National Response Framework Introduction

30 August 2022
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Mission Areas
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Each mission area is comprised of the capabilities required for accomplishing the mission or function at any time (before, during, or after an incident) and across all threats and hazards. 1. Prevention 2. Protection 3. Mitigation 4. Response 5. Recovery
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Prevention
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The term "prevention" refers to those capabilities necessary to avoid, prevent, or stop a threatened or actual act of terrorism. Prevention capabilities include but are not limited to: information sharing and warning; domestic counter-terrorism; and preventing the acquisition or use of weapons of mass destruction (WMD).
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Protection
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The term "protection" refers to those capabilities necessary to secure the homeland against terrorism and man-made or natural disasters. Protection capabilities include but are not limited to: defense against weapons of mass destruction (WMD) threats; defense of agriculture and food; critical infrastructure protection; protection of key leadership and events; border security; maritime security; transportation security; immigration security; and cyber-security.
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Mitigation
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The term "mitigation" refers to those capabilities necessary to reduce loss of life and property by lessening the impact of disasters. Mitigation capabilities include but are not limited to: community-wide risk reduction projects; efforts to improve the resilience of critical infrastructure and key resource lifelines; risk reduction for specific vulnerabilities from natural hazards or acts of terrorism; and initiatives to reduce future risks after a disaster has occurred.
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Response
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The term "response" refers to those capabilities necessary to save lives, protect property and the environment, and meet basic human needs after an incident has occurred.
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Recovery
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The term "recovery" refers to those capabilities necessary to assist communities affected by an incident to recover effectively, including but not limited to: rebuilding infrastructure systems; providing adequate interim and long-term housing for survivors; restoring health, social, and community services; promoting economic development; and restoring natural and cultural resources.
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Core Capabilities
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Under all five mission areas (Prevention, Protection, Mitigation, Response, and Recovery) there are a combined total of 32 core capabilities. These capabilities are highly interdependent and require us to use existing preparedness networks and activities, to coordinate and unify efforts, to improve training and exercise programs, to promote innovation, and to ensure that the administrative, finance, and logistics systems are in place to build, sustain, and deliver the capabilities.
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Core Capability Characteristics
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1. Are distinct critical elements necessary to meet the National Preparedness Goal. 2. Are essential for the execution of each mission area: Prevention, Protection, Mitigation, Response, and Recovery. 3. Provide a common language for preparedness across the whole community. 4. Are not exclusive to any single level of government or organization and encompass the whole community.
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Whole Community
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Preparedness depends on efforts at all levels, including individuals and communities, the private and nonprofit sectors, faith-based organizations, and all levels of government.
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Core Advisory Group
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CAGs consist of people with cross-disabilities who advise emergency managers. They provide input on inclusive emergency operations plans, including: - Local, jurisdictional, or state accessible evacuation plans. - Temporary accessible housing plans. - Accessibility to, of, and in shelters.
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National Response Framework
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- Identifies capabilities that are essential for response and community lifelines stabilization. - Indicates the actions necessary to build and deliver the required capabilities. -Describes key roles and responsibilities for integrating capabilities across the whole community. - Outlines how the Response mission area relates to other mission areas
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Guiding Principles for Response
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- Engaged Partnership. - Tiered Response. - Scalable, Flexible, and Adaptable Operational Capabilities. - Unity of Effort Through Unified Command. - Readiness to Act.
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Engaged Partnership
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Those who lead emergency response efforts must communicate and support engagement with the whole community by developing shared goals and aligning capabilities to reduce the risk of any jurisdiction being overwhelmed in times of crisis.
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Tiered Response
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Incidents are generally handled at the lowest jurisdictional level possible. Incidents begin and end locally, and most are managed at that level as well. 1. Local Response (First to react). 2. State/Tribal Resources (If supplements are needed). 3. State-to-State and Regional Resources (More assistance). 4. Federal Resources (Greatest response needed).
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Scalable, Flexible, and Adaptable Operational Capabilities
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As incidents change in size, scope, and complexity, response efforts must adapt to meet evolving requirements. The number, type, and sources of resources must be able to expand rapidly to meet the changing needs associated with a given incident and its cascading effects. The National Incident Management System (NIMS) concepts and principles add this flexibility when dealing with an incident.
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Unity of Effort Through Unified Command
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As a team effort, Unified Command allows all agencies with jurisdictional authority and/or functional responsibility for the incident to provide joint support through mutually developed incident objectives and strategies. Each participating agency maintains its own authority, responsibility, and accountability.
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Readiness to Act
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Decisive action is often required to save lives and protect property and the environment. Although some risk to responders may be unavoidable, all response personnel are responsible for anticipating and managing risk through proper planning, organizing, equipping, training, and exercising.
