeland security agencies, State Police,health agencies, transportation agencies,incident management teams, specializedteams, and the National Guard.
If additional resources are required, Statesmay request assistance from other Statesthrough interstate mutual aid and assistance
agreements such as the EmergencyManagement Assistance Compact (EMAC)as discussed below.
If an incident is beyond State and localcapabilities, the Governor can seek Federalassistance. The State will collaborate withthe impacted communities and the FederalGovernment to provide the assistancerequested.
SAR Agreements and Plans
Most States have signed SAR agreementsand/or plans with the Federal SC designatedin the NSP responsible for their respectiveareas. For example, the Air Force, via theAFRCC, has an MOA with each Governorand MOUs with many State authoritiesresponsible for SAR. In addition to theseMOAs, States are encouraged to develop
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StatesThe Federal Government recognizes the roles andresponsibilities of State and local authorities indomestic incident management. Initial responsibilityfor managing domestic incidents generally falls onState and local authorities. The Federal Governmentwill assist State and local authorities when their resources are overwhelmed, or when Federalinterests are involved. The Secretary [of HomelandSecurity] will coordinate with State and localgovernments to ensure adequate planning,equipment, training, and exercise activities. TheSecretary [of Homeland Security] will also provideassistance to State and local governments to developall-hazards plans and capabilities, including those of greatest importance to the security of the UnitedStates, and will ensure that State, local, and Federalplans are compatible.
Homeland Security Presidential Directive 5 (HSPD-5),Paragraph 6
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integrated plans that cover CISARoperations and the integration of Federalassets in support of these operations.
Emergency Management AssistanceCompact (EMAC)
EMAC is administered by the NationalEmergency Management Association, whichprovides form and structure to the interstatemutual aid and assistance process. All Statesbelong to the EMAC system.
Most CISAR operations will involveNational Guard forces. National Guardforces deployed through EMAC typicallywill remain under the control of theirrespective State.
Declarations Process
The Stafford Act and implementingregulations (44 CFR 206) set forth a processfor a Governor to request the President todeclare a major disaster or emergency. Amajor disaster will be declared if: An event is beyond the combined
response capabilities of the State andaffected local governments; and
If, based on the findings of a jointFederal-State-local Preliminary DamageAssessment (PDA), the damages are of sufficient severity and magnitude towarrant assistance under the Stafford
Act. In a particularly fast-moving orclearly devastating disaster, there may bean expedited declaration, and the PDAmay be deferred until after thedeclaration.
The President may direct emergencyassistance without a Governors request if anincident occurs that involves a subject areais exclusively or preeminently theresponsibility of the United States. ThePresident will consult the Governor of anyaffected State, if practicable.
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FEMA may provide accelerated Federalassistance and support where necessary tosave lives, prevent human suffering, ormitigate severe damage, even in the absenceof a specific request (The Governor of theaffected State will be consulted if practicable, but this consultation shall notdelay or impede the provision of such rapidassistance.).
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Functions
Nongovernmental Organizations (NGOs)render assistance through existing EOCs andother structures. NGOs can provideinvaluable assistance to CISAR operations,including shelter, emergency food supplies,assistance with animals, and other vitalCISAR support services. These groups oftenprovide specialized help for individuals withspecial needs, including those withdisabilities.
Working Relationships
Effective interagency coordination withNGOs requires pre-event planning in orderto leverage the capabilities of these costeffective resources. These organizations arecapable of providing operational and
logistical expertise and can also helpmanage volunteer services and donatedgoods. Voluntary Organizations Active inDisaster (VOADs) and faith basedorganizations will contribute services thatwill enhance the CISAR response. Pre-event
planning is the key to leveraging NGOcapabilities.
Private Sector
The private sector is responsible for most of the critical infrastructure and key nationalresources and thus may require assistance inthe wake of a disaster or emergency. Theyalso provide goods and services critical toCISAR response efforts, either on a paidbasis or through donations.
