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FM 3-28
Field Manual
Headquarters
Department of the Army
No. 3-28
Washington, DC 20 August 2010
Civil Support Operations
Contents
Page
PREFACE
v
INTRODUCTION
vii
Chapter 1
THE DOMESTIC ENVIRONMENT
1-1
The Army and Civil Support Operations
1-1
The Constitution of the United States and the Army
1-4
Army Components and Civil Support Operations
1-5
Duty Status of Forces Conducting Civil Support Operations
1-7
Key Aspects of Domestic Operations
1-9
Primary Civil Support Tasks
1-12
Fundamentals of Civil Support Operations
1-15
Training for Civil Support Operations
1-18
Chapter 2
A COMPREHENSIVE APPROACH FOR CIVIL SUPPORT
2-1
National Policy for Domestic Emergencies
2-1
Tiered Response from Local through National Level
2-12
National Guard Civil Support Operations
2-22
Federal Military Civil Support Operations
2-23
Chapter 3
PROVIDE SUPPORT FOR DOMESTIC DISASTERS
3-1
The Nature of a Disaster
3-1
Responsibility for Disaster Response
3-2
Initial Response from Local and State Authorities
3-4
National Guard Disaster Response
3-4
Federal Military Disaster Response
3-9
Phases of Disaster Response Operations
3-14
Considerations for Disaster Response Operations
3-16
Chapter 4
PROVIDE SUPPORT FOR DOMESTIC CBRNE INCIDENTS
4-1
Potential Consequences of Domestic CBRNE Incidents
4-1
Civilian CBRNE Incident Response
4-7
National Guard CBRNE Incident Response
4-8
Federal Military CBRNE Incident Response
4-9
Distribution Restriction: Approved for public release; distribution is unlimited.
i
Contents
Support for Pandemic Disease Outbreaks
4-13
Considerations for Domestic CBRNE Incident Response Operations
4-18
Chapter 5
PROVIDE SUPPORT FOR DOMESTIC CIVILIAN LAW ENFORCEMENT
AGENCIES
5-1
Principal Authorites for Support to Domestic Civilian Law Enforcement
Agencies
5-1
Main Types of Missions for Support to Domestic Civilian Law Enforcement
Agencies
5-4
Protection Against Terrorism
5-8
Considerations for Support to Domestic Civilian Law Enforcement Agencies ... 5-9
Chapter 6
PROVIDE OTHER DESIGNATED SUPPORT
6-1
Types of Designated Support
6-1
Requests for Other Designated Support
6-6
Chapter 7
LEGAL CONSIDERATIONS
7-1
Powers of a State Governor
7-1
Authorities for Federal Military Support
7-1
The Posse Comitatus Act
7-6
Federal Military Forces and Civil Disturbance
7-7
Mobilization of the Reserve Component
7-7
Rules for the Use of Force
7-8
Intelligence Rules and Restrictions
7-10
Isolation and Quarantine Authorities
7-14
Personal Liability
7-15
Chapter 8
SUSTAINMENT—LOGISTICS AND PERSONNEL SERVICES
8-1
The Sustainment Warfighting Function
8-1
Logistics Coordination for Civil Support Operations
8-1
Logistics Considerations for Civil Support Operations
8-11
Personnel Services in Civil Support Operations
8-18
Chapter 9
SUSTAINMENT—HEALTH SERVICE SUPPORT
9-1
Medical Capabiility Coordination for Civil Support Operations
9-1
Health Service Support Considerations for Civil Support Operations
9-5
Medical Logistics for Civil Support Operations
9-9
Appendix A
PLANNING CHECKLISTS
A-1
Appendix B
SAFETY
B-1
Appendix C
NATIONAL GUARD WEAPONS OF MASS DESTRUCTION-CIVIL SUPPORT
TEAMS
C-1
Appendix D
CBRNE ENHANCED RESPONSE FORCE PACKAGE
D-1
Appendix E
CBRNE CONSEQUENCE MANAGEMENT RESPONSE FORCE
E-1
Appendix F
AIRSPACE COMMAND AND CONTROL
F-1
Appendix G
SEARCH AND RESCUE
G-1
Appendix H
UNMANNED AIRCRAFT SYSTEMS IN CIVIL SUPPORT
H-1
Appendix I
INCIDENT COMMAND SECTIONS AND SUPPORT FUNCTIONS
I-1
Appendix J
COMPARISON OF STABILITY AND CIVIL SUPPORT TASKS
J-1
ii
FM 3-28
20 August 2010
Contents
Appendix K MEDIA CONSIDERATIONS
K-1
GLOSSARY
Glossary-1
REFERENCES
References-1
INDEX
Index-1
Figures
Introductory figure—full spectrum operations
vii
Figure 1-1. Range of response
1-3
Figure 1-2. Primary civil support tasks with examples
1-13
Figure 2-1. NIMS incident command staff
2-4
Figure 2-2. Example of NIMS command and management structure
2-5
Figure 2-3. Expanded command and coordination under NIMS
2-6
Figure 2-4. An overview of tiered response under the National Response Framework
2-8
Figure 2-5. FEMA regions and headquarters
2-18
Figure 2-6. A joint field office example, with command staff, sections, and branches
2-21
Figure 2-7. An example of National Guard organization within a state
2-23
Figure 2-8. Example of defense coordinating officer and defense coordinating
element organization
2-25
Figure 2-9. USNORTHCOM and USARNORTH structure
2-27
Figure 2-10. A pre-scripted mission assignment for communications support
2-30
Figure 3-1. Military forces required for a typical incident
3-2
Figure 3-2. Military forces required for a catastrophic incident
3-3
Figure 3-3. State response and National Guard echelons—Illinois example
3-6
Figure 3-4. Relationship of National Guard forces to area commands
3-7
Figure 3-5. The federal request for assistance process
3-11
Figure 3-6. Example of USNORTHCOM structure for DSCA
3-12
Figure 3-7. USNORTHCOM and National Response Framework phases of disaster
response
3-15
Figure 3-8. Example of parallel command structure
3-19
Figure 3-9. Multistate disaster requiring major commitment of federal military forces
3-20
Figure 4-1. World Health Organization pandemic influenza phases
4-14
Figure 6-1. Geographic area coordination centers for wildland firefighting
6-4
Figure 7-1. An example of a dual-status command
7-5
Figure 7-2. Illustration of the continuum of force
7-8
Figure 7-3. Sample rules for the use of force card carried by National Guard forces
7-10
Figure 8-1. Federal Emergency Management Agency logistics centers
8-3
Figure 8-2. USARNORTH sustainment structure
8-7
Figure 8-3. Illustration of base support installation selection
8-11
Figure 8-5. Example of joint movement center organization
8-18
Figure D-1. Example of CBRNE enhanced response force package organization
D-2
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FM 3-28
iii
Contents
Figure D-2. Example of patient flow
D-3
Figure E-1. State and federal CBRNE incident response forces
E-2
Figure E-2. Organization of the CBRNE consequence management response force
E-3
Figure E-3. USNORTHCOM disaster response phases and actions
E-5
Figure I-1. Example of a fully manned joint field office
I-3
Figure I-2. Example of the operations section of a joint field office
I-4
Figure I-3. Example of the planning section of a joint field office
I-5
Figure I-4. Example of the logistics section of a joint field office
I-6
Figure I-5. Example of the finance and administration section of a joint field office
I-7
Tables
Table 1-1. State active duty, Title 32, and Title 10 status summary
1-8
Table 1-2: Key military aspects of domestic operational environments
1-10
Table 2-1. Emergency support function annexes (ESFs)
2-9
Table 2-2. National Planning Scenarios
2-12
Table 4-1. National Planning Scenarios related to CBRNE incidents
4-2
Table 4-2. National Guard CBRNE incident response capabilities
4-9
Table 4-3. Department of Defense CBRNE incident response capabilities
4-12
Table A-1. Initial planning checklist for situational awareness and assessment
A-1
Table A-2. Initial planning checklist for a joint task force
A-3
Table A-3. Initial planning checklist for Army units
A-3
Table A-4. Initial planning checklist for the S-1
A-5
Table A-5. Initial planning checklist for the S-2
A-6
Table A-6. Initial planning checklist for the S-3
A-7
Table A-7. Initial planning checklist for the S-4
A-8
Table A-8. Initial planning checklist for the S-6
A-9
Table G-1. Disaster response and civil search and rescue comparison chart
G-2
Table J-1. Stability and civil support task comparison chart
J-1
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FM 3-28
20 August 2010
Preface
PURPOSE
This field manual (FM) provides keystone Army doctrine for civil support operations. It expands on the
discussion of civil support operations, the fourth element of full spectrum operations, in FM 3-0. This manual
focuses on the planning, preparation, execution, and assessment of civil support operations, which are
conducted within the United States and its territories. It discusses the role of Army forces cooperating with and
supporting civilian organizations in domestic operational environments, with particular emphasis on how
operations conducted by Army forces within the United States differ from full spectrum operations conducted
overseas.
All civil support operations buttress the capabilities of civil authorities within the United States. The
mechanisms that regulate civil support come from law, policy, regulation, and directive. Civil support
operations require Army leaders to understand an environment shaped primarily by federal, state, local, and
tribal agencies, and circumscribed by law. Nowhere is this more striking than in the roles of the National
Guard. In sharp contrast to stability operations, Army forces may conduct civil support operations with
National Guard forces responding under the direction of a governor or alongside active duty forces as part of a
coordinated national response. FM
3-28 explains the reasons for the division of forces and provides
considerations for the entire Army, including all three components: Regular Army, Army Reserve, and Army
National Guard.
The proponent has made every effort to keep Army civil support doctrine consistent with appropriate laws,
policies, regulations, and directives of the federal and state governments, the Department of Defense, the
Department of the Army, and the National Guard. In any case where Army doctrine differs, the laws, policies,
regulations, and directives take precedence.
SCOPE
The manual’s primary focus is on the operational Army echelons that conduct civil support operations. These
include battalions, brigades, division headquarters, and Army Service component headquarters. However, these
echelons require extensive support from the generating force, including Army civilians and contractors, and the
FM addresses that support as applicable.
Although two combatant commands, United States Pacific Command and United States Northern Command,
conduct civil support operations, this manual uses United States Northern Command terminology and methods
throughout. Users located in the United States Pacific Command area of responsibility should refer to theater
plans and standing operating procedures for specific civil support procedures in that theater. The fundamentals
of civil support operations remain the same, but the unique characteristics of the Pacific region alter some of the
details of defense support of civil authorities and National Guard civil support within the United States Pacific
Command area of responsibility.
FM 3-28 is organized into nine chapters and eleven supporting appendixes. Chapters 1 and 2 provide an
overview of domestic operations and the Army’s role in civil support. Chapters 3, 4, 5, and 6 explain the
primary civil support tasks—provide support for domestic disasters; provide support for domestic chemical,
biological, radiological, nuclear, or high-yield explosives incidents (CBRNE incidents); provide support for
domestic civilian law enforcement agencies; and provide other designated support. Chapter 7 provides a legal
discussion aimed primarily at unit commanders, providing them with sufficient information to understand what
their staff judge advocates should tell them. Chapters 8 and 9 address sustainment (logistics, personnel services,
and health service support), but due to the complexity of the subject, logistic and personnel services are in
chapter 8, and health service support receives separate discussion in chapter 9.
20 August 2010
FM 3-28
v
Preface
The appendixes address specific details pertinent to civil support operations—planning, safety, specialized
response forces, airspace command and control, search and rescue, unmanned aircraft systems, incident
command, media considerations, and Army tactical tasks. Appendixes C, D, and E provide a review of the three
Army forces organized specifically for chemical, biological, radiological, nuclear, or high-yield explosives
incidents. These three appendixes provide nascent doctrine on these organizations, pending the development of
more detailed tactics, techniques, and procedures for each.
