National Emergency Communications Plan

Transcription

1 Natinal Emergency Cmmunicatins Plan July 2008 Natinal Emergency Cmmunicatins Natinal Emergency Plan Cmmunicatins Plan July 2008 PRELIMINARY DRAFT v1.02 PRELIMINARY DRAFT v1.02 Rev. Aug 7, 2008

2 Natinal Emergency Cmmunicatins Plan July 2008 Message frm the Secretary Numerus after-actin reprts frm majr incidents thrughut the histry f emergency management in ur Natin have cited cmmunicatin difficulties amng the many respnding agencies as a majr failing and challenge t plicymakers. Cngress and the Administratin have recgnized that successful respnse t a future majr incidenteither a terrrist attack r natural disaster-wuld require a crdinated, "interperable" respnse by the Natin's public safety, public health, and emergency management cmmunity, bth public and private, at the Federal, State, tribal, Territrial, reginal, and lcal levels. Recgnizing the need fr an verarching strategy t help crdinate and guide such effrts, Cngress directed the Department f Hmeland Security t develp the first Natinal Emergency Cmmunicatins Plan (NECP). The purpse f the NECP is t prmte the ability f emergency respnse prviders and relevant gvernment fficials t cntinue t cmmunicate in the event f natural disasters, acts f terrrism, and ther man-made disasters and t ensure, accelerate, and attain interperable emergency cmmunicatins natinwide. Natural disasters and acts f terrrism have shwn that there is n simple slutin-r "silver bullet"-t slve the cmmunicatins prblems that still plague law enfrcement, firefighting, rescue, and emergency medical persnnel. T strengthen emergency cmmunicatins capabilities natinwide, the Plan fcuses n technlgy, crdinatin, gvernance, planning, usage, training and exercises at all levels f gvernment. This apprach recgnizes that cmmunicatins perability is a critical building blck fr interperability; emergency respnse fficials first must be able t establish cmmunicatins within their wn agency befre they can interperate with neighbring jurisdictins and ther agencies. The NECP seeks t build n the substantial prgress that has been made ver the last several years. Amng the key develpments at the Federal, State, reginal, and lcal levels are: Mst Federal prgrams that supprt emergency cmmunicatins have been cnslidated within a single agency-the Department f Hmeland Security-t imprve the alignment, integratin, and crdinatin f the Federal missin. All 56 States and U.S. Territries have develped Statewide Cmmunicatin Interperability Plans (SCIP) that identify near- and lng-term initiatives fr imprving cmmunicatins interperability. The Natin's 75 largest urban and metrplitan areas maintain plicies fr interperable cmmunicatins.

3 Natinal Emernencv Cmmunicatins Plan Julv 2008 The SAFECOM Interperability Cntinuum is widely accepted and used by the emergency respnse cmmunity t address critical elements fr planning and implementing interperability slutins. These elements include gvernance, standard perating prcedures, technlgy, training and exercises, and usage f interperable cmmunicatins. The DHS Federal Emergency Management Agency (FEMA) is establishing Reginal Emergency Cmmunicatins Crdinatin (RECC) Wrking Grups in each f the 10 FEMA regins t crdinate multi-state effrts and measure prgress n imprving the survivability, sustainability, and interperability f cmmunicatins at the reginal level. In develping the NECP, DHS wrked clsely with stakehlders frm all levels f gvernment t ensure that their pririties and activities were addressed. The Department will cntinue t crdinate with Federal, State, lcal, and tribal gvernments, and the private sectr, t ensure that the NECP is implemented successfully. Ultimately, the NECP's gals cannt be achieved withut the supprt and dedicatin f the emergency respnse cmmunity that was instrumental in crafting it. I ask everyne within the emergency respnse cmmunity t take wnership f the NECP's initiatives and actins and t dedicate themselves t meeting the key benchmarks. Wrking tgether, we can achieve ur visin: Emergency respnders can cmmunicateas needed, n demand, and as authrized; at all levels f gvernment; and acrss all disciplines. P+ Michael Chertff Secretary f Hmeland Security

4 Natinal Emergency Cmmunicatins Plan July 2008 Table f Cntents Executive Summary... ES-1 1. Intrductin Purpse f the Natinal Emergency Cmmunicatins Plan Scpe f the Natinal Emergency Cmmunicatins Plan Organizatin f the NECP Defining the Future State f Emergency Cmmunicatins Visin Gals Capabilities Needed Achieving the Future State f Emergency Cmmunicatins... 9 Objective 1: Frmal Gvernance Structures and Clear Leadership Rles.. 11 Objective 2: Crdinated Federal Activities Objective 3: Cmmn Planning and Operatinal Prtcls Objective 4: Standards and Emerging Cmmunicatin Technlgies Objective 5: Emergency Respnder Skills and Capabilities Objective 6: System Life-Cycle Planning Objective 7: Disaster Cmmunicatins Capabilities Implementing and Measuring Achievement f the NECP Cnclusin... 41