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Section 1 -10: Nongovernmental Organizations Functions
Working Relationships
Private Sector
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Part 2: CIS Planning and Management
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Immediate Support
The main role of Federal CISAR respondersis to support the IC.
Federal support must be provided in a timelymanner to save lives, prevent humansuffering, and mitigate severe damage. Thismay require mobilizing and deploying assetsbefore they are requested via normal NRF
protocols.The nature of a catastrophic incident mayimmediately overwhelm State, Tribal,Territorial, and local response capabilitiesand require immediate Federal support.Federal support can be providedimmediately under the authority of the NSP,and also in the form of initial assistance thatFEMA is able to provide under the NRF.
Section 2 -1: CISAR Operating Principles Immediate Support
Scope of Operations Immediate Response
Response Actions
Key Principles
Balance of Concerns
Tiered Approach
Scope of Operations
The nature and scope of a catastrophicincident may result in large numbers of persons in distress and include chemical,biological, radiological, nuclear or high-yield explosive attacks, disease epidemics,and major natural or manmade hazards.
Multiple incidents may occur
simultaneously or sequentially, incontiguous or noncontiguous areas.
The incident may cause significantdisruption of the areas criticalinfrastructure, such as energy,transportation, telecommunications, andpublic health and medical systems.
Local CISAR response capabilities andresources (to include mutual aid fromsurrounding jurisdictions and support from
the State, Tribe, or Territory) may beinsufficient and quickly overwhelmed. State,Tribal, Territorial, and local emergencypersonnel who normally respond toincidents may be among those affected andunable to perform their duties .
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Lifesaving PriorityA CISAR operation may involve very large numbers of persons needing assistance, and priority must be givento human lifesaving.
Lifesaving efforts must be immediate to be effective.
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Immediate Response
When appropriate for lifesaving, FederalDepartments and Agencies that conduct
SAR operations generally have authority torespond immediately (includes DoDcomponent commands).
Normally, awareness of the need forimmediate response becomes known due todirect receipt of calls for help from personsin distress (such as distress alerts to aRescue Coordination Center - RCC), orrequests for assistance from somerecognized civil authority.
(Note: Nothing in any Federal plan is ever intended to preclude prompt assistance to
persons in distress when it can reasonablybe given.)
With rare exceptions (e.g., critical nationalsecurity situation, interference with criticalmilitary duties), jurisdictional, legal, orfinancial considerations should not precludeprompt response to save lives.
Typically, a unified response builds uponthe work of those providing immediate aidto those in distress.Response Actions
Four key response actions typically occur insupport of CISAR operations: Gain and maintain situational awareness; Activate, pre-position, and deploy key
resources and capabilities; Effectively coordinate response actions;
and As the situation permits, demobilize.
The NRF provides a detailed overview of these response tasks.
Key Principles
Key principles that must be applied forsuccessful CISAR operations are: Engaged partnership;
A tiered response; Scalable, flexible, and adaptable
capabilities; Unity of effort and command; and Readiness.
In addition, the principle of using allavailable resources to save lives is especiallypertinent in demanding CISAR operations.
Balance of Concerns
In CISAR operations, lifesaving must beweighed against the risks taken by CISARresponders (see Section 2-4: Risk Assessment). To save lives and protectproperty, decisive action on scene is oftenrequired of emergency responders. Althoughsome risk may be unavoidable, firstresponders can effectively anticipate andmanage risk through proper training andplanning.
Tiered ApproachCISAR operations must be implementedthrough a tiered approach (See Figure 2-1-1on the next page): If required, State assistance will
supplement local efforts; and When requested, Federal assistance will
supplement State, Tribal, Territorial, andlocal CISAR efforts.
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planning and is normally accomplisheduneventfully through agency specificpractices and standard operating procedures.