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Unified Command Benefits
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- Collective, strategic approach. - Joint priorities and resource allocation. - Single plan and set of objectives. - Improved information flow and coordination.
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Private Sector
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The private sector, comprised of small, medium, and large businesses, spans nationally significant infrastructure to locally owned and operated businesses that, while small, are staples of the community. The private sector includes commerce; healthcare; private, cultural, and educational institutions; and industry, as well as public/private partnerships that have been established specifically for emergency management purposes.
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Individuals, Families, and Households
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Individuals, families, and households play an important role in emergency preparedness and response. You can contribute by: 1. Reducing hazards in and around your home. 2. Preparing an emergency supply kit and household emergency plan. 3. Monitoring emergency communications carefully. 4. Volunteering with an established organization. 5. Enrolling in emergency response training courses.
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Nongovernmental Organizations (NGOs)
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NGOs deliver important services, including those associated with the response core capabilities: - Identifying shelter locations and ensuring access to the whole community. - Providing emergency services such as water, food, shelter, clothing, assistance with family reunification, and supplies for post-emergency cleanup. - Supporting the evacuation, rescue, care, and sheltering of animals displaced by the incident. - Supporting search and rescue, transportation, and logistics services. - Identifying and supporting the heath, medical, mental health, and behavior health resources of the impacted community. - Supporting disaster survivors, identifying unmet needs, and developing individual recovery plans.
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NGO National Responders
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The American Red Cross: Chartered by Congress to provide relief to survivors of disasters and help people prevent, prepare for, and respond to emergencies. National Voluntary Organizations Active in Disaster (National VOAD): an association of organizations that mitigates and alleviates the impact of disasters; provides a forum promoting cooperation, communication, coordination and collaboration; and fosters more effective delivery of services to communities impacted by a disaster. National Center for Missing & Exploited Children (NCMEC): Facilitates the expeditious identification of children and their reunification with their families.
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Local Government
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Local police, fire, emergency medical services, public health and medical providers, emergency management, public works, environmental response professionals, and other local responders are often the first to detect a threat or hazard or respond to an incident, and frequently they are the last to leave an incident site.
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State, Tribal, Territorial, and Insular Area Governments
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State, tribal, territorial, and insular-area governments are responsible for the health and welfare of their residents, communities, lands, and cultural heritage.
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Emergency Management Assistance Compact (EMAC)
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- Administered by the National Emergency Management Association. -An interstate mutual aid agreement. - A way to streamline the interstate mutual aid and assistance process.
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State Governments
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When an incident expands or has the potential to expand beyond the capability of a local jurisdiction and responders cannot meet the needs with mutual aid and assistance resources, local officials contact the state.
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Tribal Governments
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Under the Stafford Act, federally recognized Indian tribes can directly request their own emergency declaration and major disaster declaration, or they can request assistance under a state request.
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Territory and Insular Area Governments
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Territorial and insular area governments are responsible for coordinating resources to address actual or potential incidents and have many of the same functions states have, as previously listed in this section. Because of their remote locations, territorial and insular area governments often face unique challenges in receiving assistance from outside the jurisdiction
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Federal Government
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The Federal Government maintains a wide range of capabilities and resources that may be required to deal with domestic incidents in order to save lives and protect property and the environment while ensuring the protection of privacy, civil rights, and civil liberties.
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Community Lifelines
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1. Safety and Security. 2. Food, Water, and Sheltering. 3. Health and Medical. 4. Energy(Power and Fuel). 5. Communications. 6. Transportation. 7. Hazardous Material.
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Cross Cutting Capabilities
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Planning: Collection, analysis, and dissemination of risk assessment data. Development of plans, procedures, mutual aid and assistance agreements, strategies, and other arrangements to perform specific missions and tasks. Public Information and Warning: Developing accessible message content, such as incident facts, health risk warnings, pre-incident recommendations, evacuation guidance, and other protective measures. Developing strategies for when, where, how, and by whom information will be delivered. Operational Coordination: Coordinating initial actions, managing Emergency Support Functions (ESFs), coordinating requests for additional support, and identifying and integrating resources and capabilities.
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Coordinating Structures
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Coordinating structures help organize and measure the whole community's capabilities in order to: - Address the requirements of the Response mission area. - Facilitate problem solving. - Improve access to response resources. - Foster coordination prior to and following an incident.
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Emergency Operations Center (EOC)
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The EOC: - Helps form shared situational awareness of the incident. - Relieves on-scene command of the burden of external coordination. - Secures additional resources to help meet response requirements.