5 Natinal Emergency Cmmunicatins Plan July 2008 Executive Summary Every day in cities and twns acrss the Natin, emergency respnse persnnel respnd t incidents f varying scpe and magnitude. Their ability t cmmunicate in real time is critical t establishing cmmand and cntrl at the scene f an emergency, t maintaining event situatinal awareness, and t perating verall within a brad range f incidents. Hwever, as numerus after-actin reprts and natinal assessments have revealed, there are still cmmunicatins deficiencies that affect the ability f respnders t manage rutine incidents and supprt respnses t natural disasters, acts f terrrism, and ther incidents. 1 Recgnizing the need fr an verarching emergency cmmunicatins strategy t address these shrtfalls, Cngress directed the Department f Hmeland Security s (DHS) Office f Emergency Cmmunicatins (OEC) t develp the first Natinal Emergency Cmmunicatins Plan (NECP). Title XVIII f the Hmeland Security Act f 2002 (6 United States Cde 101 et seq.), as amended, calls fr the NECP t be develped in crdinatin with stakehlders frm all levels f gvernment and frm the private sectr. In respnse, DHS wrked with stakehlders frm Federal, State, lcal, and tribal agencies t develp the NECP a strategic plan that establishes a natinal visin fr the future state f emergency cmmunicatins. The desired future state is that emergency respnders can cmmunicate: As needed, n demand, and as authrized At all levels f gvernment Acrss all disciplines T measure prgress tward this visin, three strategic gals were established: Gal 1 By 2010, 90 percent f all high-risk urban areas designated within the Urban Areas Security Initiative (UASI) 2 are able t demnstrate respnse-level emergency cmmunicatins 3 within ne hur fr rutine events invlving multiple jurisdictins and agencies. Gal 2 By 2011, 75 percent f nn-uasi jurisdictins are able t demnstrate respnse-level emergency cmmunicatins within ne hur fr rutine events invlving multiple jurisdictins and agencies. Gal 3 By 2013, 75 percent f all jurisdictins are able t demnstrate respnselevel emergency cmmunicatins within three hurs, in the event f a significant incident as utlined in natinal planning scenaris. 1 Examples include The Federal Respnse t Hurricane Katrina: Lessns Learned, February 2006; The 9-11 Cmmissin Reprt, July 2004; and The Final Reprt f the Select Bipartisan Cmmittee t Investigate the Preparatin fr and Respnse t Hurricane Katrina, February As identified in FY08 Hmeland Security Grant Prgram r n the FEMA Grants website: 3 Respnse-level emergency cmmunicatin refers t the capacity f individuals with primary peratinal leadership respnsibility t manage resurces and make timely decisins during an incident invlving multiple agencies, withut technical r prcedural cmmunicatins impediments. ES-1

6 Natinal Emergency Cmmunicatins Plan July 2008 T realize this natinal visin and meet these gals, the NECP established the fllwing seven bjectives fr imprving emergency cmmunicatins fr the Natin s Federal, State, lcal, and tribal emergency respnders: 1. Frmal decisin-making structures and clearly defined leadership rles crdinate emergency cmmunicatins capabilities. 2. Federal emergency cmmunicatins prgrams and initiatives are cllabrative acrss agencies and aligned t achieve natinal gals. 3. Emergency respnders emply cmmn planning and peratinal prtcls t effectively use their resurces and persnnel. 4. Emerging technlgies are integrated with current emergency cmmunicatins capabilities thrugh standards implementatin, research and develpment, and testing and evaluatin. 5. Emergency respnders have shared appraches t training and exercises, imprved technical expertise, and enhanced respnse capabilities. 6. All levels f gvernment drive lng-term advancements in emergency cmmunicatins thrugh integrated strategic planning prcedures, apprpriate resurce allcatins, and public-private partnerships. 7. The Natin has integrated preparedness, mitigatin, respnse, and recvery capabilities t cmmunicate during significant events. The NECP als prvides recmmended initiatives and milestnes t guide emergency respnse prviders and relevant gvernment fficials in making measurable imprvements in emergency cmmunicatins capabilities. The NECP recmmendatins help t guide, but d nt dictate, the distributin f hmeland security funds t imprve emergency cmmunicatins at the Federal, State, and lcal levels, and t supprt the NECP implementatin. Cmmunicatins investments are amng the mst significant, substantial, and lnglasting capital investments that agencies make; in additin, technlgical innvatins fr emergency cmmunicatins are cnstantly evlving at a rapid pace. With these realities in mind, DHS recgnizes that the emergency respnse cmmunity will realize this natinal visin in stages, as agencies invest in new cmmunicatins systems and as new technlgies emerge. There is n simple slutin, r silver bullet, fr slving emergency cmmunicatins challenges, and cnsequently DHS apprach t the NECP invlves making imprvements at all levels f gvernment, in technlgy, crdinatin and gvernance, planning, usage, and training and exercises. This apprach als recgnizes that cmmunicatins perability is a critical building blck fr interperability; emergency respnse fficials must first establish reliable cmmunicatins within their wn agency befre they can interperate with neighbring jurisdictins and ther agencies. Finally, DHS acknwledges that the Natin des nt have unlimited resurces t address deficiencies in emergency cmmunicatins. Cnsequently, the NECP will be used t identify and priritize investments t mve the Natin tward this visin. As required by Cngress, the NECP will be a living dcument subject t peridic review and updates by DHS in crdinatin with stakehlders. Future iteratins will be revised based n prgress made tward achieving the NECP s gals, n variatins in natinal pririties, and n lessns learned frm after-actin reprts. ES-2

