This National Response Framework (NRF) is a guide to how the Nation conducts all-hazards response. It is built upon sc alable, fle xible, and adaptable c oordinating struc tures to align key roles and respons ibilities ac ross the Nation, linking a ll levels of government, nongovernmental organizations, and the private sector. It is intended to c apture spec ific authorities and best practices for managing incidents that range from the serious but purely loc al, to large-scale terrorist attacks or catastrophic natural disasters. This c ore document, along with the Emergency Support Function Annexes and Support Annexes (available at the NRF Resource Center, http://www.fema.gov/NRF), supersedes the corresponding sections of the National Response Plan (2004, with 2006 revisions). The Incident Annexes remain in effect until superseded at a later date. The President has approved this National Response Framework. Washington, DC January 2008 January 2008 National Response Framework Page i Intentionally Left Blank Page ii National Response Framework January 2008 CONTENTS INTRODUCTION..................................................................................................... 1 Overview ......................................................................................................... 1 Framework Unpac ked......................................................................................... 3 Scope.............................................................................................................. 7 Response Doctrine............................................................................................. 8 Part of a Broade r Strategy ................................................................................ 12 CHAPTER I – RO L ES AND RESPONSIBILITIES .......................................................... 15 Local ............................................................................................................. 15 The Private Sector and NGOs............................................................................. 18 States, Territories, and Tribal Governments ......................................................... 21 Federal .......................................................................................................... 24 CHAPTER II – RESPONSE ACTIO NS ....................................................................... 27 Introduction ................................................................................................... 27 Prepa re ......................................................................................................... 27 Resp ond ........................................................................................................ 32 Recover ......................................................................................................... 45 CHAPTER III – RESPONSE ORGANIZATION ............................................................ 47 Introduction ................................................................................................... 47 Key Concepts ................................................................................................ 48 Local Response: Structures and Staffing ............................................................. 49 State Response: Structures and Staffing ............................................................ 51 Federal Response: Structures and Staffing ......................................................... 53 CHAPTER IV – PLANNING: A CRITICAL ELEMENT OF EFFECTIVE RESPONSE ............... 71 The Framework and Planning............................................................................. 71 The Value of Planning ...................................................................................... 71 Nationa l P repa redness Arc hitecture .................................................................... 72 The Federal Planning Structure .......................................................................... 73 The State, Tribal, and Local Planning Structure ..................................................... 74 Criteria for Suc c essful Planning .......................................................................... 74 CHAPTER V – ADDITIONAL RESOURCES ................................................................. 77 Supporting Documents and the NRF Resource Center ............................................ 77 Effective Date and Framework Implementation ..................................................... 79 ACRO NY MS......................................................................................................... 81 January 2008 National Response Framework Page iii Intentionally Left Blank Page iv National Response Framework January 2008 INTRODUCTION OVERVIEW This Nationa l Response Framework (NRF) [o r Frame work] is a guide to how the Nation conducts all-hazards response. It is built upon sc alable, fle xible, and adaptable coordinating structures to align key roles and res pons ibilities across the Nation. It describes spec ific authorities and best practices for managing incidents that range from the serious but pure ly loc al, to large-scale terrorist attacks or catastrophic natural disasters. This document explains the common discipline and structures that have been exercised and matured at the local, tribal, State, and national leve ls over time. It describes key lessons learned from Hurricanes Katrina and Rita, focusing particularly on how the Federal Government is organized to support communities and States in catastrophic inc idents. Most importantly, it builds upon the National Incident Management System (NIMS), whic h provides a consistent template for managing incidents. The term “response” as used in this Frame work includes imme diate actions to save lives, protect property and the env ironment, and meet basic human needs. Response also includes the execution of emergency plans and actions to support short-t e r m rec overy. The Framework is always in effect, and elements can be implemented as needed on a flexible, sc alable basis to improve response. INTENDED AUDIENCE The Frame work is written especially for government executives, private-sector and nongovernmental orga nization (NGO) leade rs, and emergency management practitioners. First, it is addressed to senior elec ted and appointed leaders, such as Federal depart ment or agenc y heads, State Governors, mayors, tribal leade rs, and c ity or c ounty offic ials – those who have a responsibility to provide for effective response. For the Nation to be prepared for any and all haza rds, its leade rs must have a baseline fa miliarity with the concepts and mechanics of the Framework. At the same time, the Framework informs emergency management practitioners, explaining the operating structures and tools used routinely by first responders and emergency managers at all levels of government. For these readers, the Framework is augmented with online access to supporting documents, further training, and an evolving resource for exchanging lessons learned. 1 1 To support users of the Framework, the Department of Homeland Security has created an online NRF Re sou rce Cente r , available at http://www.fema.gov/NRF. This online resource will routinely grow and evolve in support of the Framework and those who work with it. The initial postings contain multiple supporting documents, operational plans, standard forms, and other tools that are commonly used by the incident management community. The s ite will further explain technical aspects of the Framework, and will routinely post supporting documents as they are newly generated or improved. January 2008 National Response Framework Page 1 INTRODUCTION One of the challenges to effective response is the relatively high turnove r a nd short tenure among elected and appointed officials responsible for response at all levels. Effective response hinges upon well-traine d leaders and responders who have invested in response preparedness, developed engaged partnerships, and are able to achieve shared objectives. The players’ bench is constantly changing, but a concise, c ommon playbook is needed by a ll. This Framework is intended to supply that essential playbook. It is rooted in extens ive consultation among practitioners a nd polic y make rs at all levels. Ope rationa l planning for specific types of incidents has accelerated and improved nationwide since the terrorist attacks of September 11, 2001 (or 9/11). Such plans will continue to evolve in alignme nt with the Framework. EVOLUTION OF THE FRAMEWORK This document is an outgrowth of previous iterations of Federal planning documents. A brief discussion of its history underscores important elements of the Framework and highlights improvements to the previous National Response Plan (NRP). This Framework was preceded 15 years earlier by a Federal Response Plan (1992) that foc used largely on Fede ral roles and respons ibilities. Following the 9/11 attacks, more urgent efforts were made to understand and implement common incident management and response principles and to develop common planning frameworks. The 2004 NRP was an early outgrowth of those discussions, replacing the Federal Response Plan. It was published one year after creation of the Depart ment of Homeland Security (DHS). The NRP broke new ground in integrating a ll levels of government in a common incident management framework. It incorporated incident c oordination roles for Federa l agenc ies 2 as defined by several