Just as civil support and incident management and response continue to evolve within all echelons of
government, so too will FM 3-28. The Combined Arms Center plans to replace this edition in 18 months with a
multi-Service manual written in conjunction with the Marine Corps. The multi-Service manual will address
land force civil support operations. It will capitalize on material not yet available when this edition of FM 3-28
was prepared, such as the DSCA Tactical Commander’s Handbook (scheduled to be released in late July,
2010), in order to streamline the content.
INSTRUCTIONS ON EFFECTIVE USE OF THIS MANUAL
Readers should review the entire manual. Civil support principles, policies, and terminology—introduced in the
first three chapters—are distinct from those used for military operations overseas. All readers should
understand chapters 1 through 3 before applying any of the other content.
APPLICABILITY
This publication applies to the Active Army, the Army National Guard (ARNG)/Army National Guard of the
United States (ARNGUS), and the United States Army Reserve (USAR) unless otherwise stated. The target
audience for this manual is broad. It includes the commanders, leaders, and staff of Army forces involved in
civil support operations. It also provides general information to civil authorities at federal, state, local, and
tribal levels for use when coordinating with Army forces engaged in civil support operations. This manual is
suitable for use by other Services coordinating with Army forces engaged in civil support operations and other
organizations (including the Coast Guard) providing support to civilian agencies.
This doctrine does not apply to Army forces engaged in counterterrorism operations, nor does it apply to any
state defense force that is not part of the National Guard. It also does not cover operations of the United States
Army Corps of Engineers, a direct reporting unit of the Army that provides civil support in accordance with
U.S. law and other applicable regulations. Finally, this doctrine does not apply to military activities conducted
within a military installation.
ADMINISTRATIVE INFORMATION
Headquarters, U.S. Army Training and Doctrine Command (TRADOC), is the proponent for this publication.
The preparing agency is the Combined Arms Doctrine Directorate, U.S. Army Combined Arms Center. Send
written comments and recommendations on a DA Form 2028 (Recommended Changes to Publications and
Blank Forms) to Commander, U.S. Army Combined Arms Center and Fort Leavenworth, ATTN: ATZL-CD
(FM 3-28), 300 McPherson Avenue (Building 463), Fort Leavenworth, KS 66027-2337. The point of contact
for FM 3-28 is the Combined Arms Doctrine Directorate at (913) 684-4884; or by e-mail to: leav-cadd-web-
cadd@conus.army.mil; or submit an electronic DA Form 2028.
vi
FM 3-28
20 August 2010
Introduction
Field Manual (FM) 3-0 states that “Army forces combine offensive, defensive, and stability or civil support
[emphasis added] operations simultaneously as part of an interdependent joint force to seize, retain, and
exploit the initiative, accepting prudent risk to create opportunities to achieve decisive results. They
employ synchronized action—lethal and nonlethal—proportional to the mission and informed by a
thorough understanding of all variables of the operational environment. Mission command that conveys
intent and an appreciation of all aspects of the situation guides the adaptive use of Army forces.” The
introductory figure illustrates how the elements of full spectrum operations can be combined.
Introductory figure—full spectrum operations
FM 3-28 explains how the Army conducts civil support operations, the fourth element of full spectrum
operations. It discusses similarities and differences between civil support operations and the other elements
of full spectrum operation. Stability operations and civil support operations are similar in several ways.
Both revolve around the civilians on the ground within land areas of operation. Both stability and civil
support tasks require Army forces to provide essential services and work with civilian authorities.
However, domestic operational environments are quite different in terms of law, military chain of
command, use of deadly force, and interagency process.
Protecting the United States from direct attack is the highest priority of the United States Armed Forces.
Since the First World War, the Armed Forces have focused primarily on defending the United States by
projecting power overseas. According to Section 3062, Title 10, United States Code, the Army “. . . shall
be organized, trained, and equipped primarily for prompt and sustained combat incident to operations on
land.” However, when civil authorities request assistance or if directed by the President, the Armed Forces
also have great capability to respond to domestic emergencies and disasters. Department of Defense
conducts these operations under civilian control in accordance with the Constitution of the United States.
Based on the Constitution, and consistent with America’s history, the military does not lead the federal
response except by the direction of the President, under conditions of extreme domestic emergency, or
threat of war.
Civil support operations encompass support provided by the components of the Army to civil authorities
within the United States and its territories. This includes support provided by the Regular Army, Army
20 August 2010
FM 3-28
vii
Introduction
Reserve, and National Guard. They conduct civil support operations, either in combination with offensive
and defensive operations, or singly, in support of civil authorities.
Substantial portions of the Army’s strength reside in the Army National Guard, including 33 of 73 brigade
combat teams, and almost half of the Army’s multifunctional brigades. The Army National Guard has a
dual role for civil support operations. It may serve in a federal capacity, under the command of the
President, and integrated with Regular Army units, as part of a federal military joint task force. The Army
National Guard also provides the states and territories with the “organized militia” ordained in the sixteenth
clause of Section 8, Article I, of the Constitution of the United States. As the direct descendants of the
militia formations pre-dating the Revolution, today’s National Guard provides each state, territory, and the
District of Columbia with military capability to conduct civil support operations when directed by their
respective governors, as part of a joint task force-state.
When operating overseas, the distinction between the three components of the Army—Regular, Reserve
and National Guard—is irrelevant. All are conducting full spectrum operations under a single joint force
commander. When operating overseas, the National Guard is federalized and operates under the same
rules, regulations, and guidance as the Regular Army. The majority of Regular and Reserve Soldiers will
serve with their National Guard counterparts in this environment and will see them operate under exactly
the same rules and conditions as themselves. However, this is not the case when the Regular Army, Army
Reserve, and National Guard conduct civil support operations. There are important differences in the rules,
regulations, laws, and guidance that guide employment of the components of the Army when operating
within the United States, its trusts, and territories. This manual highlights those differences and explains
why it is important for each component to understand what these differences are and how they affect the
conduct of civil support operations.
For military forces conducting civil support operations, there is a federal response under the control of the
President and a state response under the control of a state's governor. Federal military forces operate under
the command and control of the President, the Secretary of Defense, and the supported combatant
commander. A state’s military forces (referred to as state National Guard) operate under the command and
control of the governor, exercised through a state joint force headquarters (referred to as a joint force
headquarters-state) headed by the adjutant general of that state. While federal and state National Guard
forces operate in proximity to one another, they remain under their respective chains of command. Unity of
command, as the military defines it, is not applicable between state and federal government agencies in
these circumstances. It is also not applicable to the federal military forces and state National Guard, unless
the President and the governor formally agree to appoint a dual-status commander. Therefore, achieving
unity of effort in civil support operations becomes essential.
Federal military forces normally operate
Federal military forces: Regular Army, Navy, Marine and Air
under a joint task force formed by the
Force personnel and units; mobilized Army, Navy, Air Force
combatant commander and deployed in
and Marine Reserve forces and personnel; and any National
support of a federal primary agency.
Guard forces and personnel mobilized for federal service in
Combatant commanders have authority
accordance with Title 10, United States Code. The President of
to alert forces under their command to
the United States is their Commander in Chief.
prepare for civil support, but actual
conduct of civil support operations
State National Guard forces: Air and Army National Guard
requires authorization from the Secretary
of Defense or designated authority.
personnel and units serving under state control, in accordance
with Title
32, United States Code. The governor of each
Federal military forces normally augment
respective state has overall command responsibility for the
the federal agencies’ ability to assist state
National Guard in that state and is their Commander in Chief.
and local governments. The response
State National Guard forces do not include state defense forces
effort typically begins with a declaration
organized outside of the National Guard.
of a disaster or emergency by the
President, but it may also be initiated by
a request for assistance from another federal agency or a state governor. The President may mobilize units
of the National Guard for federal service within the United States, but the laws governing the domestic
operations of the Regular Army also regulate National Guard Soldiers in federal service.
viii
FM 3-28
20 August 2010
Introduction
State National Guard forces normally operate as part of a state National Guard joint task force formed from
units of the state’s Air National Guard and Army National Guard. The governor of each state has overall
command and has the authority to alert and deploy their state’s National Guard units to support state
agencies. The National Guard provides state governors with military capabilities for various emergencies
in the states. Because of their proximity, the National Guard is typically the first military force to respond
to domestic emergencies. Unless placed in Title 10 status, the National Guard continues to operate under
the command of the state governor and state National Guard chain of command. When operating as part of
the state National Guard, the National Guard falls under state laws and generally has more flexibility in
supporting local authorities.
When federal military forces and state National Guard forces are participating in civil support operations,
supported combatant commanders communicate through the National Guard Bureau to the National Guard
joint force headquarters-state. The National Guard Bureau serves as the “channel of communications” to
the states. If an adjutant general establishes a subordinate task force or joint task force, the supported
combatant commander may be given direct liaison authority with the task force or joint task force. In a
disaster response situation, the combatant commander may receive permission to coordinate directly with
the states or to subordinate commands within the states.
Homeland security and homeland defense are complementary components of the National Security
Strategy. Homeland defense is the protection of U.S. sovereignty, territory, domestic population, and
critical defense infrastructure against external threats and aggression, or other threats as directed by the
President (Joint Publication (JP) 3-27). Missions are defined as homeland defense if the nation is under
concerted attack from a foreign enemy. Department of Defense leads homeland defense and is supported
by the other federal agencies. In turn, Department of Defense supports the Nation's homeland security
effort, which is led by the Department of Homeland Security. Homeland security is the concerted national
effort to prevent terrorist attacks within the United States; reduce America's vulnerability to terrorism,
major disasters, and other emergencies; and minimize the damage and recover from attacks, major
disasters, and other emergencies that occur (JP 3-28). In both homeland defense and homeland security, the
Army conducts civil support operations. The discussion in this field manual emphasizes civil support
operations in support of homeland security.
Note: Coast Guard forces are unique in that they normally operate under Title 14, United States
Code, as part of the Department of Homeland Security, but they may come under the operational
control of Department of Defense for some missions. In some homeland security missions the
Coast Guard may exercise tactical control of federal military forces.
Civil support operations require mastery of a specialized vocabulary derived from national laws and
policies. In the interest of clear communication, the Combined Arms Center avoids using shortened forms
(acronyms and abbreviations). However, in a few cases the shortened form is easier to say and remember
than the full term. In other cases, the shortened form has become commonly used (such as FEMA for
Federal Emergency Management Agency), and this manual uses it as such. See the glossary in the back of
this manual for a listing of acronyms used.
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FM 3-28
ix
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Chapter 1
The Domestic Environment
This chapter provides a broad overview of civil support and how it differs from
operations conducted outside the United States. This overview includes definitions of
key terms related to civil support operations. This chapter reviews the Army’s
Constitutional foundation. It also discusses components of the Army and unit status
as they relate to civil support operations. The chapter then discusses key aspects of
domestic operations. It specifies four primary civil support tasks and identifies five
fundamentals that apply to all components of the Army. It concludes with a summary
of training requirements.
THE ARMY AND CIVIL SUPPORT OPERATIONS
1-1. Civil support is the fourth element of full spectrum operations. Civil support operations encompass
support provided by the components of the Army to civil authorities within the United States and its
territories. The range of response includes support provided by the Regular Army, Army Reserve, and
National Guard. They may conduct civil support operations either in combination with offensive and
defensive operations, as part of homeland defense, or exclusively in support of civil authorities.
1-2. Although not the primary purpose for which the Army is organized, trained, and equipped, civil
support operations are a vital aspect of the Army’s service to the Nation. The skills that allow Soldiers to
accomplish their missions on today’s battlefields can support local, state, and federal civil authorities,
especially when domestic emergencies overwhelm the ability of government agencies to support fellow
Americans. That is not the only thing that the Army can provide. Army equipment developed for combat
can assist law enforcement agencies, rescue operations, and a host of other requirements. Army trainers can
apply their skills to mentor their civilian counterparts in those things at which the Army excels. The Army
has a long history of civil support operations, back to its inception. In any given year, thousands of Soldiers
support civilian agencies in missions ranging from disaster response to support for major sporting events.