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Federal Support Operations Centers
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Cyber-security and Infrastructure Security Agency (CISA) Integrated Operations Coordination Center (CIOCC): Operates around the clock to integrate, coordinate, and share risk and threat information with the critical infrastructure community, perform consequences analyses of incidents affecting critical infrastructure, inform decision making, provide technical expertise to address cyber threats and communications outages, and coordinate infrastructure-related support for broader federal response efforts. National Operations Center (NOC): In the event of an act of terrorism, natural disaster, or other emergency, the National Operations Center (NOC), as the principal operations center for the Department of Homeland Security, coordinates and integrates information from NOC components to provide situational awareness for the entire Federal Government, as well as for local, tribal, and state governments, as appropriate, to ensure that accurate and critical terrorism- and disaster-related information reaches government decision makers in a timely manner. National Response Coordination Center (NRCC): Provides overall emergency management coordination, conducts operational planning, deploys national-level entities, and collects and disseminates incident information as it builds and maintains a common operating picture. Regional Response Coordination Center (RRCC): coordinates Federal Regional Response efforts and maintains connectivity with FEMA Headquarters and with state EOCs, state and major urban-area fusion centers, Federal Executive Boards, tribal governments and other Federal, tribal, and state operations and coordination centers that could contribute to the development of situational awareness. Joint Field Office (JFO): A JFO is a temporary Federal facility that provides a central location for coordination of response efforts by the private sector, NGOs, and all levels of government. Although the JFO uses an ICS structure, it does not manage on-scene operations. Rather, the JFO provides support to on-scene efforts. The JFO provides a central location for the coordination of Federal, state, tribal, and local governments and private-sector and nongovernmental organizations with primary responsibility for Response and Recovery.
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Federal Operations Centers: FBI
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Strategic Information and Operations Center (SIOC): Maintains situational awareness of criminal or terrorist threats, critical incidents, and crises--both foreign and domestic--regardless of cause or origin. Provides FBI Headquarters executives, domestic field offices, and overseas legal attachés with timely notification and dissemination of strategic information. Shares information and intelligence with other EOCs at all levels of government. Provides a secure venue to support crisis management, special event monitoring, and significant operations. Provides command, control, communications connectivity, and a common operating picture for managing FBI operational responses and assets anywhere in the world. Joint Operations Center (JOC): The JOC is the place from which the FBI leads and coordinates the law enforcement operational response, on-scene law enforcement, and related investigative and intelligence activities.
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Federal Operations Centers: Other Agencies
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National Military Command Center (NMCC): The NMCC participates in a wide variety of activities, ranging from missile warning and attack assessment to management of peacetime operations such as Defense Support of Civil Authorities during national emergencies. National Policy—The National Security Council (NSC): Advises and assists the President in integrating all aspects of national security policy as it affects the United States. Is the President's principal means for coordinating Executive Branch departments and agencies in the development and implementation of national security policy.
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Unified Coordination
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The Unified Coordination Group provides leadership within the Joint Field Office. This group is comprised of senior leaders representing State and Federal interests, and in certain circumstances Tribal governments, Local jurisdictions, the private sector, or nongovernmental organizations. This group also applies Unified Command principles to coordinating assistance being provided to support the Local, Tribal, and State Response.
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Emergency Support Functions (ESFs)
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ESFs bring together the capabilities of Federal departments and agencies and other national-level assets that work together to deliver core capabilities and support an effective response. ESFs are organized into fifthteen functional areas such as transportation, public works and engineering, firefighting, search and rescue, public health and medical services, agriculture and natural resources, and many more.
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Federal Operations Support for Non-Stafford Act Incidents
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For non-Stafford Act incidents, the department or agency with primary legal jurisdiction activates the response structures, which are generally organized based on NIMS concepts and principles. Federal agencies that have responsibility for on-scene, tactical-level operations may establish incident command and area command structures, or they may coordinate with State and local agencies to form Unified Incident Command and Unified Area Command structures.
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ESF #1 Transportation
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Coordinates the support of management of transportation systems and infrastructure, the regulation of transportation, management of the Nation's airspace, and ensuring the safety and security of the national transportation system. Functions include but are not limited to the following: - Transportation modes management and control. - Transportation safety. - Stabilization and reestablishment of transportation infrastructure. -Movement restrictions. - Damage and impact assessment.
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ESF #2 Communications
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Coordinates government and industry efforts for the reestablishment and provision of critical communications infrastructure and services, facilitates the stabilization of systems and applications from malicious activity (e.g., cyber), and coordinates communications support to response efforts (e.g., emergency communication services and emergency alerts and telecommunications). Functions include but are not limited to the following: - Coordination with telecommunications and information technology industries. - Coordination of the reestablishment and provision of critical communications infrastructure. - Protection, reestablishment, and sustainment of national cyber and information technology resources. - Oversight of communications within the federal response structures. - Facilitation of the stabilization of systems and applications from cyber events.