7 Natinal Emergency Cmmunicatins Plan July Intrductin The ability f emergency respnders t effectively cmmunicate is paramunt t the safety and security f ur Natin. During the last three decades, the Natin has witnessed hw inadequate emergency cmmunicatins capabilities can adversely affect respnse and recvery effrts. Lcally, agencies develped ad hc slutins t vercme these challenges. The issue f inadequate crdinatin f emergency cmmunicatins received natinal attentin in the aftermath f the January 1982 passenger jet crash int the 14 th Street Bridge (and, subsequently, the Ptmac River) near dwntwn Washingtn, DC. The inability f multiple jurisdictins t crdinate a respnse t the Air Flrida crash began t drive reginal cllabratin. Mre recently, the terrrist attacks f September 11, Hurricane Katrina, and ther natural and man-made disasters have demnstrated hw emergency cmmunicatins capabilities in particular the lack f thse capabilities impact emergency respnders, public health, natinal and ecnmic security, and the ability f gvernment leaders t maintain rder and perfrm essential functins. 4 During each f these events, the lack f crdinated emergency cmmunicatins slutins and prtcls amng the respnding agencies hindered respnse and recvery effrts. These events raised awareness f the issue amng public plicymakers and highlighted the critical rle emergency cmmunicatins plays in incident respnse. These events als prmpted numerus natinal studies and assessments n the state f emergency cmmunicatins, which in turn has helped DHS t frmulate a unified apprach fr addressing emergency cmmunicatins Purpse f the Natinal Emergency Cmmunicatins Plan The Hmeland Security Act f 2002, as amended in 2006, mandated the creatin f an verarching strategy t address emergency cmmunicatins shrtfalls. In additin, the emergency respnse cmmunity has sught natinal guidance t supprt a mre integrated crdinatin f emergency cmmunicatins pririties and investments. Set natinal gals and pririties fr addressing deficiencies in the Natin s emergency cmmunicatins psture Prvide recmmendatins and milestnes fr emergency respnse prviders, relevant gvernment fficials, and Cngress t imprve emergency cmmunicatins capabilities 4 Hurricane Katrina was the mst destructive natural disaster in U.S. histry. The strm crippled thirty-eight 911-call centers, disrupting lcal emergency services, and kncked ut mre than 3 millin custmer phne lines in Luisiana, Mississippi, and Alabama. Bradcast cmmunicatins were likewise severely affected, as 50 percent f area radi statins and 44 percent f area televisin statins went ff the air. White Huse Reprt, The Federal Respnse t Katrina: Lessns Learned, February Such as the Final Reprt f the Natinal Cmmissin f Terrrist Attacks Upn the United States, December 2001; the White Huse Reprt, The Federal Respnse t Katrina: Lessns Learned, February 2006; and the Independent Panel Reviewing the Impact f Hurricane Katrina n Cmmunicatins Netwrks Reprt and Recmmendatins t the Federal Cmmunicatins Cmmissin, June 12, 2006, all f which dcumented the numerus failures in emergency cmmunicatins amng emergency respnders, which affected their ability t effectively respnd t these incidents. 1

8 Natinal Emergency Cmmunicatins Plan July 2008 As a result, Cngress directed the DHS Office f Emergency Cmmunicatins (OEC) 6 t develp a plan t: Identify the capabilities needed by emergency respnders t ensure the availability and interperability f cmmunicatins during emergencies, and identify bstacles t the deplyment f interperable cmmunicatins systems; Recmmend bth shrt- and lng-term slutins fr ensuring interperability and cntinuity f cmmunicatins fr emergency respnders, including recmmendatins fr imprving crdinatin amng Federal, State, lcal, and tribal gvernments; Set gals and timeframes fr the deplyment f interperable emergency cmmunicatins systems, and recmmend measures that emergency respnse prviders shuld emply t ensure the cntinued peratin f cmmunicatins infrastructure; Set dates by which Federal agencies and State, lcal, and tribal gvernments expect t achieve a baseline level f natinal interperable cmmunicatins, and establish benchmarks t measure prgress; and Guide the crdinatin f existing Federal emergency cmmunicatins prgrams Scpe f the Natinal Emergency Cmmunicatins Plan The Natinal Emergency Cmmunicatins Plan (NECP) fcuses n the emergency cmmunicatins needs f respnse persnnel in every discipline, at every level f gvernment, and fr the private sectr and nn-gvernmental rganizatins (NGO). Emergency cmmunicatins is defined as the ability f emergency respnders t exchange infrmatin via data, vice, and vide as authrized, t cmplete their missins. Emergency respnse agencies at all levels f gvernment must have interperable and seamless cmmunicatins t manage emergency respnse, establish cmmand and cntrl, maintain situatinal awareness, and functin under a cmmn perating picture, fr a brad scale f incidents. Emergency cmmunicatins cnsists f three primary elements: 1. Operability The ability f emergency respnders t establish and sustain cmmunicatins in supprt f missin peratins. 2. Interperability The ability f emergency respnders t cmmunicate amng jurisdictins, disciplines, and levels f gvernment, using a variety f frequency bands, as needed and as authrized. System perability is required fr system interperability. 3. Cntinuity f Cmmunicatins The ability f emergency respnse agencies t maintain cmmunicatins in the event f damage t r destructin f the primary infrastructure. 6 The OEC supprts the Secretary f Hmeland Security in develping, implementing, and crdinating interperable and perable cmmunicatins fr the emergency respnse cmmunity at all levels f gvernment. The OEC was directed by Title XVIII f the Hmeland Security Act f 2002, as amended, t lead the develpment f a Natinal Emergency Cmmunicatins Plan. 7 Appendix 4 prvides mre detailed infrmatin n DHS prgrams supprting emergency cmmunicatins. 2