1-3. Just as commanders need to understand each operational environment in campaigns conducted
outside the United States, they need to understand the domestic operational environments in which they
conduct full spectrum operations. However, there are important differences about operations conducted in
support of civil authorities—principally, the roles of civilian organizations and the relationship of military
forces to federal, state, and local agencies. What support Army forces provide (who, when, where, and
how) depends on specific circumstances. Soldiers and civilians need to understand the domestic
environment so they can employ the Army’s capabilities efficiently, effectively, and legally.
DEFENSE SUPPORT OF CIVIL AUTHORITIES DEFINED
1-4. This discussion defines defense support of civil authorities and clarifies the usage of the terms civil
support, defense support of civil authorities, and National Guard civil support. Civil support is defined as
Department of Defense support to U.S. civil authorities for domestic emergencies, and for designated law
enforcement and other activities (Joint Publication (JP) 3-28). Defense support of civil authorities (DSCA)
is defined as—
Support provided by U.S. Federal military forces, National Guard forces performing
duty in accordance with Reference
(m)
[Title
32, United States Code], DOD
[Department of Defense] civilians, DOD contract personnel, and DOD component
assets, in response to requests for assistance from civil authorities for special events,
20 August 2010
FM 3-28
1-1
Chapter 1
domestic emergencies, designated law enforcement support, and other domestic
activities. Support provided by National Guard forces performing duty in accordance
with Reference (m) [Title 32, United States Code], is considered DSCA but is conducted
as a State-directed action. Also known as civil support.
Department of Defense Directive (DODD) 5111.13
Civil authorities are defined as those elected and appointed officers and employees who constitute the
government of the United States, the governments of the
50 states, the District of Columbia, the
Commonwealth of Puerto Rico, United States possessions and territories, and political subdivisions thereof
(JP 3-28).
1-5. DSCA will replace two older terms. The first term, military support to civil authorities, was defined
as a mission of civil support consisting of support for natural or manmade disasters, chemical, biological,
radiological, nuclear, or high-yield explosive consequence management, and other support as required
(DODD 3025.1). In addition, DSCA will replace the term military assistance to civil authorities, defined as
the broad mission of civil support consisting of the three mission subsets of military support to civil
authorities, military support to civilian law enforcement agencies, and military assistance for civil
disturbances (DODD 3025.1). The meanings of these terms are included in the definition of DSCA. In
general usage, the terms civil support and DSCA are interchangeable when referring to operations
conducted by federal military forces.
NATIONAL GUARD CIVIL SUPPORT DEFINED
1-6. National Guard civil support is defined as support provided by the National Guard of the several
states while in state active duty status or Title 32 duty status to civil authorities for domestic emergencies,
and for designated law enforcement and other activities. This definition is expected to be adopted by
National Guard Regulation 500-1.
1-7. The range of response provided by Army forces includes Regular Army, Army Reserve, and state
National Guard forces. The term DSCA, however, does not encompass the full range of response. Neither
does National Guard civil support encompass the operations of all National Guard forces. Duty status
determines whether National Guard forces are conducting National Guard civil support, DSCA, or both.
National Guard duty statuses are state active duty, Title 32, or Title 10 (referring to Titles 32 and 10 of the
United States Code, or USC). DSCA includes operations of National Guard forces in Title 32 status.
DSCA does not include operations of the National Guard in state active duty status. National Guard forces
in state active duty status or Title 32 duty status remain under the command of their governor. If National
Guard forces become federalized—placed under Title 10—their operations fall under DSCA and not
National Guard civil support. In Title 10 status, federalized National Guard forces are under the command
of the President. When this manual discusses federal military forces, it refers to all forces in Title 10 status,
including federalized National Guard. See paragraphs 1-25 to 1-32 for more information about duty
statuses. Figure 1-1, on page 1-3, illustrates the range of response provided by Army forces.
1-2
FM 3-28
20 August 2010
The Domestic Environment
Figure 1-1. Range of response
Note. When a new DODD 3025.1 is approved, the updated definitions of DSCA and National
Guard civil support will be incorporated into the joint dictionary. The new DODD 3025.1 will
supersede the existing version, and the definitions of military support to civil authorities and
military assistance to civil authorities will be eliminated from the joint dictionary. When
updated, National Guard Regulation
500-1 will reflect updated definitions of DSCA and
National Guard civil support.
1-8. Although the definitions of DSCA and National Guard civil support overlap, the most important
distinction—and the one that affects field operations—is the status of the forces providing the support. By
law, the National Guard remains under the command of the governor unless federalized, and the all forces
in Title 10 status remain under the President’s command (under Title 10, USC). The Army supports elected
officials with complementary capabilities when and where needed through a unified effort, despite
overlapping definitions. DODD 1200.17 states—
Homeland Defense and Defense Support to Civil Authorities (DSCA) are total force
missions. Unity of effort is maintained consistent with statutory responsibilities in
operations involving Federal forces and non-federalized National Guard forces with
Federal forces under Federal command and control and non-federalized National Guard
forces under State command and control
DODD 1200.17
1-9. Commanders and key staff need to understand why state National Guard forces and federal military
forces operate under different chains of command in civil support. The following sections summarize some
of the impacts in terms of—
z
The structure of the United States under the Constitution of the United States and its impact on
the Army
z
The roles of the components of the Army—Regular, Reserve, and National Guard—and their
requirements for providing civil support.
z
Specific military aspects of civil support operations and how they differ from operations
conducted outside the United States.
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Chapter 1
THE CONSTITUTION OF THE UNITED STATES AND THE ARMY
1-10. Under the Constitution, the United States is a republic comprising of 50 states, together with various
territories and possessions. This system, in which the states share powers with a central national
government, is called federalism; it is the basis for division of powers between state and federal
government. The Constitution carefully apportions powers within the federal government between the
branches of the federal government
(executive, legislative, and judicial) and the individual states.
Regarding the Armed Forces, the Constitution states—
The Congress shall have power . . . To raise and support Armies, . . . To provide and
maintain a Navy; To make Rules for the Government and Regulation of the land and
naval Forces; To provide for calling forth the Militia to execute the Laws of the Union,
suppress Insurrections and repel Invasions; To provide for organizing, arming, and
disciplining, the Militia, and for governing such Part of them as may be employed in the
Service of the United States, reserving to the States respectively, the Appointment of the
Officers, and the Authority of training the Militia according to the discipline prescribed
by Congress
Article I, Section 8 of the Constitution of the United States
The President shall be Commander in Chief of the Army and Navy of the United States,
and of the Militia of the several States, when called into the actual Service of the United
States
Article II Section 2 of the Constitution of the United States
. . . . [The President] shall take Care that the Laws be faithfully executed
Article II, Section 3 of the Constitution of the United States
1-11. The framers of the Constitution granted the states authorities concerning the militia, the predecessor
of today’s National Guard. This requirement is the constitutional basis for the separation of the National
Guard from the Regular Army and Air Force. It is the authority that permits the state governors retain
command over the National Guard within their respective states. There is not a chain of command in the
military sense between the President and the governors. Each has certain powers under the Constitution.
The President as head of Executive branch of the federal government and military commander in chief may
only exercise the authorities granted by the Constitution and U.S. law. Within their respective states, the
governors retain executive authority, including command over their state’s National Guard until the
President mobilizes it for federal service. The practical impact of this on the Army forces operating
domestically is a legal division between the National Guard and federal military forces. This is unique to
domestic operational environments, and commanders at all levels need to understand how it affects
operations.
1-12. The Constitution also outlines the antipathy of the founding fathers towards the large militaries of
the European powers. These men viewed a large standing army answering to the head of state as a
continuous threat to civil liberty. Although the founders shared a fear of a large standing army, they also
saw the necessity of a national army for the common defense. They balanced this requirement by providing
the states with military capabilities. They had ample reasons for this balancing act.
1-13. The Articles of Confederation (1784 to 1787) failed to provide the national government with
authority and means to act in the national interest. This led to the Constitutional convention to restructure
the Nation’s government. The Constitution of the United States (ratified in 1787) included provisions for
federal and state forces to enforce the law. It was not long before this was tested. In 1794, the Whiskey
Rebellion forced the first President to use armed forces to restore order. President Washington’s guidance
was that the military was to support local civil authorities, not pre-empt them. President Washington’s
response established the fundamental precept that the military supports civil authority and remains in law
today.
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The Domestic Environment
ARMY COMPONENTS AND CIVIL SUPPORT OPERATIONS
1-14. Civil support provided by Regular, Army Reserve, and Army National Guard units varies according
to domestic law and Department of Defense (DOD) policies. Each component has different civil support
capabilities, requirements, and restrictions. Regular Army forces and Army Reserve units always remain
under the command of the President of the United States, exercised through the Secretary of Defense and
the various combatant commanders. The National Guard (including the Army National Guard and Air
National Guard) are state forces and remain under the command of the governors of their respective states,
unless mobilized for federal service under Title 10, USC. This creates a unique environment where Regular
Army, mobilized Army Reserve, federalized National Guard, and National Guard forces under state
command may conduct civil support operations simultaneously and in proximity while different agencies
and under different chains of command. Commanders and civilian agencies need to keep in mind the
distinctions between the components of the Army. The following sections highlight the components and
their capabilities.
THE REGULAR ARMY
1-15. The Regular Army consists of approximately
550,000 professional Soldiers organized into
operational forces intended for deployment and ground combat operations, and the generating force—
professional Soldiers supported by civilians that sustain, train, and equip not only the Regular Army, but
the other components of the Army as well. The operational forces and the generating force provide DSCA
as directed by the Secretary of Defense. The Regular Army provides civilian leaders a menu of capabilities
that capitalize on their expeditionary and campaign qualities. The most important of these are size, training
and equipment levels, flexibility, and endurance.
1-16. The Regular Army’s primary attribute for civil support is this component’s ability to generate large
forces rapidly and sustain them for long periods in an emergency. The Regular Army can provide large
forces in the interim between the time a governor calls out the state’s National Guard and the arrival of
substantial civilian responders from outside the state (see chapter 3 regarding disaster response operations).
When directed and with the support of United States Transportation Command, the Regular Army deploys
forces ranging from small detachments to corps-sized formations of 100,000 troops or more, supported by
the full resources of DOD. Because they are professionals, Soldiers of the Regular Army spend much more
time in training than their reserve counterparts. They are also not under pressure from civilian employers to
return to their occupations. In most cases Regular Army units have more modern equipment than the
reserve components. All these factors make units of the Regular Army highly adaptive and flexible,
mission-focused, and capable of prodigious effort.
1-17. The limitations on domestic employment of Regular forces include proximity, legal, and operational
commitments. Regular Army units are concentrated at several large installations spread across the country
and may be based far from an incident location. Their ability to respond is less a factor of their readiness
than one of intra-theater transportation. While legal considerations affect all Soldiers, there are additional
legal limitations on the use of Regular Soldiers, discussed in detail in subsequent chapters. Perhaps the
most important limitation on the use of Regular forces is their operational tempo—the rapidity with which
Regular Army forces are committed to support ongoing campaigns and other missions outside the United
States. The nearest or most suitable Regular Army unit may be committed to operations elsewhere, with
some or all of its equipment and personnel in route to another theater.
THE ARMY RESERVE
1-18. The Army Reserve is one of two reserve components of the Army. It consists of approximately
206,000 Soldiers. It includes both units and individuals. Although it does not have any brigade combat
teams, it does include supporting units of almost every type. Army Reserve units are located throughout the
country.
1-19. The law currently restricts the use of Army Reserve units for civil support missions. In general,
Army Reserve units can only conduct civil support operations in two circumstances. First, Army Reserve
units may be mobilized by the President in response to a chemical, biological, radiological, nuclear, or
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Chapter 1
high-yield explosives incident. Second, Army Reserve units already on active duty for training may
provide immediate response or other civil support when authorized by DOD. However, any time spent on
civil support operations is counted against the total training time for that year, and may not exceed the total
active duty for training time allotted for that year.