However, timely rescue and transport tosafety in response to the immediate need of extremely large numbers of persons indistress following a catastrophic incidentwill likely be insufficient and hampered bydamage to critical infrastructure and keyresources.
During an MRO, the overwhelmingmagnitude of individuals needing rescuewill likely dominate the immediateoperational requirement. As such, thesearch portion of SAR and the scientificmathematics and algorithms used to developoptimal search plans may be of limited valuein CISAR planning and operations.Therefore, the development of a thorough,all domain (land, waterborne, and air),multi-agency integrated plan to efficientlyaffect recovery, provide medical treatment,and transport survivors to places of safetydemands the full attention of SAR plannersand decision makers at all levels of government.
The prospect of overwhelming numbers of people requiring immediate life-savingassistance poses the greatest challenge toCISAR planning and effective operations.This prospect will likely require timelyimplementation of resources from multipleagencies at all levels of government.
Lessons Learned: Hurricane Katrina
In the aftermath of Hurricane Katrina(2005), the extensive flooding requiring therescue of thousands of distressed personsoverwhelmed first responders. During theresponse, transporting small numbers of rescued persons many miles to places of safety or placing rescued persons on higherground in the vicinity (in order to speedfurther rescues) with no follow-on assistance
proved grossly inefficient and left thesurvivors at continued risk.
Out of necessity, an all domain integratedoperational chain of events was eventuallydeveloped and successfully implemented byfirst responders. Lily Pads (see Section 3-14:Delivery of Survivors) were identified forintermediate drop-off of distressed personsproviding medical treatment and transport toplaces of safety allowing rescue resources toquickly return to scene. To be effective forfuture, similar operations, putting thisunbroken chain of events into timelypractice demands the utmost of integratedcollaborative planning.
Planning is foundational for CISARpreparedness and response. CISAR planningwill: Allow jurisdictions to influence the
course of events in a CISAR operationby determining in advance the actions,policies, and processes to be followed;
Guide other preparedness activities; Enable awareness of capabilities across
the response community; and Contribute to unity of effort by
providing a common response blueprint.
Integrated Planning System (IPS)
HSPD-8 (National Preparedness) Annex 1(National Planning) directs that FederalAgencies apply IPS in developing plansbased on the eight national planningscenarios, any of which can involve CISARoperations. (See Figure 2.2.2 for listing of the eight scenarios.)
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The purpose of the IPS is to further enhancethe preparedness of the United States byformally establishing a standardized andcomprehensive approach to nationalplanning. It provides a basic, generalframework for developing a series of products leading to a synchronized Federal
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plan. The IPS is a how-to guide forFederal Departments and Agencies todevelop contingency planning documentsthat support State, Tribal, Territorial, andlocal governments.
The IPS provides individualized annexedguidance on the development of a family of related planning documents: StrategicGuidance Statements (SGSs), StrategicPlans, Concept Plans (CONPLANs), andOperations Plans (OPLANs).
IPS concepts and principles are consistentwith NRF and NIMS planning systems.Along with the IAMSAR and NSP, the IPSshould be the basis of CISAR Planning. IPSshould be used as part of the planningprocess of the Incident Command System(ICS) established in the NIMS. The IPS alsoprovides a method for Federal Agencies tomaintain NIMS compliance because it is tiedto the NIMS preparedness component.
Detailed SAR Action Plans should beutilized as CISAR Tactical Plans.Standardized SAR Action Plans will helpminimize the planning cycle time, assistusers in finding pertinent information, and
help lessen the need to provide amplificationof details.
Federal, State, Tribal, Territorial, and LocalPlanning Relationships
Federal, State, Tribal, Territorial, and localplans describe each respective governmentsapproach to SAR operations. Because theselevels of government all provide support tooperations conducted at the local level, planshave similar and overlapping functions.
Planning must be coordinated among alllevels of government to ensure a singularoperational focus. The goal is to ensure theeffectiveness of combined Federal, State,Tribal, Territorial, and local operationsthrough integration and synchronization.