9 Natinal Emergency Cmmunicatins Plan July Apprach t Develping the NECP The majrity f emergency incidents ccur at the lcal level. Therefre, imprving emergency cmmunicatins specifically, perability, interperability, and cntinuity f cmmunicatins cannt be accmplished by the Federal Gvernment alne. Fr this reasn, wrking thrugh OEC, DHS used a stakehlder-driven apprach t develp the NECP, ne that included representatives frm the Federal, State, and lcal respnder cmmunities as well as frm the private sectr. 8 Exhibit 1 lists the partnerships and grups that prvided input t the NECP. Exhibit 1: Key Hmeland Security and Emergency Cmmunicatins Partnerships Entity SAFECOM Executive Cmmittee (EC) and Emergency Respnse Cuncil (ERC) Emergency Cmmunicatins Preparedness Center (ECPC) Federal Partnership fr Interperable Cmmunicatins (FPIC) Prject 25 Interface Cmmittee (APIC) Natinal Public Safety Telecmmunicatins Cuncil (NPSTC) Rles and Respnsibilities The SAFECOM EC serves as the leadership grup f the ERC and as the SAFECOM prgram s primary resurce t access public safety practitiners and plicymakers. The EC prvides strategic leadership and guidance t the SAFECOM prgram n emergency-respnder user needs and builds relatinships with the ERC t leverage the ERC subject matter expertise. The SAFECOM ERC is a vehicle t prvide a brad base f input frm the public safety cmmunity n its user needs t the SAFECOM prgram. The ERC prvides a frum fr individuals with specialized skills and cmmn interests t share best practices and lessns learned s that interested parties at all levels f gvernment can gain frm ne anther s experience. Emergency respnders and plicymakers frm Federal, State, lcal, and tribal gvernments cmpse the SAFECOM EC and ERC. The ECPC was created under the authrity f Title XVIII f the Hmeland Security Act f 2002, as amended in 2006, t serve as the fcal pint and clearinghuse fr intergvernmental infrmatin n interperable emergency cmmunicatins. The ECPC is an interdepartmental rganizatin, currently cmpsed f 12 Federal departments and agencies, that assesses and crdinates Federal emergency cmmunicatins perability and interperability assurance effrts. The ECPC is the fcal pint fr interagency emergency cmmunicatins effrts and seeks t minimize the duplicatin f similar activities within the Federal Gvernment. It als acts as an infrmatin clearinghuse t prmte perable and interperable cmmunicatins in an all-hazards envirnment. The FPIC is a crdinating bdy that fcuses n technical and peratinal matters within the Federal wireless cmmunicatins cmmunity. Its missin is t address Federal wireless cmmunicatins interperability by fstering intergvernmental cperatin and by identifying and leveraging cmmn synergies. The FPIC represents mre than 40 Federal entities; its membership includes prgram managers f wireless systems, radi cmmunicatins managers, Infrmatin Technlgy (IT) and Land Mbile Radi (LMR) specialists, and telecmmunicatins engineers. State and lcal emergency respnders participate as advisry members. As part f the Prject 25 (P25) standards develpment prcess, the Telecmmunicatins Industry Assciatin (TIA) develped the APIC t reslve issues that arse during that prcess. The APIC is cmpsed f private sectr representatives and emergency respnse fficials and serves as a liaisn t facilitate user cmmunity and private sectr relatinships regarding the evlutin and use f P25 standards. The NPSTC is a federatin f natinal public safety leadership rganizatins dedicated t imprving emergency respnse cmmunicatins and interperability thrugh cllabrative leadership. The NPSTC is cmpsed f State and lcal public safety representatives. In additin, Federal, Canadian, and ther emergency cmmunicatins partner rganizatins serve as liaisns t the NPSTC. 8 Appendix 6 details the three-phased apprach t develp the NECP that relied n stakehlder invlvement. 3

10 Natinal Emergency Cmmunicatins Plan July 2008 Entity Natinal Security Telecmmunicatins Advisry Cmmittee (NSTAC) Critical Infrastructure Partnership Advisry Cuncil (CIPAC) Rles and Respnsibilities The NSTAC is cmpsed f up t 30 private sectr executives wh represent majr cmmunicatins and netwrk service prviders as well as IT, finance, and aerspace cmpanies. Thrugh the Natinal Cmmunicatins System (NCS), the NSTAC prvides private sectr-based analyses and recmmendatins t the President and the Executive Branch n plicy and enhancements t natinal security and emergency preparedness (NS/EP) cmmunicatins. The CIPAC is a DHS prgram established t facilitate effective crdinatin between gvernment infrastructure prtectin prgrams and the infrastructure prtectin activities f the wners and peratrs f critical infrastructure and key resurces. The CIPAC enables public and private sectr representatives t engage in candid, substantive discussins regarding the prtectin f the Natin s critical infrastructure. The NECP has been designed t cmplement and supprt verarching hmeland security and emergency cmmunicatins legislatin, strategies, and initiatives. The NECP applies guidance frm these authrities, including key principles and pririties, t establish the first natinal strategic plan that is fcused exclusively n imprving emergency cmmunicatins fr emergency respnse prviders natinwide. As demnstrated in Exhibit 2 belw, the NECP prvides a critical link between natinal cmmunicatins pririties and strategic and tactical planning at the reginal, State, and lcal levels. Appendix 2 prvides a cmprehensive listing and explanatin f these dcuments. Exhibit 2: Key Hmeland Security and Emergency Cmmunicatins Authrities NATIONAL LEGISLATION & STRATEGIES HOMELAND SECURITY ACT NATIONAL STRATEGY FOR HOMELAND SECURITY NATIONAL STRATEGY FOR PHYSICAL PROTECTION OF CI/KA DIRECTIVES & EXECUTIVE ORDERS HSPDs HSPDs (e.g., (e.g., 5, 5, 7, 7, 8) 8) EOs (e.g., (e.g., 12046, 12406,3, 12472, 12656) PREPAREDNESS/ INCIDENT MANAGEMENT POLICY & PLANNING INITIATIVES NIPP Cmmunicatins-specific STRATEGIC OPERATIONAL NATIONAL NRF, SUPPORT PREPAREDNESS FUNCTION GUIDELINES NIMS NECP REGIONAL, STATE, LOCAL PREPAREDNESS/ COMMUNICATIONS PLANNING INITIATIVES Reginal Strategic Planning SCIPs SCIPS Emergency Operatins Plans Hazard Mitigatin TICPs TICPS 4

11 Natinal Emergency Cmmunicatins Plan July Organizatin f the NECP The NECP establishes a natinal visin fr the desired future state f emergency cmmunicatins. It sets strategic gals, natinal bjectives, and supprting initiatives t drive the Natin tward that future state. The NECP als prvides recmmended milestnes t guide emergency respnse prviders and relevant gvernment fficials as they make measurable imprvements t their emergency cmmunicatins capabilities. As illustrated in Exhibit 3, the NECP apprach is based n three lgical steps that infrm the rganizatin f this dcument: 1) defining the future state f emergency cmmunicatins; 2) develping a strategy t achieve the future state; and 3) implementing the future state and measuring hw well it is being implemented. Exhibit 3: NECP Apprach and Organizatin Future State Visin Gals Capabilities Strategy Objectives Initiatives Milestnes Implementatin Crdinatin Measurement Evaluatin Framewrk NECP Apprach and Organizatin Defining the Future State f Emergency Cmmunicatins In this first step, DHS wrked with stakehlders t develp an verall Visin statement (Sectin 2.1) and established three high-level Gals (Sectin 2.2) that define the desired future state f emergency cmmunicatins. DHS then identified the emergency cmmunicatins Capabilities Needed (Sectin 2.3) fr the emergency respnse cmmunity t achieve the desired future state Develping a Strategy t Achieve the Future State Based n the capabilities needed fr the emergency respnse cmmunity t achieve the desired future state, DHS develped seven Objectives (Sectin 3). Althugh all seven bjectives were designed t supprt the realizatin f the lng-term visin, executin f all initiatives and achievement f natinal milestnes are nt necessarily prerequisites fr achieving the three gals. DHS will cntinue t wrk with its stakehlders n the implementatin f the NECP initiatives and the attainment f these near-term gals. Fr each bjective, DHS develped Supprting Initiatives (Sectin 3), which are intended t drive utcmes tward the future state. In crafting each initiative, DHS identified bth current emergency cmmunicatins activities that affect the initiative and key gaps that drive actin in the initiative area. Finally, DHS identified Recmmended Natinal Milestnes (Sectin 3) that detail the timeline and utcmes f each initiative Implementing and Measuring Achievement f the Future State In the final step, DHS prvides guidance fr implementing the NECP and recmmendatins fr measuring success (Sectin 4). These recmmendatins are based n the legislative requirements fr the NECP as utlined in Appendix 1. 5