1-20. Individual call-up and augmentation of Regular Army units conducting civil support follows similar
rules to those applied in a limited Presidential call-up. Refer to chapter 7 for additional discussion on the
restrictions on the use of Army Reserve forces for domestic operations.
THE ARMY NATIONAL GUARD
1-21. The Army National Guard is the other reserve component of the Army. It consists of approximately
360,000 Soldiers. Each state, each territory, and the District of Columbia have National Guard forces, for a
total of 54 state and territorial Army National Guard elements. These forces are organized into modular
formations identical to those of the Regular Army and Army Reserve. Unlike the Regular Army, however,
the Army National Guard has a dual role. As a reserve component of the Army, the President may mobilize
the National Guard for federal service. In this capacity, the Army National Guard provides an operational
reserve for the Regular Army. This includes eight of the Army’s 18 division headquarters, 33 of the
Army’s 73 brigade combat teams, 47 per cent of the Army’s multifunctional support brigades, and 40 per
cent of the Army’s functional support brigades. Until the President brings any unit of the National Guard
into federal service, National Guard forces remain under the command of their respective state or territorial
governor. As state forces, the Army National Guard units provide the majority of the Soldiers committed to
civil support, and are critical to the state’s support of its citizens.
1-22. Army National Guard units have advantages and disadvantages when employed in a civil support
role. Their significant advantages are proximity, responsiveness, knowledge of local conditions, tactical
flexibility in civil support missions, and closer association with state and local officials. The important
disadvantages of National Guard forces are unit distribution between states, limited endurance, and the
ability of the states to fund them.
1-23. Because they are state resources, the governor can activate National Guard units based on
requirements in that state. During an emergency, Army National Guard units often task-organize with Air
National Guard units from that state in state joint task forces. In state service, the National Guard is more
flexible in terms of law enforcement and in the range of missions they may be assigned in support of first
responders. Quite often, their leaders are personal acquaintances of the other key state officials, which tend
to speed communication through state channels.
1-24. Possibly the most important limitation of the Army National Guard is its endurance. Each day the
National Guardsman is deployed is a day away from civilian employment. Most employers are generous in
allowing time for National Guard call-ups, but deployments for annual training, state civil support
missions, and deployment overseas, create serious strains. The endurance of the National Guard is also
limited by fiscal considerations. The state has limited funds to pay personnel and operational costs,
including health care costs. A third limitation is structural. Although the Army tries to align unit
organizations as closely as possible within that state’s National Guard, units may still be distributed across
more than one state. Thus, the combat organizations with which National Guard units train in annual
training may be different than the units that command them in civil support operations.
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20 August 2010
The Domestic Environment
DUTY STATUS OF FORCES CONDUCTING CIVIL SUPPORT
OPERATIONS
1-25. The particular duty status of a unit—the legal standing of the organization—determines its chain of
command and in some cases the missions it may undertake within the United States and its territories (the
homeland). Depending on their status, units may be described as federal military forces or state National
Guard forces. However, the inclusion of National Guard forces within either category varies, as discussed
in paragraphs 1-26 to 1-32.
FEDERAL MILITARY FORCES (TITLE 10 STATUS)
1-26. Title 10, USC, governs all federal military forces. For the Army, these forces include the Regular
Army, the Army Reserve, and all National Guard units ordered to federal active duty in Title 10 status
(“federalized” National Guard). For the other Services, federal military forces include all their components
except the Air National Guard unless it mobilizes for federal service. Federal military forces—all forces in
Title
10 status, including federalized National Guard—are federal assets under the command of the
President. The Posse Comitatus Act restricts federal military forces—all forces in Title 10 status, including
federalized National Guard (see chapters 5 and 7 for more information about the Posse Comitatus Act).
1-27. In a large-scale disaster, the President may direct that federal military forces support federal
agencies, but these forces will remain under federal, not state command. In most cases, there are separate
federal and state chains of command assisting numerous organizations on the ground. Unity of effort across
jurisdictions and involving numerous organizations requires significant effort in establishing effective
communication.
STATE NATIONAL GUARD FORCES IN STATE ACTIVE DUTY OR TITLE 32 STATUS
1-28. National Guard forces under the control of the governor may be in either a state active duty status or
Title 32 status. Although there are legal distinctions between the two statuses, there is no difference in their
tactical employment. Therefore, this manual refers to National Guard forces in either status as state
National Guard forces. Some states have uniformed forces that are not part of the National Guard and are
not considered state National Guard forces. These state defense forces and are discussed in paragraph 1-33.
State Active Duty Status
1-29. When the governor mobilizes the state National Guard, the forces are in state active duty status,
under the command and control of the governor. The state government pays the expenses for forces in state
active duty status. National Guardsmen on state active duty conduct all missions in accordance with the
needs of the state and within the guidelines of state laws and statutes. National Guardsmen on state active
duty receive pay from that state and are subject to the state military codes (not the Uniform Code of
Military Justice). National Guard forces in state active duty status can perform civil law enforcement
missions in accordance with the laws and statutes of their state. Generally, National Guard forces assist
with incident management and homeland security operations within the state.
Title 32 Status
1-30. Under certain circumstances, a governor may request that the federal government pay for the costs
associated with a state call up of the National Guard for responding to an emergency. When the Secretary
of Defense approves, National Guard forces change from state active duty status to Title 32 status. Title 32,
USC, is the principal federal statute covering the National Guard. Even though the National Guard forces
are on active duty and funded by the federal government, in Title 32 status, National Guardsmen, remain
under the command of the governor. Although the distinction between funding lines is important to the
respective state and federal treasuries, it has no tactical impact. For Army commanders, the important
distinction is that National Guard units in Title 32 status remain under state control and therefore have
authority for some missions that Regular Army and Army Reserve units do not. Because forces in Title 32
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Chapter 1
status remain under the command of the governor, National Guard units may conduct law enforcement
missions and are not subject to the restriction of the Posse Comitatus Act.
1-31. The National Guard of one state can assist other states responding to a disaster through formal
agreements, such as the Emergency Management Assistance Compact (known as EMAC). Typically, this
occurs in state active duty, and may transition to Title 32 status upon approval by the Secretary of Defense.
When requested by the supported state’s governor and authorized by the supporting state’s governor under
a separate memorandum of agreement, National Guard elements deploy to the supported state. The
supporting National Guard operates under the operational control of the supported state’s adjutant general.
Typically, deployments under an assistance memorandum are limited to a specific period, such as 30 days.
Often, military and civilian officials refer to all National Guard forces as “Title 32 forces,” notwithstanding
that some of them may be in a state active duty status—without federal funding. Table 1-1 summarizes the
types of National Guard duty status.
Table 1-1. State active duty, Title 32, and Title 10 status summary
State Active Duty
Title 32
Title 10
Command and
Governor
Governor
President
control by—
Where missions
Within respective state or
Within respective state or territory and
Worldwide
are performed:
territory and according to
according to emergency management
emergency management
assistance compact or state-to-state
assistance compact or
memorandum of agreement
state-to-state
memorandum of
agreement
Funded by—
State government
Federal government funds, administered
Federal government
by the state
Types of
Under state law—
Missions include service for annual
Missions include
missions:
missions include riot
training, drills, disaster and law
worldwide training
control, law enforcement,
enforcement missions, and other federal
and operations, as
and emergency (incident)
military requirements. Title 32 status for
assigned by joint
response
incident response requires a disaster or
commander
emergency declaration by the President
Discipline:
State military code
State military code
Uniform Code of
Military Justice
Conduct law
Yes, as authorized by the
Yes, as authorized by the supported
No, strictly limited by
enforcement?
supported governor
governor
the Posse Comitatus
Act, standing execute
orders, and
Department of
Defense directives
Pay determined
State law
Department of Defense Publication
Department of
by—
7000.14-R
Defense Publication
7000.14-R
Travel, lodging,
State law
Department of Defense travel regulations
Department of
and benefits
Defense travel
determined by—
m/trvlregs.html) and public law
regulations
avel.dod.mil/perdiem/t
rvlregs.html) and
public law
1-32. State and territorial National Guard forces have primary responsibility for providing military support
to state and local authorities in emergencies. In most civil support situations, the President will not
federalize National Guard forces. National Guard units conduct advance planning with civilian responders
Together these organizations—civilian and military—establish coordination plans and procedures based on
National policy such as the National Incident Management System, the National Response Framework, and
the National Planning Scenarios. Command and control follows the authority under which Service
members are ordered to duty: state active duty and state National Guard forces remain under the authority
of the respective governor, and federal military forces under federal command and control.
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FM 3-28
20 August 2010
The Domestic Environment
STATE DEFENSE FORCES
1-33. Not all individuals wearing an Army uniform are part of the Army. State defense forces may be
present during civil support operations. Twenty-four states have a state defense force of some description,
organized under a separate provision of Section 109(c) of Title 32, USC. A state defense force may be a
“state organized defense force” or “state guard,” or even a named militia unit. However, these forces are
not National Guard forces, although they are the responsibility of the adjutant general. They are always
under the governor’s command. Each state continues to fund its state defense forces regardless of the
nature of the disaster response—Title 32 status does not apply. State defense forces may conduct law
enforcement missions consistent with states laws and orders by the governor. In some states and territories,
the state defense force has law enforcement authority similar to a credentialed law enforcement officer.
Many of these units wear standard Army uniforms when in state service. This can lead to confusion, since
to civilians they appear to be members of the Armed Forces. The state often employs these elements within
their county of residence.
KEY ASPECTS OF DOMESTIC OPERATIONS
1-34. Either a governor or federal civilian agencies may request help from the military when the situation
exceeds their capacity to respond. However, DOD support, especially the active components of the
military, is only temporary until local, state, and federal authorities resume their normal roles. Commanders
keep in mind that federal laws require the supported federal agency (such as the Federal Emergency
Management Agency) to reimburse DOD for any support the latter provides. That can be very expensive—
Hurricane Katrina expenses that DOD billed to the Federal Emergency Management Agency exceeded five
billion dollars.
1-35. Civil support operations are generally not the top priority mission of DOD. War fighting and the
homeland defense mission are the top priority, but DOD must be prepared to conduct civil support
missions. DOD is not the lead in civil support operations but supports a primary agency. The primary
agency establishes priorities and maintains overall direction of the civil support. DOD anticipates
requirements from the primary agency, and plans, prepares, and trains for such contingencies. Specific
requirements are identified within the Chairman of the Joint Chiefs of Staff standing execute order for
DSCA (referred to as the CJCS DSCA EXORD). In any DSCA contingency involving federal military
forces, the defense coordinating officer is the Secretary of Defense's primary DOD agent for coordinating
support to the federal coordinating officer.
1-36. In civil support operations, there is a federal-government-led response, one or more state-
government-led responses, and one or more local-government-led (city, county, tribal) responses. The
federal-government-led response is under the command and control of the President, Secretary of Defense
and supported combatant commander. The state-government-led response is under the command and
control of the governor. The local-government-led response is under the control of the mayor or local
official. In civil support operations, all of these levels of responses, local, state, and federal, may be
occurring simultaneously. Commanders and staffs need to understand key military aspects of the domestic
environment. These aspects are summarized in Table 1-2, pages 1-10 to 1-11.
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Chapter 1
Table 1-2: Key military aspects of domestic operational environments
Military aspect
Impact on military operations
Army forces conduct civil support operations only in the
Civil support operations do not include activities occurring
United States and its possessions and territories. Army
solely within a military installation.
forces do not conduct civil support operations overseas.
Army forces do not conduct stability operations within the
United States and its territories. Disaster relief operations
overseas in support of a foreign nation are stability
operations—foreign humanitarian assistance or foreign
consequence management—and Department of State is
normally the lead agency.
Department of Defense is not in the lead in civil support
Although Soldiers always remain under their military
operations; Department of Defense supports a primary
chain of command, a primary civilian agency establishes
agency.
the priorities. Missions develop in response to civilian
requests for assistance.
The state National Guard is not the primary agency for
civil support to its respective state. State National Guard
forces support state agencies.