Integrated planning helps define how
Federal Departments and Agencies add theright resources at the right time to supportState and local CISAR operations. From theStates perspective, integrated planningprovides answers to questions aboutworking with other organizations andobtaining resources. Figure 2-2-1 on thenext page shows the relationships amongFederal, State, Tribal, Territorial, and localplanning efforts.
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Developed by Secretary of Homeland Security in coordination with the headsof Federal agencies with a role in homeland security
Focused on risk-based planning Updated at least biennially Grouped into eight categorieso
Figure 2-2-1 Federal and State Planning Relationships
National PlanningScenarios
Developed by Secretary of Homeland Security in coordination with the headsof Federal agencies with a role in homeland security
Outlines strategic priorities, broad national objectives Updated at least biennially Described the envisioned end state
Strategic GuidanceStatements SGS
Developed by Secretary of Homeland Security in coordination with the headsof Federal agencies with a role in homeland security and the NCTC Director
One for each SGS Defines mission, roles, authorities, and responsibilities Establishes mission-essential tasks
Federal StrategicPlans
Developed by Secretary of Homeland Security in coordination with the headsof Federal agencies with a role in homeland security
Describes the process for integrating and synchronizing existing Federalcapabilities to accomplish the mission-essential task
Describes how Federal capabilities will be integrated into regional, State,Tribal, and local plans
Federal AgencyOPLANS
Federal CONPLANS Tactical Plans
Developed by FEMA Regions Incorporates the eight Federal CONPLANs into Regional plans Establishes process for vertical synchronization Interfaces with State plans
All-hazards prevention, protection response, recover, and mitigation-with hazardsprioritized through HIRA
Identifies how resources will be secured from Federal sources; should explain portal-to-portal interface
Identifies State Concept of Operations Induces specific SOGs, annex, and appendices
Similar to State plan with similar functions, but for local or municipal government Establishes lines of authority to secure resources when event is beyond local capabilities.
FEMA Regional Plan
State/Tribal Plan
Local/Municipal Plan
Developed by Federal agency heads Details resources, assets, and personnel needed
to execute the objectives of the Strategic Plan Provides a full description of the concept of
operations including roles, tasks, responsibilities,integration, and actions required.
Developed by Federalagency heads
Identifies individual tasks,actions, and objectives
Supports and fulfills theobjectives of the OPLAN
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IPS is flexible enough to accommodate themany State, Tribal, Territorial, and localgovernment planning formats, styles, andprocesses . The IPS lays the initial
foundation and provides a means forsynchronizing operations across thespectrum of homeland security operationsand thus enables integrating national CISARplanning efforts both horizontally across theFederal Government and vertically amongFederal, State, Tribal, Territorial, and localentities.
State, Tribal, Territorial, and localgovernments are encouraged to comply withIPS by using the FEMA Comprehensive
Preparedness Guide (CPG) 101. This guide:
Provides general guidelines ondeveloping Emergency Operations Plans(EOPs);
Promotes a common understanding of the fundamentals of planning anddecision making; and
Can help emergency planners produceintegrated, coordinated, andsynchronized SAR plans.
Together, IPS and CPG 101 support nationalvertical integration by clearly articulatingFederal planning procedures to State, Tribal,Territorial, and local governments andestablishes a consistent SAR planningprocess across all levels of government(Figure 2.2.2 below).