12 Natinal Emergency Cmmunicatins Plan July Defining the Future State f Emergency Cmmunicatins The NECP utlines the future visin f emergency cmmunicatins ver the next five years. In ding s, it establishes tangible gals by which success can be measured. 2.1 Visin The NECP visin is t ensure perability, interperability, and cntinuity f cmmunicatins t allw emergency respnders t cmmunicate as needed, n demand, and as authrized at all levels f gvernment and acrss all disciplines. 2.2 Gals Visin Emergency respnse persnnel can cmmunicate As needed, n demand, and as authrized At all levels f gvernment Acrss all disciplines T wrk tward this desired future state, DHS defined a series f gals that establish a minimum level f interperable cmmunicatins and dates by which Federal, State, lcal, and tribal agencies are expected t achieve that minimum level. Althugh nt cmprehensive, these gals prvide an initial set f peratinal targets which OEC will expand further thrugh a prcess that engages Federal, State, and lcal gvernments, the private sectr, and emergency respnders. Sectin 4.2 utlines hw OEC plans t measure the natinwide achievement f these gals. If emergency respnders train regularly and use emergency cmmunicatins slutins daily, they will be able t use emergency cmmunicatins mre effectively during majr incidents. Therefre, the first tw gals fcus n day-t-day respnse capabilities that will inherently enhance emergency respnse capabilities. Respnse-level emergency cmmunicatins is the capacity f individuals with primary peratinal leadership respnsibility t manage resurces and make timely decisins during an incident invlving multiple agencies, withut technical r prcedural cmmunicatins impediments. 9 In additin t cmmunicating with first-level subrdinates in the field, an Operatins Sectin Chief shuld be able t cmmunicate up the management chain t the incident cmmand level (i.e., between the Operatins Sectin Chief and Incident Cmmand). 10 During the curse f incident respnse, Incident Cmmand/Unified Cmmand may mve ff-scene, which may require establishing cmmunicatins between Incident Cmmand and ff-scene Emergency Operatins Centers (EOC), dispatch centers, and ther supprt grups. 9 As defined in the Natinal Incident Cmmand System 200, Unit 2: Leadership and Management. 10 As defined in the Natinal Incident Management System, FEMA 501/Draft August 2007, p.47. 6

13 Natinal Emergency Cmmunicatins Plan July 2008 NECP Gals Gal 1 By 2010, 90 percent f all high-risk urban areas designated within the Urban Areas Security Initiative (UASI) 11 are able t demnstrate respnse-level emergency cmmunicatins within ne hur fr rutine events 12 invlving multiple jurisdictins 13 and agencies. Gal 2 By 2011, 75 percent f nn-uasi jurisdictins are able t demnstrate respnse-level emergency cmmunicatins within ne hur fr rutine events invlving multiple jurisdictins and agencies. Gal 3 By 2013, 75 percent f all jurisdictins are able t demnstrate respnselevel emergency cmmunicatins within three hurs, in the event f a significant event 14 as utlined in natinal planning scenaris. The NECP identifies seven key bjectives t mve the Natin tward its verall visin. Althugh all seven bjectives are imprtant t achieving all three gals, Objective 7 fcuses primarily n enhancing the ability t cmmunicate during a significant event as utlined in Gal 3. Further, thrugh OEC and the Federal Emergency Management Agency s (FEMA) Reginal Emergency Cmmunicatins Crdinatin Wrking Grups (RECCWG), DHS will cllabrate with State hmeland security directrs and State interperability crdinatrs t develp apprpriate methdlgies t measure prgress tward these gals in each State. 2.3 Capabilities Needed Leveraging the findings frm varius surces f infrmatin, including analyses, frm Federal, State, lcal, and tribal gvernments n emergency cmmunicatins, DHS cmpleted a cmprehensive examinatin f emergency cmmunicatins capabilities acrss all levels f gvernment and sme private sectr entities. 15 (A capability enables the accmplishment f a missin r task.) Exhibit 4 summarizes the range f emergency cmmunicatins capabilities needed by emergency respnders and maps thse t the SAFECOM Interperability Cntinuum As identified in the FY08 Hmeland Security Grant Prgram r n the FEMA Grants website: 12 Rutine events During rutine events, the emphasis fr respnse-level emergency cmmunicatins is n perability and interperability. These types f events are further delineated in the Usage element f the SAFECOM Interperability Cntinuum as planned events, lcalized emergency incidents, reginal incident management (interstate r intrastate), and daily use thrughut the regin. See Appendix 5 fr a further descriptin f the SAFECOM Interperability Cntinuum. 13 Jurisdictin A gegraphical, plitical, r system bundary as defined by each individual State. 14 Significant events During significant events, the emphasis fr respnse-level emergency cmmunicatins is n interperability and cntinuity f cmmunicatins. Hmeland Security Presidential Directive 8: Natinal Preparedness (HSPD-8) sets frth 15 Natinal Planning Scenaris, highlighting a plausible range f significant events such as terrrist attacks, majr disasters, and ther emergencies that pse the greatest risks t the Natin. Any f these 15 scenaris shuld be cnsidered when planning fr a significant event during which all majr emergency cmmunicatins infrastructure is destryed. 15 The Natinal Cmmunicatins Capabilities Reprt, SAFECOM s Interperability Cntinuum was designed t help the emergency respnse cmmunity and Federal, State, lcal, and tribal plicymakers address critical elements fr success as they plan and implement interperability slutins: 7