In civil support operations, numerous relief efforts—local,
Military and civilian organizations support a primary
state, and national—may occur simultaneously. Each has
agency but in most cases are not directly subordinate to
its own chain of command. A city mayor may control a
it. Each level of government is sovereign within the limits
local response. A tribal leader may control a tribal
of the law: a governor is not subordinate to the President,
response. A governor may control a state response. The
nor is a mayor subordinate to a governor. Two or more
President controls the national response and the federal
distinct military chains of command may operate within
military response. The Secretary of Defense and
the same area. For example, active component and
supported combatant commander command and control
National Guard forces may support and report to different
federal military forces.
agencies, under different commanders.
Civil support is neither homeland defense nor homeland
Army forces support federal and state homeland security
security. Federal military forces contribute to homeland
requirements but are not part of Department of Homeland
security by conducting homeland defense and civil
Security or similar state agencies. However, an adjutant
support operations. The same is true for state National
general may be dual-hatted as a state’s director of
Guard forces.
homeland security or emergency management.
The top priorities of Department of Defense are
Unless the Nation comes under attack by foreign forces,
warfighting and homeland defense, not civil support.
civil support will be the only element of full spectrum
Department of Defense must be prepared, however, with
operations conducted in the Homeland. Should Army
trained and ready forces to conduct civil support missions.
forces be required to conduct homeland defense
operations, they may conduct civil support operations
simultaneously with offensive and defensive operations.
Department of Defense and state National Guard forces
Planning and preparation for civil support are continuous.
work with the Department of Homeland Security and other
They are based on national policy and federal
agencies to anticipate requirements. This includes
government plans. State National Guard forces prepare
planning, preparation, and training for contingencies
to support state, regional, and national contingencies.
involving state National Guard and federal military forces.
In a civil support operation, a defense coordinating officer
Within a joint (interagency) field office, a defense
coordinates with a federal coordinating officer as the
coordinating officer interfaces between the supported
Secretary of Defense's primary agent.
federal agencies and supporting federal military forces.
Federal military forces conduct civil support as part of a
Army forces—state National Guard forces and federal
joint Service and interagency effort, under the command
military forces—cooperate as part of a joint force in
and control of the supported combatant commander.
support of civil authorities, based on national policy.
Military forces coordinate with local, state, and federal
civil authorities according to the National Response
Framework and the National Incident Management
System.
Effective civil support operations depend on coordination
Coordination with civil authorities is critical. The structure
with state and federal Interagency partners.
of civilian government within the United States makes
unity of command during incident response operations
impractical, so commanders must do everything in their
power to ensure unity of effort.
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The Domestic Environment
Table 1-2. Key military aspects of domestic operational environments (continued)
Military aspect
Impact on military operations
Military forces conduct civil support operations under state
Staff judge advocates are critical to mission success.
and federal laws.
State and federal laws determine how military forces
operate within the United States; they limit the tasks
military forces may perform. Due to legal requirements,
commanders accept a certain amount of inefficiency.
Many tactical civil support tasks are similar to tactical
Although stability and civil support operations share most
stability tasks, with some important differences.
tactical tasks, the conditions for these tasks are quite
different. Therefore, proficiency in stability tasks must be
reinforced with specialized training for civil support
operations.
Military forces receive reimbursement for the costs of civil
In most cases, the law requires civilian agencies to
support missions only if they maintain a detailed record of
reimburse the military for any operational costs
operations and associated costs.
associated with civil support missions. To obtain
reimbursement, military forces must account for specific
actions and costs in detail and present these figures to
the appropriate agency for payment.
DIFFERENCES BETWEEN STABILITY AND CIVIL SUPPORT OPERATIONS
1-37. Civil support operations are conducted only within the United States and U.S. possessions and
territories. Civil support is not conducted outside the United States. If DOD conducts disaster relief
operations in support of a foreign nation, for example, it is a stability operation and is called foreign
humanitarian assistance or foreign consequence management. The Department of State, not DOD, is in the
lead for this type of effort.
1-38. Within homeland defense, Army forces combine offensive, defensive, and civil support operations as
part of a joint operation to defend the United States from external attack or other threats. Within the
framework of homeland security, Army forces, as part of a joint response at the state level, federal level, or
both, will normally conduct civil support operations exclusively, often employing capabilities developed
for other elements of full spectrum operations as part of civil support.
1-39. Stability operations and civil support have similar tasks. Both revolve around the civilians on the
ground within land areas of operation. Both stability and civil support tasks require Army forces to provide
essential services and work with civilian authorities. However, domestic operational environments are
quite different in terms of law, military chain of command, use of deadly force, and the interagency
process.
1-40. When operating overseas, the distinction between the three components of the Army—Regular,
Reserve and National Guard—is irrelevant. All are conducting full spectrum operations under a single joint
force commander. When operating overseas the National Guard is federalized and operates under the same
rules, regulations, and guidance as the Regular Army. The majority of active component Soldiers will have
most of their interaction with the National Guard in this environment and will see them operate under
exactly the same rules and conditions as themselves. However, this is not the case when the Regular Army,
Army Reserve, and National Guard conduct civil support operations. There are important differences in the
rules, regulations, laws, and guidance that guide employment of the components of the Army when
operating within the United States, its trusts and territories. It is important for to understand what these
differences are and how they affect the conduct of civil support operations.
HOMELAND SECURITY AND HOMELAND DEFENSE
1-41. Civil support is not synonymous with homeland security or homeland defense. Civil support
contributes to both homeland security and homeland defense. DOD supports homeland security and
conducts homeland defense.
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Chapter 1
1-42. Joint doctrine defines homeland security as a concerted national effort to prevent terrorist attacks
within the United States; reduce America's vulnerability to terrorism, major disasters, and other
emergencies; and minimize the damage and recover from attacks, major disasters, and other emergencies
that occur (JP 3-28).
1-43. The Department of Homeland Security describes homeland security as follows:
Homeland security is a widely distributed and diverse—but unmistakable—national
enterprise. The term
“enterprise” refers to the collective efforts and shared
responsibilities of Federal, State, local, tribal, territorial, nongovernmental, and private-
sector partners—as well as individuals, families, and communities—to maintain critical
homeland security capabilities. The use of the term connotes a broad-based community
with a common interest in the public safety and well-being of America and American
society that is composed of multiple actors and stakeholders whose roles and
responsibilities are distributed and shared. As the Commander-in-Chief and the leader of
the Executive Branch, the President of the United States is uniquely responsible for the
safety, security, and resilience of the Nation. The White House leads overall homeland
security policy direction and coordination. Individual federal agencies, in turn, are
empowered by law and policy to fulfill various aspects of the homeland security mission.
The Secretary of Homeland Security leads the federal agency as defined by statute
charged with homeland security: preventing terrorism and managing risks to critical
infrastructure; securing and managing the border; enforcing and administering
immigration laws; safeguarding and securing cyberspace; and ensuring resilience to
disasters. However, as a distributed system, no single entity is responsible for or directly
manages all aspects of the enterprise.
Quadrennial Homeland Security Review Report, February 2010
1-44. Joint doctrine defines homeland defense as the protection of United States sovereignty, territory,
domestic population, and critical infrastructure against external threats and aggression or other threats as
directed by the President (JP 3-27). The operative phrase is “external threats and aggression”. Homeland
defense begins far from the territory of the United States and depends upon U.S. forces and the assistance
of immediate neighbors including Canada and Mexico. DOD takes the lead for homeland defense, and
other federal government organizations provide support. For more information concerning homeland
defense, refer to JP 3-27.
PRIMARY CIVIL SUPPORT TASKS
1-45. Field Manual (FM) 3-0, 27 February 2008, specifies three primary civil support tasks. FM 3-28 now
adds an additional primary civil support task to those specified in FM 3-0, making four primary civil
support tasks:
z
Provide support for domestic disasters.
z
Provide support for domestic chemical, biological, radiological, nuclear, or high-yield
explosives incidents.
z
Provide support for domestic civilian law enforcement agencies.
z
Provide other designated support.
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20 August 2010
The Domestic Environment
1-46. The expansion to four tasks recognizes the increased emphasis placed on chemical, biological,
radiological, nuclear, or high-yield explosives incident response, particularly if terrorist groups employ
weapons of mass destruction. Incidents involving chemical, biological, radiological, nuclear, or high-yield
explosives threats require specialized capabilities, and the effects of weapons of mass destruction on
domestic operational environments may be considerably more complex than other disasters. Similar
considerations apply to pandemic response. Figure 1-2 illustrates the four primary civil support tasks with
examples of missions for each.
Figure 1-2. Primary civil support tasks with examples
PROVIDE SUPPORT FOR DOMESTIC DISASTERS
1-47. There are many types of disasters, but they all have one thing in common: people in the disaster area
have their lives upended and all too often, lose loved ones. Natural disasters occur throughout the United
States and its territories. Some disasters afford some warning beforehand, such as hurricanes, ice storms, or
even volcanic eruptions. The Department of Homeland Security, and specifically the Federal Emergency
Management Agency, marshals available support in advance of these events and assists local and state
officials with evacuation plans and recovery after the disaster. For other disasters, such as an earthquake or
a chemical accident, there is usually no warning. Emergency services and law enforcement at every level
respond according to prior planning and the availability of resources. Military response occurs at four
levels:
z
At the direction of the governor for state National Guard forces.
z
A declaration by the President requested by the governor of the affected state.
z
At the direction of Service Secretaries for capabilities not assigned to the combatant
commanders (for example, bases and installations).
z
Through immediate response authority.
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Chapter 1
PROVIDE SUPPORT FOR DOMESTIC CHEMICAL, BIOLOGICAL, RADIOLOGICAL, NUCLEAR,
OR HIGH-YIELD EXPLOSIVES INCIDENTS
1-48. Since September 11, 2001, Americans understand the seriousness of an attack on the homeland by
terrorists. Congress created the Department of Homeland Security to meet this threat in the wake of the
attacks in 2001. The most dangerous threats to the homeland come from terrorist groups armed with
weapons of mass destruction. The majority of scenarios discussed in the National Response Framework
deal with accidental or deliberate threats posed by chemical, biological, radiological, nuclear, and high-
yield explosives. In the aftermath of an attack with a weapon of mass destruction, federal military and state
National Guard forces provide specialized capabilities and general-purpose forces in support of civil
authorities.
1-49. Not every chemical, biological, radiological, nuclear, or high-yield explosive threat is from terrorists,
or even manmade. Pandemic disease outbreaks (known as pandemics) fall under this civil support task. A
pandemic is a global disease outbreak. A pandemic occurs when a new disease emerges for which people
have little or no immunity and for which there is no vaccine immediately available. The disease spreads
easily person-to-person, produces serious illness, and can sweep across the country and around the world
in very short time. Pandemic influenza, for example refers to an influenza virus that infects humans across
a large area and proves very difficult to contain. The word “pandemic” may confuse people, particularly
those who equate it with mass casualties. Actually, the designation of pandemic does not relate to the
lethality of the disease, but its spread. Influenza outbreaks are always serious because the virus may mutate
into something more lethal as it spreads. Army support to pandemic response is both external and internal.
Externally, Army forces respond to lead federal and state agencies request for support in dealing with the
disease. Internally, Army installations take all applicable measures to maintain the combat readiness of the
force.
1-50. Other outbreaks of infectious disease may prove more serious than a contagious influenza. These
include animal diseases such as hoof and mouth disease and crop infestations caused by fungus, bacteria,
or viruses. In these incidents, the Army provides support when requested by state or federal agencies, such
as the Departments of Agriculture. Although technically not pandemics, these incidents could entail
significant support from DOD and the National Guard.
PROVIDE SUPPORT FOR DOMESTIC CIVILIAN LAW ENFORCEMENT AGENCIES
1-51. This task applies to the restricted use of military assets to support civil law enforcement personnel
conducting civil law enforcement operations within the United States and its territories. These operations
are significantly different from operations outside of the boundaries of the United States. Army forces
support civilian law enforcement under U.S. Constitutional and statutory restrictions and corresponding
directives and regulations. Army leaders must understand the statutes governing the use of military assets
for civil law enforcement. By understanding these statutes, Soldiers can avoid violating laws while
achieving desired objectives.