National PlanningScenario Sets
Federal StrategicConcept Plans
FEMA RegionalConcept Plans
State and LocalPlans
Set 1: Explosive Attack Set 2: Nuclear Detonation Set 3: Radiological Attack Set 4: Biological Attack Set 5: Chemical Attack Set 6: Natural Disaster Set 7: Cyber Attack Set 8: Pandemic Influenza New Scenarios or
Scenario Sets
Set 1: Explosive Attack Set 2: Nuclear Detonation Set 3: Radiological Attack Set 4: Biological Attack Set 5: Chemical Attack Set 6: Natural Disaster Set 7: Cyber Attack Set 8: Pandemic Influenza New Scenarios or
Scenario Sets
Individual Hazardor Threat Annexes
o One per Federal CONPLAN for the National
Planning Scenario Sets
o Special or Locally Significant Events
o Hazards of State,Local, or Tribal Concern (not otherwise addressed)
Individual Hazardor Threat Annexes
o One per Federal CONPLAN for the National
Planning Scenario Sets
o Special or Locally Significant Events
o Hazards of State,Local, or Tribal Concern (not otherwise addressed)
IPS
Figure 2.2.2 Linkages between Federal, State, and Local Planning
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CPG-101
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CISAR Planning Fundamentals
The challenge of planning for saving livesand property is made easier if planners
consider the following commonfundamentals during the planning process:
These factors are the very essence of successful CISARplanning. Effective CISAR planning is more of an art than ascience, relying heavily on the creativity and experience of thepeople involved, particularly the SMC.
Planning is influenced by time,uncertainty, risk, and experience.
Planning should involve allrelevant partners.
A successful SAR Plan emanates from one overall SMC andis prepared by a team of SAR representatives from theinvolved Federal Agencies, State, Tribal, Territorial, and localgovernments, the private sector, and NGOs that willparticipate in executing the plan.
Planning is an orderly, analytical,
problem-solving process.
Follows logical steps from plan initiation to analysis of objectives, to development and comparison of ways to achievethe objectives, and selection of the best solution.
Planning guides preparednessactivities.
Provides a common framework to guide preparedness byestablishing the desired end state and the tasks required toaccomplish it. This process identifies SAR capabilities requiredand resources to support.
Planning helps to understand andrespond to what may be a verycomplex CISAR operation.
Catastrophic events embody the greatest risk of masscasualties, massive property loss, and immense infrastructureand social disruption.
Planning should address functionscommon to all hazards.
The causes of catastrophic incidents can vary greatly; theeffects and the CISAR response normally does not.
Planning should be based onexisting plans and procedures.
Planners should capitalize on plans, procedures, and lessonslearned from other incidents. The State is a valuable resourcefor the local jurisdiction, just as the Federal Government is avaluable resource for the State.
Planning depicts the anticipatedenvironment for action.
Early understanding and agreement on planning assumptionsamong all CISAR stakeholders provides the context for interaction.
Planning assigns tasks, allocatesresources, and establishesaccountability for CISAR ops.
Decision makers must ensure planners have the resourcesneeded to accomplish the planning requirements.
Planning includes senior officialsthroughout the process to ensureboth understanding and buy-in.
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Planning helps decision makers not otherwise knowledgeablewith CISAR to anticipate and think critically, reducing timebetween decisions and actions.
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Time Driven Objective and Resourcesto Support
The primary objective of CISAR is two-foldand time driven: Special Response Teams (SRT) and
Rapid (Hasty) searches completed within24 hrs; and
Primary searches completed within 48hours.(See Section 3-11: CISAR Searches.)
With the possibility of overwhelming MROwithin a CISAR environment, time is theenemy. Knowledge of the resources requiredto achieve these objectives within thespecified time is paramount. Capability gapsto achieve time driven objectives must beidentified at the local level. Any additional
resource requirements must be requested asearly in the planning process as possible.
Planners at all levels of government shoulduse a capabilities based approach todetermine CISAR resource requirements.An incident specific gap analysis should bethe basis for State, Tribal, Territorial, andlocal SAR planners in their initialdetermination of the necessary resourcesrequired to achieve CISAR objectives. Thisapproach will also provide better clarity and
justification for external resource requests(e.g., EMAC, Pre-scripted MissionAssignment (PSMA), Federal Request forAssistance (RFA)).
Questions may need to be posed, variableswill need to be considered, and factors willneed to be determined in or