14 Natinal Emergency Cmmunicatins Plan July 2008 These identified capabilities serve as the fundatin fr the NECP pririty bjectives, initiatives, and recmmended natinal milestnes set frth in Sectin 3. Exhibit 4: Emergency Cmmunicatins Capabilities Needed t Achieve Future State Lanes f the SAFECOM Interperability Cntinuum Gvernance Standard Operating Prcedures (SOP) Technlgy Training and Exercises Usage Capabilities Needed Strng gvernment leadership Frmal, thrugh, and inclusive interagency gvernance structures Clear lines f cmmunicatin and decisin-making Strategic planning prcesses Standardized and unifrm emergency respnder interactin during emergency respnse peratins Standardized use and applicatin f interperable emergency cmmunicatins terminlgy, slutins, and backup systems Vice and data standards that pertain t real-time situatinal infrmatin exchange and reprts fr emergency respnders befre, during, and after respnse Unifrm mdel and standard fr emergency data infrmatin exchange Testing and evaluatin f emergency cmmunicatins technlgy t help agencies make infrmed decisins abut technlgy Emergency respnse cmmunicatins technlgy based n vluntary cnsensus standards Basic level f cmmunicatins systems perability Unifrm, standardized perfrmance bjectives t measure effectiveness f emergency respnders cmmunicatins capabilities Emergency respnse prviders wh are fully knwledgeable, trained, and exercised n the use and applicatin f day-t-day and backup cmmunicatins equipment, systems, and peratins irrespective f the extent f the emergency respnse Adequate resurces and planning t cver nt nly initial system and equipment investment but als the entire life cycle (peratins, exercising, and maintenance) Brad reginal (interstate and intrastate) crdinatin in technlgy investment and prcurement planning 8

15 Natinal Emergency Cmmunicatins Plan July Achieving the Future State f Emergency Cmmunicatins This sectin describes the strategy fr achieving the NECP s future state fr emergency cmmunicatins and fr meeting the verall gals identified in Sectin 2. Specifically, this sectin discusses in detail the seven Objectives that delineate a cmprehensive assessment f the capabilities needed t clse existing gaps and achieve the lng-term visin. In the near- term, DHS will cntinue t wrk with its stakehlders n implementing the NECP initiatives and attaining near-term gals. As previusly defined, the three critical elements f emergency cmmunicatins are perability, interperability, and cntinuity f cmmunicatins. Prgress tward achieving each f the seven bjectives is essential in realizing imprvements in all three f these primary elements f emergency cmmunicatins. 17 In additin, this sectin defines Supprting Initiatives fr each bjective, with a fcus n driving utcmes tward the future state. Each initiative identifies current emergency cmmunicatins activities and key gaps. T implement these initiatives, there are Recmmended Natinal Milestnes t define the timelines and utcmes. 3.1 Objectives, Initiatives, and Milestnes The bjectives and initiatives prvide natinal guidance t Federal, State, lcal, and tribal agencies t implement key activities t imprve emergency cmmunicatins. Milestnes prvide key checkpints t mnitr NECP implementatin. The prpsed timelines fr cmpleting these initiatives began when the NECP was delivered t Cngress n July 31, OEC will then crdinate develpment f implementatin strategies with partner rganizatins at all levels f gvernment, private sectr rganizatins, and nngvernmental assciatins The NECP identifies the fllwing bjectives t imprve emergency cmmunicatins fr Federal, State, lcal, and tribal emergency respnders: 1. Frmal decisinmaking structures and clearly defined leadership rles crdinate emergency cmmunicatins capabilities. 2. Federal emergency cmmunicatins prgrams and initiatives are cllabrative acrss agencies and aligned t achieve natinal gals. 3. Emergency respnders emply cmmn planning and peratinal prtcls t effectively use their resurces and persnnel. 4. Emerging technlgies are integrated with current emergency cmmunicatins capabilities thrugh standards implementatin, research and develpment, and testing and evaluatin. 5. Emergency respnders have shared appraches t training and exercises, imprved technical expertise, and enhanced respnse capabilities. 6. All levels f gvernment drive lng-term advancements in emergency cmmunicatins thrugh integrated strategic planning prcedures, apprpriate resurce allcatins, and public-private partnerships. 7. The Natin has integrated preparedness, mitigatin, respnse, and recvery capabilities t cmmunicate during significant events. 17 Nte that n single bjective is discretely linked t any ne f the three elements (i.e., perability, interperability, r cntinuity f cmmunicatins). Rather, prgress in any bjective area will result in imprvements in each f the three emergency cmmunicatins cmpnents. 9

16 Natinal Emergency Cmmunicatins Plan July 2008 Substantial cperatin and cllabratin acrss the stakehlder cmmunity are necessary t achieve all f the milestnes in each bjective. The supprting initiatives and recmmended natinal milestnes represent the DHS psitin n actins that must ccur and establish cmpletin dates t meet NECP gals. DHS cntinues t wrk with stakehlders at all levels f gvernment t identify and verify wnership rles t drive full participatin and implementatin f this Plan. Fr sme f the milestnes, specific leadership and wnership rles are defined based n assciated missin areas, current activities, existing authrities, and feedback frm rganizatins during NECP develpment. In many cases, specific leadership rles t achieve the milestnes are nt and presently cannt be defined. Althugh DHS has been mandated by Cngress t develp the NECP and crdinate its implementatin, DHS has limited authrity t cmpel respnsibilities and leadership rles and the assciated expenditure f resurces fr external rganizatins. T implement the NECP, OEC will cllabrate with its partner rganizatins t develp strategies that guide achievement f the bjectives, initiatives, and milestnes. Exhibit 4 illustrates these integrated elements f the NECP and depicts: A visin f the future state and gals that supprt achievement f the visin; specific bjectives t meet these gals; and supprting initiatives with natinal milestnes that define the utcmes and timelines required. Exhibit 4: The NECP Radmap 10