PROVIDE OTHER DESIGNATED SUPPORT
1-52. This task denotes pre-planned, routine, and periodic support not related to a disasters or emergencies.
Most often, this is support to major public events, and consists of participatory support, special
transportation, and additional security. These events are national special security events such as the
Olympics, an Inauguration, or a state funeral. Some missions may involve specific support requested by a
federal or state agency to augment their capabilities due to labor shortages or a sudden increase in
demands. Such support may extend to augmentation of critical government services by Soldiers, as
authorized by the President and directed by the Secretary of Defense. For example, President Reagan
replaced striking Air Controllers in the Federal Aviation Administration with like skilled military
personnel, until newly hired civilians completed training. Other presidents have used Soldiers to move coal
during strikes, or even take over key commercial enterprises when the President believed security
considerations justified such radical action.
1-14
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20 August 2010
The Domestic Environment
1-53. One of the missions that either federal military or state National Guard forces receive on a regular
basis is firefighting within state and national lands. This is a hybrid mission, sharing aspects of disaster
response and planned support to an agency or community. (See chapter 6 for more information about
firefighting missions.)
FUNDAMENTALS OF CIVIL SUPPORT OPERATIONS
1-54. A broad set of fundamentals applies to any of the civil support tasks and guides Army leaders at
every echelon. While every civil support mission is unique, these fundamentals shape the actions of
commanders and leaders in the accomplishment of any civil support mission. Army forces may or may not
be among the first organizations to arrive in an incident response operation. However, Army forces should
be among the first organizations to complete their tasks, transition responsibilities to civil agencies, and
leave. Civil support operations succeed when they create the conditions for civil authorities and
nonmilitary groups to carry on the effort without military support. The fundamentals of civil support are—
z
The primary purposes of civil support are to save lives, alleviate suffering, and protect property.
z
The law defines every aspect of civil support operations—who has jurisdiction, who responds,
and the restraints and constraints imposed on Soldiers.
z
Civilian officials direct civil support operations. They set the priorities. The Army supports
them.
z
All costs associated with civil support missions must be documented.
z
The military end state is reached when civilian authorities can fulfill their responsibilities
without military assistance
THE PRIMARY PURPOSES OF CIVIL SUPPORT ARE TO SAVE LIVES, ALLEVIATE SUFFERING,
AND PROTECT PROPERTY
1-55. While there are many potential missions for Soldiers as part of civil support, the overarching
purposes of these missions are, in order, to save lives, alleviate suffering, and protect property. Some
missions may accomplish these purposes directly. An aircraft crew participating in a search and rescue
operation is there to save lives. Regular Army Soldiers fighting fires in a National Forest are guarding
public property, as are the National Guard Soldiers patrolling streets in the aftermath of a tornado. Some
civil support missions accomplish these purposes indirectly. The Soldiers and civilians assisting with the
load-out of medical supplies that are being shipped from an installation to a municipal shelter will not meet
the citizens housed there, but their actions help reduce the distress of their fellow citizens. In the absence of
orders, or in uncertain and chaotic situations, each Soldier governs their actions based on these three
purposes.
THE LAW DEFINES EVERY ASPECT OF CIVIL SUPPORT OPERATIONS—WHO HAS
JURISDICTION, WHO RESPONDS, AND THE RESTRAINTS AND CONSTRAINTS IMPOSED ON
SOLDIERS
1-56. The law defines almost every aspect of civil support operations. It prohibits many Soldiers from
undertaking certain missions, in particular those associated with law enforcement. The law also specifies
professional requirements for skills such as medical treatment. Commanders should consult with the staff
judge advocate before authorizing Soldiers to execute any task outside of the mission received through the
chain of command.
1-57. Domestic operational environments are quite different from other environments outside the United
States because of U.S. law. Military forces operating in the domestic environment do not have a status-of-
forces agreement as they would when deployed overseas. Disregard of the laws regarding civil support can
cause military units to enter a legal minefield that will cripple mission accomplishment. Leaders at every
level ensure that their Soldiers comply with applicable U.S. law, even when it hampers rapid
accomplishment of the mission. For example, an Army unit storing or transporting ordnance and
ammunition may be subject to Environmental Protection Agency restrictions. Unless waived by legal
authority, laws restrict Army chaplains from conducting religious services for local citizens.
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1-15
Chapter 1
1-58. Every deploying headquarters requires a staff judge advocate or ready access to a staff judge
advocate. Army staff judge advocates know and assess the applicability of federal and state laws when
Army forces conduct civil support operations. Commanders concentrate particularly on legal limitations,
especially those concerning law enforcement support by Regular Army forces and Army National Guard
forces serving in Title 10 status. Unless there is an imminent risk to life or limb, commanders in doubt
about the legal consequences of an action ask their higher headquarters for clarification.
1-59. Crises can bring out the best and worst in human nature, including military forces. With this in mind,
military units, particularly early responding National Guard units, must be prepared to enforce the laws in
environments where civilians’ behavior is at its worst. The rules for use of force are restrictive, and leaders
review them with their subordinates before every mission. All personnel must understand the standing
rules for the use of force and any approved mission-specific rules for the use of force. The rules for the use
of force are the equivalent of the rules of engagement, except that they apply in domestic, noncombat
situations. The rules of engagement used in combat are permissive; the rules for the use of force are
restrictive. Commanders give the same emphasis to rules for the use of force as to rules of engagement in a
restrictive environment. Commanders always keep in mind that the first purpose of civil support is to save
lives; lethal force is always a measure of last resort. (Chapter 7 discusses legal restrictions on the use of
force. See also appendix B of JP 3-28.)
1-60. In civil support, military capability comprises—
z
The ability to perform a task effectively and efficiently.
z
The ability to perform a task safely.
z
The legal authority to perform a task.
1-61. Soldiers are mission-focused and trained to exercise initiative in combat. Even if they lack resources,
Soldiers often accomplish missions through non-doctrinal tactics, techniques, and procedures. Soldiers
make up for a lack of resources by combining anything at hand with unlimited effort. While effective, it is
inefficient. In civil support operations, commanders maintain a balance between the willingness of their
subordinates to tackle any mission against the capability to do it.
1-62. Safety and risk management are paramount. Soldiers sometimes attempt to perform tasks without the
appropriate training or equipment. In combat, their action may win the engagement. In civil support
operations, it could lead to a lawsuit, legal action, an injury, or all three. Therefore, commanders ensure
that Soldiers avoid improvising and adhere to all safety procedures. To illustrate, a collapsed building in
the aftermath of an earthquake becomes one of the most hazardous places imaginable. If Soldiers attempt
an improvised rescue, they may become victims themselves and kill the trapped survivors. Subsequent
investigations may assign liability to the commander that proceeded without authority.
CIVILIAN OFFICIALS DIRECT CIVIL SUPPORT OPERATIONS: CIVILIANS SET THE
PRIORITIES; THE ARMY SUPPORTS THEM
1-63. In civil support operations, the military works for the civilian agency. The command of military
forces remains within military channels, but missions begin as requests for assistance from the supported
civilian authorities. One of the biggest mistakes that tactical commanders may make is to assume that they
need to take charge upon arrival at the scene of an incident. Military forces operating freely within civilian
jurisdictions risk upsetting the balance between civilian authority and the private sector. While a
commander may view sidestepping local authority as a faster means of accomplishing the mission, long-
term recovery may be negatively affected. Commanders begin by viewing their areas of operations as a
mosaic of civil authorities, each with primacy in its jurisdiction. While the mission may constitute a
specific military task, commanders realize the end state requires that state, territorial, local, and tribal
authorities provide effective support to their citizens, with the assistance of military forces.
1-64. Military forces are not organized or equipped to operate efficiently within the domestic environment,
although they may be the most effective means of response early in an emergency. For example, a sapper
engineer unit can remove enough debris to clear emergency routes, but a commercial construction
company can usually do the job better, faster, and more cheaply when they arrive. In addition, the civilian
construction contributes to economic recovery by putting local businesses and people back to work.
1-16
FM 3-28
20 August 2010
The Domestic Environment
1-65. The primary civilian agency establishes the priority of effort in any civil support operation. At the
federal level, this is typically the Federal Emergency Management Agency. At the state level, it is the state
emergency management agency or equivalent. However, the civilian agencies do not issue orders to
military units. Military planners located within a multiagency command structure integrate federal and state
National Guard capabilities within priorities established by the primary agency. Typically, this is the
defense coordinating officer at the federal joint field office and the state director of military support
working with the state emergency manager. These individuals and their staffs ensure that military forces
receive the correct priority of effort, and then translate the civilian guidance into mission assignments.
1-66. Army forces, regardless of their duty status, plan to accomplish their tasks and hand over any
remaining tasks or duties to appropriate civil organizations as soon as feasible. Army forces complete their
missions and redeploy in the least amount of time needed civil authorities to resume providing for citizens
and carry on the response without military support. Federal military forces normally complete their tasks
before the end state of complete recovery. National Guard forces often experience a double transition. In
the first phase, they may take over missions previously assigned to joint federal military forces or National
Guard forces sent from other states. In the second phase, they support the transition to a fully civilian-run
recovery operation.
1-67. Because the National Guard of each state and territory builds relationships with its civilian
counterparts continuously, when National Guard forces arrive to support an incident response they usually
integrate with first responders very quickly. Federal forces benefit from the National Guard’s contacts to
develop amicable and efficient operations with local civil authorities.
ALL COSTS ASSOCIATED WITH CIVIL SUPPORT MISSIONS MUST BE DOCUMENTED
1-68. Another major distinction in domestic operations is the requirement for supported civilian agencies
to reimburse DOD for any support provided by joint forces. All civil support provided by DOD is provided
on a reimbursable basis unless otherwise directed by the President, or reimbursement is waived by the
Secretary of Defense. Cost reimbursement for civil support is usually according to Section 1535 of Title
31, USC, (commonly called the Economy Act), which mandates cost reimbursement by the federal agency
requesting support. The Robert T. Stafford Disaster Relief and Emergency Assistance Act (commonly
known as the Stafford Act) sets the guidelines for reimbursements to federal agencies and states from
federal funds set aside to support missions in response to a Presidential declaration. Federal law also
mandates that the States reimburse the Federal Emergency Management Agency for a portion (usually 25
per cent) of any request for assistance that is passed to the federal level. This requires detailed
documentation of what civil support state and federal military forces actually provided. Therefore, all
military forces engaged in civil support maintain a detailed record of operations, and not just direct
expenditures.
1-69. The practical effect on Army commanders is a requirement to document activities in much more
detail than they normally would outside the United States. In particular, commanders ensure they document
and report all transfers of equipment and supplies (including expendables) to another agency. As a rule,
battalion and higher units designate a responsible staff section to document all costs associated with civil
support missions and establish procedures for documenting costs within the unit. Subordinate leaders
ensure that their subordinates keep logbooks, automated documentation systems, and reports up-to-date.
Even in the initial response to a major catastrophe, leaders urge subordinates to record actions taken and
resources transferred from their unit to civilians and other military units.
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Chapter 1
THE MILITARY END STATE IS REACHED WHEN CIVILIAN AUTHORITIES CAN FULFILL
THEIR RESPONSIBILITIES WITHOUT MILITARY ASSISTANCE
1-70. The military end state for civil support missions, tactically and operationally, is based on the
capabilities of civilian authorities to discharge their responsibilities without military assistance. Measures
of effectiveness should be based upon civilian capability to perform a particular task without military
assistance. As soon as that threshold is achieved, commanders report it to the supported agency through the
military chain of command. This does not imply a complete return to normalcy; it means that civilian
resources can continue the mission. For example, an Army unit may be tasked to deliver food and water to
a community isolated by a disaster. As soon as the roads reopen, civilian relief organizations move in and
begin supplying necessities using contracted vehicles. Although communities are still recovering, civilians
can meet their most basic requirements without the military.
