DOMESTIC OPERATIONAL LAW HANDBOOK 2018 FOR JUDGE ADVOCATES CENTER FOR LAW AND MILITARY OPERATIONS September 2018 2018 DOMESTIC OPERATIONAL LAW HANDBOOK A PRACTITIONER’S GUIDE FOR JUDGE ADVOCATES EDITORS and CONTRIBUTING AUTHORS LTC Ted Martin, USA MAJ Corey E. Thomas, ARNGUS 2018 CONTRIBUTING AUTHORS COL Pat Butler LTC Richard Sudder LTC Bayne Johnston LTC Michael McCann LTC Stephen Faherty LTC Robert Kavanaugh LTC Benjamin Currier LTC Thomas Forrest CDR Michael Gesele MAJ Sean Rogers MAJ Ryan Kerwin Maj Dimple Nolly LCDR James Zoll LCDR Jonathan Perry CPT Charles W. VanDerMiller Mr. Kevin Kapitan Mr. Robert Goodin Mr. Jonathan Russell Mr. Robert Gonzales As well as numerous past editors and contributors to the Domestic Operational Law Handbook. The contents of this publication are not to be construed as official positions, policies, or decisions of the United States Government or any department or agency thereof. Center for Law and Military Operations (CLAMO) The Judge Advocate General’s Legal Center and School, U.S. Army Charlottesville, VA 22903-1781 Cover design by MAJ Corey E. Thomas The Judge Advocate General’s Legal Center & School Cover Photos: Hurricanes Hurricane Irma rips through Puerto Rico. (September 7, 2017) (Photo courtesy Joshua Hoyos and Mi.I. Nestel ABC News) Domestic Imagery/Incident Awarness and Assessment Workers prepare an MQ-1C Gray Eagle drone at Michael Army Airfield, Dugway Proving Ground in Utah September 15, 2011. Reuters/U.S. Army/Spc. Latoya Wiggins/Handout Chemica/Biological/Radiological/Nuclear/Environmental Staff Sgt. Hector Pena, 48th Chemical Bde., participates in a situational training lanes exercise during the 20th CBRN Command Best Warrior Competition July 23, 2014 at Aberdeen Proving Ground, Md. (Photo courtesy Laurena Bell, 20TH CBRN COMMAND) Floods Livestock stranded on high ground surrounding a house under construction during the 2016 flood in Louisiana. (Photo courtesy Bossier Parish Sheriff’s Office) Counterdrug Arkansas Guard members help State Police remove marijuana plants from a Guard helicopter during a recent eradication mission in support of the National Guard's Counterdrug Program. (September 3, 2008) (Photo courtesy Staff Sgt. Chris A. Durney) Insurrection Federalized Soldiers from the Arkansas Army National Guard and the 101st Airborne Division providing support to local law enforcement in accordance with President Dwight Eisenhower’s Insurrection Act authority. (September 26, 1957) (Photo courtesy Richard Austin of theclio.com) National Special Security Events The 2017 Presidential Inauguration (Photo courtesy Elijah Crawford, 2017) Wildfires In 2000, this wildfire burned just north of Sula, Montana. (Photo courtesy John McColgan, Bureau of Land Management) EDITOR’S NOTE The Domestic Operational Law (DOPLAW) Handbook for judge advocates is a product of the Center for Law and Military Operations (CLAMO). The content is derived from statutes, Executive Orders and Directives, national policy, DoD Directives and Instructions, joint publications, service regulations, field manuals, as well as lessons learned by judge advocates and other practitioners throughout Federal and State government. This edition includes substantial revisions. It incorporates new guidance set forth in Department of Defense Directive 3025.18 (Defense Support of Civil Authorities), Department of Defense Instruction 3025.21 (Defense Support of Civilian Law Enforcement Agencies), numerous new National Planning Framework documents, and many other recently updated publications. It provides amplifying information on wildfire response, emergency mutual assistance compacts, the role of the National Guard and Army units in domestic response, and provides valuable lessons learned from major disasters such as Hurricanes Harvey, Irma, and Maria. The Handbook is designed to serve as a working reference and training tool for judge advocates; however, it is not a substitute for independent research. With the exception of footnoted doctrinal material, the information contained in this Handbook is not doctrine. Judge advocates advising in this area of the law should monitor developments in domestic operations closely as the landscape continues to evolve. Further, the information and examples provided in this Handbook are advisory only. The term “State” is frequently used throughout this Handbook, and collectively refers to the 50 States, Guam, Puerto Rico, U.S. Virgin Islands, and the District of Columbia. The same is often referred to as “the 54 States and territories.” Finally, the content and opinions expressed in this Handbook do not represent the official position of the U.S. Army or the other services, the National Guard Bureau, the Office of The Judge Advocate General, The Judge Advocate General’s Legal Center and School, or