17 Natinal Emergency Cmmunicatins Plan July 2008 Objective 1: Frmal Gvernance Structures and Clear Leadership Rles Frmal decisin-making structures and clearly defined leadership rles crdinate emergency cmmunicatins capabilities. Mre than 50,000 independent agencies acrss the Natin rutinely use emergency cmmunicatins. Each f these agencies is gverned by the laws f its respective jurisdictin r area f respnsibility. N single entity is, r can be, in charge f the Natin s entire emergency cmmunicatins infrastructure. In such an envirnment, cllabrative planning amng all levels f gvernment is critical fr ensuring effective and fully crdinated preparedness and respnse. Frmal gvernance structures and leadership are needed t manage these cmplex systems f peple, rganizatins, and technlgies. 18 Current Emergency Cmmunicatins Activities: 19 Natinal-level plicies identify rles, respnsibilities, and crdinating structures fr incident management (e.g., Natinal Respnse Framewrk [NRF] and its Emergency Supprt Functin #2 [ESF#2], Natinal Incident Management System [NIMS] Jint Field Office Activatin and Operatins Interagency Integrated Standard Operating Prcedure Annex E). The Statewide Cmmunicatin Interperability Plan (SCIP) Guidebk prvides guidance n establishing a structure fr gverning statewide cmmunicatins interperability planning effrts. All 56 States and territries nw have SCIPs. The ECPC establishes a gvernance and decisin-making structure fr strategic crdinatin f interdepartmental emergency cmmunicatins at the Federal level. FEMA leads the integratin f tactical Federal emergency cmmunicatins during disasters and is develping requirements and an assciated Disaster Emergency Cmmunicatins (DEC) Integratin Framewrk fr fulfilling emergency cmmunicatins needs during disasters. Decisin-making bdies at the State, reginal, and lcal levels crdinate emergency cmmunicatins issues (e.g., RECCWG, statewide interperability crdinatrs and executive cmmittees, lcal cmmunicatins cmmittees) Mst emergencies ccur at the lcal level and are managed by lcal incident cmmanders. T best supprt the lcal incident cmmander, Federal and State agencies must ensure the crdinatin f their interperability effrts with lcal agencies. This perspective is in agreement with the ERC s guiding principles, SAFECOM Emergency Respnse Cuncil, Agreements n a Natinwide Plan fr Interperable Cmmunicatins, Summer A subset f relevant and current emergency cmmunicatin activities has been identified fr each bjective in the NECP; these subsets are nt meant t be cmprehensive, but represent examples f stakehlder input cllected during NECP develpment. Many additinal activities are planned and underway acrss all levels f gvernment. 20 As defined in Sectin 1805 f the Department f Hmeland Security Act f 2007, RECCWGs assess emergency cmmunicatins capabilities within their respective regins, facilitate disaster preparedness thrugh the prmtin f multijurisdictinal and multiagency emergency cmmunicatins netwrks, and ensure activities are crdinated with all emergency cmmunicatins stakehlders within the RECCWG s assciated FEMA regin. The FEMA Reginal Administratr versees the RECCWG and its activities, and the RECCWG is required t reprt annually (at a minimum) t the FEMA Reginal Administratr. The RECCWG advises n all aspects f emergency cmmunicatins in its respective Regin and incrprates input frm emergency cmmunicatins stakehlders and representatives frm all levels f gvernment as well as frm nngvernmental and private sectr agencies. 11

18 Natinal Emergency Cmmunicatins Plan July 2008 OEC is develping a gvernance sustainability and SCIP implementatin methdlgy t prvide guidance and share lessns learned in creating and sustaining effective statewide cmmunicatins interperability gvernance structures fr SCIP implementatin. Key Gaps and Obstacles Driving Actin: In many cases, emergency respnse agencies are unaware f (r have yet t adpt and integrate) natinal-level plicies that define rles, respnsibilities, and crdinating structures fr emergency cmmunicatins. State Interperability Executive Cmmittees (SIEC) r their equivalents d nt have unifrm structures, they typically act in an ad hc capacity, and they ften lack inclusive membership. The Natin des nt have an bjective, standardized framewrk t identify and assess emergency cmmunicatins capabilities natinwide. Thus, it is difficult fr jurisdictins t invest in building and maintaining apprpriate levels f perability, interperability, and cntinuity f cmmunicatins. Emergency cmmunicatins strategic planning effrts vary in scpe and ften d nt address the perability and interperability cncerns f all stakehlders. Many agencies ften d nt cnsider cmmunicatins planning t be a pririty and therefre d nt allcate resurces fr participatin in planning activities. There is a need fr greater Federal department and agency participatin in State, reginal, and lcal gvernance and planning prcesses. Many States d nt have full-time statewide interperability crdinatrs, r equivalent psitins, t fcus n the activities needed t drive change. Supprting Initiatives and Milestnes t Address Key Gaps: Initiative 1.1: Facilitate the develpment f effective gvernance grups and designated emergency cmmunicatins leadership rles. Unifrm criteria and best practices fr gvernance and emergency cmmunicatins leadership acrss the Natin will better equip emergency respnse agencies t make infrmed decisins that meet the needs f their cmmunities. Establishing effective leadership psitins and representative gvernance grups natinwide will standardize decisin-making and enhance the ability f emergency respnse agencies t share infrmatin and respnd t incidents. Recmmended Natinal Milestnes: Within 12 mnths, DHS will establish a central repsitry f mdel frmal agreements (i.e., Memrandums f Agreement [MOA], Memrandums f Understanding [MOU], and Missin Assignments) and infrmatin that will enhance interstate and intrastate crdinatin. 21 Within 12 mnths, all States and territries shuld establish full-time statewide interperability crdinatrs r equivalent psitins. 21 This repsitry is envisined as a cmpnent f the ECPC clearinghuse functin. Please refer t Initiative 2.1 fr additinal infrmatin and activities regarding the ECPC clearinghuse. 12