TRAINING FOR CIVIL SUPPORT OPERATIONS
1-71. Civil support operations require specialized training for military forces, although many of the tasks
implemented at the tactical unit level can be similar to some of the tasks conducted in stability operations.
Both focus on the civilians within an area of operations. Mission accomplishment depends on the success
of civilian agencies, and not on battlefield victory. Both stability and civil support operations stress the
employment of non-destructive means rather than the use of traditional lethal combat power that Soldiers
employ during combat operations against enemy forces. However, in other aspects, the two elements of full
spectrum operations are different. Operations conducted inside the borders of the United States require
Army forces to provide support to civilian agencies through a comprehensive approach laid out in national
doctrine and directives. Operations are constrained by different laws to a greater degree than prescribed by
the Law of Land Warfare and The Hague and Geneva Conventions. It is accurate to say that both stability
operations and civil support operations require similar capabilities—and achieve similar purposes—but
Soldiers conduct them under radically different conditions.
COMMON TASKS BY WARFIGHTING FUNCTION
1-72. FM 7-15 (The Army Universal Task List, known as the AUTL) identifies a comprehensive list of
Army tactical tasks (ARTs) and groups them into six warfighting functions. The warfighting functions
(ARTs 1 through 6) address movement and maneuver (ART 1), intelligence (ART 2), fires (ART 3),
sustainment, (ART 4), command and control (ART 5), and protection (ART 6). Additional larger tasks
appear under army tactical task (ART 7), which includes tactical missions, full spectrum operations, and
operational themes.
1-73. Appendix J of this manual compares the ARTs for stability and civil support operations. It also
highlights tasks unique to stability operations and those that exclusively belong to civil support. Trainers
should note that appendix omits the fires warfighting function, which does not contain ARTs directly
applicable to stability or civil support operations. Excluding the fires tasks, there is a
78 per cent
correlation between stability tasks and civil support tasks. That is, over three-fourths of the tasks units
execute in stability operations also occur in civil support operations. The reverse, tasks unique to civil
support, is currently very small (only five out of 630). The number of unique tasks will grow as forces
cycle through civil support missions and identify additional tasks for the AUTL. For example, civil support
operations require the unit to establish unclassified communication bridges between networks with federal,
state, and local agencies.
1-74. Although units will perform the same tasks in either stability or civil support, the conditions and
standards required for civil support operations will be different. For example, ART 7.3.1, establish civil
security, has 19 different measures. Army forces conducting civil support also support civil security, but
only in seven measures. The conditions and standards for the task are quite different for security provided
in civil support.
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FM 3-28
20 August 2010
The Domestic Environment
TRAINING PRIORITY FOR CIVIL SUPPORT TASKS
1-75. Commanders tasked to prepare for civil support missions assess their unit’s proficiency in three
warfighting functions; in order of priority, they are command and control, sustainment, and protection.
These three take priority because disasters usually occur without warning. The requirement to deploy into a
restrictive operational environment, and operate with joint and interagency elements requires a well-drilled
command and control system, with flexible Soldiers able to improvise and adapt systems intended for
combat into a robust civilian disaster response system based upon National Incident Management System.
The majority of missions given to Army forces in a disaster will stress the sustainment warfighting
functions. Mission success will hinge upon the units’ ability to deliver personnel, medical support,
supplies, and equipment, while maintaining their equipment and their Soldiers. This will normally occur in
an area devastated by a disaster and lacking potable water, power, and sanitation. This generates the third
priority, protection. Even without the threat of attacks by terrorists, a disaster area is a dangerous place. In
the event of a chemical, biological, radiological, nuclear, or high-yield explosives incident, it can become a
deadly environment for those without proper training and equipment. For those units that have a specific
chemical, biological, radiological, nuclear, or high-yield explosives mission, this function becomes their
top training priority.
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1-19
Chapter 2
A Comprehensive Approach for Civil Support
This chapter builds on the principles introduced in chapter 1. It describes the national
system for integration of all government agencies involved responding to domestic
emergencies. It gives an overview of the National Incident Management System and
the National Response Framework. After that, it clarifies responsibilities and
relationships among civil authorities, Department of Defense, and the Army. In
conjunction with defense support of civil authorities, the planning, policies, and
procedures established in the national policy documents provide a comprehensive
approach to civil support.
NATIONAL POLICY FOR DOMESTIC EMERGENCIES
2-1. The National Incident Management System (NIMS) establishes the national approach for incident
management across local, state, and federal levels. (All types of emergencies and disasters generally are
known as incidents.) In military terms, the NIMS contains the capstone doctrine for coordinated incident
management in the United States. The incident management systems described in the NIMS is the
foundation for the additional response procedures described in the National Response Framework (NRF).
The NIMS and NRF also provide the foundation for National Planning Scenarios, developed for a range of
threats from a terrorist nuclear attack to the outbreak of a deadly infectious disease. The Department of
Homeland Security (DHS) promulgates and updates the NIMS, NRF, and supporting planning documents.
The NIMS and NRF provide policy and guidance for federal agencies, including Department of Defense
(DOD). Federal agencies develop supporting plans that implement the requirements established in the
NIMS and NRF. Virtually all state, county, and city emergency managers use the NIMS and NRF.
2-2. The NIMS and NRF apply not only across all levels of government, but they also include military
forces and nongovernmental organizations. This policy forms a comprehensive approach for responding to
domestic emergencies. The NIMS and NRF provide guidance on how to achieve unity of effort across all
participating organizations.
2-3. Incident response is a federally planned but bottom-up system, usually progressing from local, to
state, to federal level as the magnitude of a particular incident exceeds the resources of the first responders.
This is known as a “tiered response.” Local first responders take initial action, whether an incident is a
routine small-scale emergency or a major disaster requiring further assistance. Initially, local, state, and
tribal officers rely on their own law enforcement, firefighting, and other resources, which may include the
state’s National Guard. Within each state, local chief executive officers
(such as mayors, county
commissioners, and tribal chief executive officers) assess the situation. If necessary, they request assistance
from a neighboring county or municipality. Normally, assistance from neighboring jurisdictions follows
established agreements. If an incident overwhelms these capabilities, the local civil authorities request state
assistance. If necessary, the governor requests federal support. Federal military installations near the
disaster may respond when asked by the local civil authorities (see chapter 3); in such instances, they may
be the first Soldiers at the scene of an incident.
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Chapter 2
2-4. The leaders of tribal nations have the right to request certain federal assistance directly, bypassing
the state in which tribal lands are located. In general, tribal nations have authority similar to state authority
for incident response operations. However, a request for a Presidential declaration under the Robert T.
Stafford Disaster Relief and Emergency Assistance Act (commonly known as the Stafford Act) must go
through the governor of the state.
2-5. Even though they support civilian authority, all military forces remain under the operational and
administrative control of their respective military chains of command. For the National Guard, this extends
upward through the state National Guard command structure to the governor. Regular Army, mobilized
Army Reserve, and Marine forces always remain under the command of the President through the
Secretary of Defense and through the supported combatant commander or Service secretary. Military units
support civilian organizations that follow the national policy in the NIMS and NRF
(described in
paragraphs 2-6 to 2-37), but Soldiers remain under military command and follow military doctrine,
including this manual. Thus, a joint task force providing civil support plans according to the principles and
processes described in Joint Publication (JP) 5-0. An Army brigade under operational control of a joint task
force follows the Army operations process—plan, prepare, execute, and assess—and uses the military
decisionmaking process. Similarly, Army forces exercise command and control through their existing
structures; they do not modify their operations center to conform to the NIMS. However, they adapt their
procedures and liaison arrangements to interface with their civilian counterparts.
THE NATIONAL INCIDENT MANAGEMENT SYSTEM
2-6. The NIMS has five components: preparedness, communications and information management,
resource management, command and management, and ongoing management and maintenance. This
discussion highlights the central construct of the NIMS—the command and management component.
Individual responders and agencies manage and coordinate their efforts using these flexible elements of the
NIMS command and management component:
z
The incident command system.
z
Multiagency coordination systems.
z
Public information.
z
NIMS planning process. Broadly similar to the military decision making process, the NIMS
planning process guides responders in each tier as they respond to the situation with an incident
action plan.
This field manual does not provide an exhaustive discussion of the NIMS. For the complete document, see
the Federal Emergency Management Agency (FEMA) Web site at http://www.fema.gov.
Incident Command System
2-7. The NIMS establishes the incident command system as the standardized organizational structure for
managing all domestic incidents. The incident command system includes common terminology, modular
organization, management by objectives, reliance on an incident action plan, manageable span of control,
and integrated communications (see the NIMS document online for a thorough discussion). Every incident
command organization shares these characteristics, but each incident command structure adapts to the
requirements of situation. In the immediate aftermath of any incident, local responders arrive first on the
scene. First responders normally include law enforcement, fire, emergency medical services, and hazardous
materials teams. At the incident site, local authorities organize the various responders based on the incident
command structure.
2-8. Civilian incident management terms such as single incident command, unified command, and area
command (explained further later in this chapter) do not include the idea of giving and receiving military
orders. A civilian incident commander directs subordinates within his or her chain of authority. However,
for the most part, this civilian commander manages other participating organizations and individuals. In
this civilian usage of command—within a multiagency environment—groups and individuals generally
carry out tasks they are willing to perform. Therefore, Army leaders adapt their leadership style not only to
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FM 3-28
20 August 2010
A Comprehensive Approach for Civil Support
cooperate fully with other groups, but also to encourage cooperation among all participating organizations
and individuals. Army leaders keep in mind that they serve in a supporting role.
2-9. The incident command system prescribes five major functional areas: command, operations,
logistics, planning, and finance. As required, information and intelligence functions are located in the
planning section. However, if the situation warrants, the incident command system recommends that the
organization break intelligence out as a sixth functional area. The incident command system is flexible to
accommodate all circumstances including floods, hazardous material accidents, aircraft crashes, or
earthquakes—it is an all-hazards system. It is flexible enough to manage catastrophic incidents involving
thousands of response personnel; several levels of command are possible. Options include a single incident
command structure, a unified command structure, and an area command.
2-10. A single incident command structure refers to situations in which one incident commander has
manageable span of control. The single incident commander is normally the senior responder of the local
civilian organization with the responsibility for the incident, such as a fire chief or police chief. When there
is only one incident commander, he or she establishes an incident command post at a safe distance from but
not near the scene of the emergency to direct operations.
2-11. The incident command system provides the flexibility for agencies to coordinate and combine any
number of independent efforts in an effective and efficient response. Based on the situation, a unified
command structure enables agencies with different legal, geographic, and functional responsibilities to plan
and coordinate operations. In a unified command structure, the individuals designated by their
jurisdictional authorities jointly determine objectives, plans, and priorities and work together to execute
them. By working as a team, the unified command overcomes much of the inefficiency and duplication of
effort that can occur when agencies from different functional and geographic jurisdictions, or agencies at
different levels of government, operate without a common organizational framework.
2-12. The primary difference between the single incident command structure and the unified command
structure is that in a single incident command structure, one incident commander is solely responsible for
establishing incident management objectives and strategies. Unified command strives for unity of effort as
all responding agencies and organizations support the unified command without giving up individual
agency authorities, responsibilities, or accountability.
2-13. An incident large enough to require federal military support will usually be multijurisdictional and
use a unified command structure. In addition, a very large or complex incident may have separate incident
command organizations (any combination of single or unified commands). The primary federal agency
may establish an area command to coordinate separate incident commands responding to a larger
emergency. (State authorities managing a complex, multijurisdictional response without federal assistance
may also use an area command.) An area command does not have operational responsibilities—it is a
management organization. Its functions include setting priorities, allocating resources according to
established priorities, ensuring effective communications, and ensuring that incident management
objectives are met and do not conflict with each other or with policy. (An area command becomes a unified
area command when it is managing more than one multijurisdictional incident. This is different from a
unified command responding to a single multijurisdictional incident.)