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ESF #3 Public Works and Engineering
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Coordinates the capabilities and resources to facilitate the delivery of services, technical assistance, engineering expertise, construction management, and other support to prepare for, respond to, and recover from a disaster or an incident. Functions include but are not limited to the following: - Infrastructure protection and emergency repair. - Critical infrastructure reestablishment. - Engineering services and construction management. - Emergency contracting support for life-saving and life-sustaining services.
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ESF #4 Firefighting
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Coordinates the support for the detection and suppression of fires. Functions include but are not limited to supporting wildland, rural, and urban firefighting operations.
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ESF #5 Information and Planning
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Supports and facilitates multi agency planning and coordination for operations involving incidents requiring federal coordination. Functions include but are not limited to the following: - Deliberate and crisis action planning - Information collection, analysis, visualization and dissemination.
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ESF #6 Mass Care, Emergency Assistance, Temporary Housing, and Human Services
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Coordinates the delivery of mass care and emergency assistance. Functions include but are not limited to the following: - Mass care. - Emergency assistance. - Temporary housing. - Human services.
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ESF #7 Logistics
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Coordinates comprehensive incident resource planning, management, and sustainment capability to meet the needs of disaster survivors and responders. Functions include but are not limited to the following: - Comprehensive national incident logistics planning, management, and sustainment capability. - Resource support (e.g., facility space, office equipment and supplies, and contracting services).
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ESF #8 Public Health and Medical Services
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Coordinates the mechanisms for assistance in response to an actual or potential public health and medical disaster or incident. Functions include but are not limited to the following: - Public health. - Medical surge support, including patient movement. - Behavioral health services. - Mass fatality management. - Veterinary, medical, and public health services.
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ESF #9 Search and Rescue
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Coordinates the rapid deployment of search and rescue resources to provide specialized life-saving assistance. Functions include but are not limited to the following: - Structural collapse (urban) search and rescue. - Maritime/ coastal/ waterborne search and rescue. - Land search and rescue.
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ESF #10 Oil and Hazardous Materials Response
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Coordinates support in response to an actual or potential discharge and/or release of oil or hazardous materials. Functions include but are not limited to the following: - Environmental assessment of the nature and extent of oil and hazardous materials contamination. - Environmental decontamination and cleanup, including buildings/structures and management of contaminated waste.
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ESF #11 Agriculture and Natural Resources
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Coordinates a variety of functions designed to protect the Nation's food supply, respond to pest and disease incidents impacting agriculture, and protect natural and cultural resources. Functions include but are not limited to the following: - Nutrition assistance. - Agricultural disease and pest response. - Technical expertise, coordination, and support of animal and agricultural emergency management. - Meat, poultry, and processed egg products safety and defense. - Natural and cultural resources and historic properties protection.
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ESF #12 Energy
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Facilitates the reestablishment of damaged energy systems and components, and provides technical expertise during an incident involving radiological/nuclear materials. Functions include but are not limited to the following: - Energy infrastructure assessment, repair, and reestablishment. - Energy industry utilities coordination. -Energy forecast.
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ESF #13 Public Safety and Security
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Coordinates the integration of public safety and security capabilities and resources to support the full range of incident management activities. Functions include but are not limited to the following: - Facility and resource security. - Security planning and technical resource assistance. - Public safety and security support. - Support to access, traffic, and crowd control.
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ESF #14 Cross-Sector Business and Infrastructure
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Coordinates cross-sector operations with infrastructure owners and operators, businesses, and their government partners, with particular focus on actions taken by businesses and infrastructure owners and operators in one sector to assist other sectors to better prevent or mitigate cascading failures between them. Focuses particularly on those sectors not currently aligned to other ESFs (e.g., the Financial Services Sector). Functions include but are not limited to the following: - Assessment, analysis, and situational awareness of cross-sector challenges. - Facilitates operational coordination with critical infrastructure sectors.
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ESF #15 External Affairs
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Coordinates the release of accurate, coordinated, timely, and accessible public information to affected audiences, including the government, media, NGOs, and the private sector. Works closely with state and local officials to ensure outreach to the whole community. Functions include but are not limited to the following: - Public affairs and the Joint Information Center. - Intergovernmental (local, state, tribal, territorial, nongovernmental, and private sector) affairs. - Congressional affairs.
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Community Lifelines Means
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ESFs and other organizing bodies—the means—are the way we organize across departments and agencies, community organizations, and industries to enhance coordination and integration to deliver the Response Core Capabilities. Through these ESFs, government and private-sector entities provide the personnel, supplies, facilities, and equipment needed for Response.
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Community Lifelines Ways
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Response Core Capabilities describe the grouping of response actions—the ways—that can be taken to stabilize and re-establish the lifelines. FEMA executes Lines of Effort (LOE) to operationalize the Core Capabilities (the ways) for response and recovery planning and operations.
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Community Lifelines Ends
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Lifelines describe the critical services within a community that must be stabilized or re-established—the ends—to alleviate threats to life and property.