any other government agency. This Handbook is also available in electronic format from the CLAMO website at https://www.jagcnet.army.mil/, and the “Military Legal Resources” section of the Library of Congress website at https://www.loc.gov/rr/frd/Military_Law/military-legal-resources-home.html. CLAMO also posts lessons learned, after action reports, and other products in the National Security Law Document Library on JAGCNET at https://www.jagcnet2.army.mil/IODocLib (CAC access required), and the National Security Law Milbook site at https://www.milsuite.mil/book/groups/international-and-operational-law (CAC access required). The continued vitality of this publication depends upon feedback from the field. Accordingly, CLAMO encourages your suggestions, comments, and work products for incorporation into the next edition of this Handbook. You may contact CLAMO at (434) 971-3248/3210 (COMM), 521- 3248/3210 (DSN), via email at [email protected], or via regular mail at 600 Massie Road, Charlottesville, Virginia 22903-1781. Domestic Operational Law Handbook 2018 TABLE OF CONTENTS CHAPTER 1: OVERVIEW OF DOMESTIC SUPPORT OPERATIONS ............................................................1 A. BACKGROUND .................................................................................................................................1 B. PURPOSE OF THIS HANDBOOK .........................................................................................................3 C. DOD’S ROLE IN CIVIL SUPPORT ......................................................................................................3 D. DEFENSE SUPPORT OF CIVIL AUTHORITIES (DSCA) .......................................................................6 E. HANDBOOK ORGANIZATION ............................................................................................................6 CHAPTER 2: NATIONAL FRAMEWORK FOR INCIDENT MANAGEMENT ..................................................8 A. THE FEDERAL RESPONSE STRUCTURE ............................................................................................9 1. E.O. 12656 ......................................................................................................................10 2. THE HOMELAND SECURITY ACT ......................................................................................11 3. HOMELAND SECURITY PRESIDENTIAL DIRECTIVE 5 (MANAGEMENT OF DOMESTIC INCIDENTS) ......................................................................................................................12 4. PRESIDENTIAL POLICY DIRECTIVE 8 ................................................................................13 5. PPD-8 AND THE NATIONAL PREPAREDNESS SYSTEM (NPS) ............................................14 6. NATIONAL RESPONSE FRAMEWORK.................................................................................14 7. NATIONAL PREVENTION FRAMEWORK .............................................................................26 8. NATIONAL MITIGATION FRAMEWORK .............................................................................27 9. NATIONAL DISASTER RECOVERY FRAMEWORK ...............................................................28 10. NATIONAL PROTECTION FRAMEWORK .............................................................................29 11. NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS) ....................................................30 12. OTHER SIGNIFICANT RESPONSE PLANS AND AUTHORITIES RELATED TO NPS .................31 B. THE STAFFORD ACT ......................................................................................................................34 1. REQUESTS FOR EMERGENCY OR MAJOR DISASTER DECLARATIONS ................................37 2. LIABILITY UNDER THE STAFFORD ACT .............................................................................39 3. CATEGORIES OF AGENCY SUPPORT UNDER THE STAFFORD ACT .....................................39 4. INTERPLAY BETWEEN THE STAFFORD ACT AND NPS ......................................................40 C. IMMEDIATE RESPONSE AUTHORITY ...............................................................................................41 1. FEDERAL MILITARY COMMANDERS .................................................................................41 2. STATE GOVERNORS .........................................................................................................42 D. CONCLUSION .................................................................................................................................42 CHAPTER 3: STATUS AND RELATIONSHIPS BETWEEN COMPONENTS RESPONDING TO DOMESTIC INCIDENTS ....................................................................................................................................45