19 Natinal Emergency Cmmunicatins Plan July 2008 Within 12 mnths, DHS will cnduct a Natinal Emergency Cmmunicatins wrkshp t prvide an pprtunity fr RECCWG participants, statewide emergency cmmunicatins crdinatrs, and ther interested parties t cllabrate with ne anther and with Federal representatives frm the ECPC and FPIC. Within 12 mnths, RECCWGs are fully established as a primary link fr disaster emergency cmmunicatins amng all levels f gvernment at the FEMA reginal level, sharing infrmatin, identifying cmmn prblems, and crdinating multistate perable and interperable emergency respnse initiatives and plans amng Federal, State, lcal, and tribal agencies. 22 Within 12 mnths, SIECs (r their equivalents) in all 56 States and territries shuld incrprate the recmmended membership as utlined in the SCIP Guidebk and shuld be established via legislatin r executive rder by an individual State s gvernr. Within 18 mnths, DHS will publish unifrm criteria and best practices fr establishing gvernance grups and emergency cmmunicatins leadership rles acrss the Natin. Initiative 1.2: Develp standardized emergency cmmunicatins perfrmance bjectives and link t DHS verall system fr assessing preparedness capabilities natinwide. DHS will cllabrate with Federal, reginal, State, 23 lcal, and tribal gvernments and rganizatins, as well as with the private sectr, t develp a mre cmprehensive and targeted set f evaluatin criteria fr defining and measuring cmmunicatins requirements acrss the Natin. T prevent duplicative reprting requirements fr its stakehlders, DHS will ensure these assessment effrts leverage existing reprting requirements (e.g., fr SCIPs, Tactical Interperable Cmmunicatins Plans [TICPs], and State Preparedness Reprts) and grant prgram applicatins (e.g., fr the Interperable Emergency Cmmunicatins Grant Prgram [IECGP] and the Hmeland Security Grant Prgram [HSGP]). Evaluatin criteria will be based n the apprach being fllwed in DHS implementatin plans fr the Natinal Preparedness Guidelines/Target Capabilities List (TCL) FEMA rganizes the United States int 10 FEMA regins. Each FEMA regin has its wn Reginal Headquarters led by a Reginal Administratr. FEMA regins are respnsible fr wrking in partnership with emergency management agencies frm each state within the respective regin t prepare fr, respnd t, and recver frm disasters. FEMA regins and their Reginal Administratrs will be leveraged t prvide versight, implementatin, and executin fr their respective RECCWGs. 23 This cllabratin wuld include State hmeland security advisrs and statewide interperability crdinatrs. 24 DHS is currently develping TCL implementatin plans fr animal health, EOC management, intelligence, nsite incident management, mass transit prtectin, and weapns f mass destructin (WMD)/hazardus material (hazmat) rescue and decntaminatin. Cmmunicatin requirements will be based n the cncepts and principles utlined in the NECP and in the baseline principles prvided in the NIMS (e.g., cmmn perating picture; interperability; reliability, scalability and prtability; and resiliency and redundancy). These requirements will be based n the cmmand requirements fr respnse-level emergency cmmunicatins as defined in the NECP, and will als include the full range f cmmunicatins requirements fr all f the standardized types f cmmunicatins (e.g., strategic, tactical, supprt, public address) identified in the NIMS. 13

20 Natinal Emergency Cmmunicatins Plan July 2008 Recmmended Natinal Milestnes: Within 12 mnths, DHS will develp a standardized framewrk fr identifying and assessing emergency cmmunicatins capabilities natinwide. Within 18 mnths, DHS emergency cmmunicatins capability framewrk, in preparatin fr release, will be reviewed during a series f technical wrking grup meetings with stakehlders frm the emergency respnse cmmunity. Within 24 mnths, the emergency cmmunicatins capability framewrk will be incrprated as the cmmunicatins and infrmatin management capability in the DHS/FEMA Natinal Preparedness Guidelines/TCL, which will serve as a basis fr future grant plicies. Initiative 1.3: Integrate strategic and tactical emergency cmmunicatins planning effrts acrss all levels f gvernment. Tactical and strategic crdinatin will eliminate unnecessary duplicatin f effrt and maximize interagency synchrnizatin, bringing tgether tactical respnse and strategic planning. Recmmended Natinal Milestnes: Within 12 mnths, DHS will make available an effective cmmunicatinsasset management tl cntaining security and privacy cntrls t allw fr natinwide intergvernmental use. Within 12 mnths, tactical planning amng Federal, State, lcal, and tribal gvernments ccurs at the reginal interstate level. Initiative 1.4: Develp crdinated grant plicies that prmte Federal participatin and crdinatin in cmmunicatins planning prcesses, gvernance bdies, jint training and exercises, and infrastructure sharing. The largest investment categry f DHS grant funds is interperable cmmunicatins. Federal acquisitin, deplyment, and perating funds supprting Federal missin-critical cmmunicatin systems ften cannt be used t supprt State and lcal cmmunicatin needs (when therwise apprpriate). These limitatins n the use f these funds can inhibit the realizatin f the gals f crdinatin and interperability, as systems are develped, deplyed, and maintained. Recmmended Natinal Milestnes: Within 12 mnths, DHS fiscal year (FY) 2009 grant plicies prvides guidance n hw t best supprt natinal interperability needs thrugh the prmtin f shared infrastructure, cperative planning, and crdinated gvernance. 14

21 Natinal Emergency Cmmunicatins Plan July 2008 Within 12 mnths, best practices fr sharing infrastructure, addressing spectrum issues, and develping agreements amng Federal, State, and lcal emergency respnse cmmunicatrs are prmted thrugh DHS technical assistance prgrams, in accrdance with applicable laws. 15