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2-3
Chapter 2
Incident Command Staff
2-14. When an incident requires a team of responders, the incident commander establishes an incident
command post as close to the incident as practical. In a small incident command post, the incident
command staff typically includes a public information officer, a safety officer, and a liaison officer.
Depending on the nature of the incident, the incident commander adds additional staff support as needed.
The incident command staff typically consists of operations, planning, logistics, and finance and
administration section chiefs. These individuals, along with an incident commander (or unified command)
and other qualified emergency management personnel, are known as an incident management team. Figure
2-1 illustrates the incident command staff developed by NIMS. (See appendix I for more details about the
incident command staff sections.)
Figure 2-1. NIMS incident command staff
2-15. The incident command staff has three sections identified as command staff. These are the public
information officer, the safety officer, and liaison officer. The public information officer is responsible for
interfacing with the public, the news media, and other agencies with incident-related information. The
public information officer assembles accurate, accessible, and complete information on the incident’s
cause, size, and current situation, the resources committed, and other matters of general interest for both
internal and external audiences. The safety officer monitors incident operations and advises the incident
command on all matters relating to operational safety. The safety officer is responsible for developing the
incident safety plan. The incident safety plan is a set of systems and procedures for ongoing assessment of
hazardous environments, coordination of interagency safety efforts, and implementation of measures to
promote incident personnel safety, as well as the general safety of incident operations. The liaison officer is
the incident command’s point of contact for representatives of governmental organizations,
nongovernmental organizations, and private sector organizations. The liaison officer provides information
on the incident command's policies, resource availability, and other incident-related matters. In either a
single or unified command structure, representatives from cooperating organizations coordinate through
the liaison officer.
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A Comprehensive Approach for Civil Support
2-16. An incident complex refers to two or more incidents located in the same general area and assigned to
a single incident command or a unified command. This management system is used when multiple
incidents, such as separate fires burning relatively close together, are more efficiently managed by one
incident command system organization.
Multiagency Coordination Systems
2-17. Multiagency coordination systems are flexible coordination processes established among related
groups of supporting organizations in response to specific incidents. These organizations normally
coordinate resources above the field level. The two most common elements of NIMS multiagency
coordination systems are multiagency coordination groups and emergency operations centers.
2-18. A multiagency coordination group is an ad hoc coordination group usually consisting of
administrators, executives, or their representatives. They commit agency resources and funds to support an
incident response. Multiagency coordination groups establish coordination procedures
(systems) that
bridge members’ jurisdictional lines and disciplines to support operations on the ground. Multiagency
coordination groups communicate and coordinate with the incident command or unified command, usually
by placing personnel at or near an emergency operations center (see figure 2-2).
2-19. An emergency operations center is a facility where the coordination of information and resources to
support on-site incident management activities normally occurs. An emergency operations center may be a
relatively small, temporary facility or a permanently established facility. Many cities, most counties, and
most states have permanent emergency operations centers. These may be organized by major functional
disciplines (such as fire, law enforcement, and medical services), by jurisdiction (such as federal, state,
regional, county, city, and tribal), or by some combination (see JP 3-41). Emergency operations centers are
called by a variety of different names. An emergency operations center normally includes a full incident
command staff performing coordination; communications; resource allocation and tracking; and
information collection, analysis, and dissemination. An emergency operations center serves as a central
communication point between organizations participating in the incident command system and multiagency
coordination groups. In a complex operation, several emergency operations centers may be operating at
different jurisdictional levels. An area command may interface between several incident command posts
and an emergency operations center. Figure 2-2 illustrates how an emergency operations center coordinates
support for an area command. Figure 2-3, on page 2-6, illustrates an expanded response with several
operations centers supporting an incident commander.
Figure 2-2. Example of NIMS command and management structure
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Chapter 2
Figure 2-3. Expanded command and coordination under NIMS
Public Information
2-20. In the NIMS, public information refers to flexible processes, procedures, and systems used by
incident managers to communicate timely, accurate, and accessible information about an incident to the
public, responders, and additional stakeholders. In a large, multiagency incident response, the NIMS public
information system includes a public information officer, a joint information system, and a joint
information center. (The word “joint” means interagency in this context.) A civilian public information
officer supports the incident command and management structure as a member of the command staff (refer
to figure 2-2).
2-21. A multiagency joint information center (a feature of the NIMS communications and information
management component) serves as the central location for exchanging public information. A large incident
may require more than one joint information center. This component emphasizes the need for a common
operating picture (similar to the common operational picture in Army doctrine) and interoperability of
systems and components. Participating organizations cooperate to establish communications
interoperability and standardize their types of communication and their equipment. (See appendix K for
more information about media considerations.)
The National Incident Management System Planning Process
2-22. The NIMS describes a planning process for developing an incident action plan. Army officers should
be familiar with the NIMS planning process to synchronize planning with civilian counterparts. The NIMS
planning process represents a template for planning that includes all steps that an incident commander or
unified command and other members of the command and general staffs should take to develop and
disseminate an incident action plan. A clear, concise incident action plan template is essential to guide the
initial incident management decision process and the continuing collective planning activities of incident
management teams.
2-23. The process contains five primary phases that are designed to enable the accomplishment of incident
objectives within a specified time. The planning process may begin with the scheduling of a planned event,
the identification of a credible threat, or the initial response to an actual or impending incident. The process
follows a series of formalized steps for developing a written incident action plan.
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A Comprehensive Approach for Civil Support
2-24. The incident action plan must provide clear strategic direction and include a comprehensive listing of
the tactics, resources, reserves, and support required to accomplish each overarching incident objective.
The comprehensive incident action plan states the sequence of events for achieving multiple incident
objectives in a coordinated way. However, the incident action plan is a living document that is based on the
best available information at the time of the planning meeting. Planning meetings should not be delayed in
anticipation of future information.
2-25. The primary phases of the planning process are essentially the same for the incident commander who
develops the initial plan, for the incident commander and operations section chief revising the initial plan
for extended operations, and for the incident management team developing a formal incident action plan.
During the initial stages of incident management, planners should develop a simple plan that can be
communicated through concise oral briefings. Frequently, this plan must be developed very quickly and
with incomplete situation information. As the incident management effort evolves, additional lead time,
staff, information systems, and technologies enable more detailed planning and cataloging of events and
lessons learned.
2-26. The five primary phases in the planning process are—
z
Understand the situation.
z
Establish incident objectives and strategy.
z
Develop the plan.
z
Prepare and disseminate the plan.
z
Execute, evaluate, and revise the plan.
Understand the Situation
2-27. The first phase includes gathering, recording, analyzing, and displaying situation, resource, and
incident-related information to facilitate increased situational awareness of the magnitude, complexity, and
potential impact of the incident. In this phase, the goal is to determine the resources needed to develop and
implement an effective incident action plan.
Establish Incident Objectives and Strategy
2-28. The second phase includes formulating and prioritizing measurable incident objectives and
identifying an appropriate strategy. The incident objectives and strategy must conform to the legal
obligations and management objectives of all affected agencies; they may need to include specific issues
relevant to critical infrastructure. Reasonable alternative strategies that will accomplish overall incident
objectives are identified, analyzed, and evaluated to determine the most appropriate strategy for the
situation at hand. Evaluation criteria include public health and safety factors, estimated costs, and various
environmental, legal, and political considerations.
Develop the Plan
2-29. The third phase involves determining the tactical direction and the specific resources, reserves, and
support requirements for implementing the selected strategies and tactics for the operational period. Before
the formal planning meetings, each member of the command and general staffs is responsible for gathering
certain information to support the proposed plan.
Prepare and Disseminate the Plan
2-30. The fourth phase involves preparing the plan in a format that is appropriate for the level of
complexity of the incident. For the initial response, the format is a well-prepared outline for an oral
briefing. For most incidents that will span several operational periods, the plan will be developed in writing
according to incident command system procedures.
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Chapter 2
Execute, Evaluate, and Revise the Plan
2-31. The planning process includes the requirement to execute and evaluate planned activities and check
the accuracy of information to be used in planning for subsequent operational periods. The general staff
should regularly compare planned progress with actual progress. When deviations occur and when new
information emerges, it should be included in the first step of the process used for modifying the current
plan or developing the plan for the subsequent operational period.
THE NATIONAL RESPONSE FRAMEWORK
2-32. The NRF replaced the earlier National Response Plan in 2004 as the all-hazards doctrine for
managing domestic incidents. It elaborates the principles in the NIMS, focusing on prevention,
preparedness, response, and recovery. It provides the structure and mechanisms for coordinating federal
support to state and local incident managers and for exercising federal authorities and responsibilities based
on the NIMS.
2-33. The NRF emphasizes a tiered response structure, with the lowest possible jurisdictional level
retaining incident management responsibility. Figure 2-4 illustrates tiered response. Local authorities
provide the initial response to every incident, including manmade and natural disasters. When local
authorities are overwhelmed, they request assistance from neighboring jurisdictions. When incidents are of
such a magnitude that these resources are overwhelmed, local authorities request resources from the state.
The state then draws on its own internal emergency response capabilities or requests assistance from
neighboring states through mutual-aid agreements. States often deal with large and devastating events this
way without any federal assistance. When state resources are overwhelmed, the governor requests federal
support. Paragraphs 2-38 to 2-79 discuss tiered response in detail.
Figure 2-4. An overview of tiered response under the National Response Framework
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2-34. The NRF establishes a systematic and coordinated approach to incident response at the field,
regional, and federal headquarters levels. It establishes protocols for such activities as reporting incidents,
issuing alerts and notification, coordinating response actions, and mobilizing resources. Though the NRF
generally seeks to preserve the primary role of state and local bodies as first responders, it recognizes
catastrophic events will require a federal government response.
The Five Principles of the National Response Framework
2-35. According to the NRF, the overarching objectives for incident response center on saving lives,
reducing suffering, and protecting property and the environment. Five key NRF principles of operations
are the basis of the overarching objectives:
z
Leaders at all levels communicate and actively support engaged partnerships (cooperation) by
developing shared goals and aligning capabilities so no one is overwhelmed in times of crisis.
z
Incidents are managed at the lowest possible jurisdictional level and supported by additional
capabilities when needed, through a tiered response.
z
As incidents change in size, scope, and complexity, the response is adapted to meet
requirements through scalable, flexible, and adaptable operational capabilities.
z
Organizations participating in a multiagency or multijurisdictional response achieve unity of
effort through unified command.
z
Individuals, households, communities, and governments maintain readiness to act balanced with
an understanding of risk.
Emergency Support Function Annexes
2-36. A key component of the NRF is the emergency support function annexes (referred to as emergency
support functions or ESFs). The ESFs group federal resources and capabilities into fifteen support
categories most likely needed for national incident response. ESFs outline responsibilities agreed to by
each participating entity. Each ESF designates one entity as the ESF coordinator (sometimes referred to as
the lead). Each ESF also has primary and supporting agencies. Table 2-1, pages 2-9 to 2-11, lists the ESFs
with the ESF coordinator for each. Below each ESF coordinator are the specific functions organized in that
annex. DOD is a supporting agency for 14 of the 15 ESFs, and the ESF coordinator for only one—ESF #3,
Public Works and Engineering (United States Army Corps of Engineers). The ESF coordinators work
through a regional defense coordinating officer and a federal coordinating officer to obtain federal military
support under each ESF.
Table 2-1. Emergency support function annexes (ESFs)
ESF #1: Transportation
ESF #1 Coordinator: Department of Transportation
•
Aviation/airspace management and control
•
Transportation safety
•
Restoration and recovery of transportation infrastructure
•
Movement restrictions
•
Damage and impact assessment
ESF #2: Communications
ESF #2 Coordinator: Department of Homeland Security (Federal Emergency Management Agency)
•
Coordination with telecommunications and information technology industries
•
Restoration and repair of telecommunications infrastructure
•
Protection, restoration, and sustainment of national cyber and information technology resources
•
Oversight of communications
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Chapter 2
Table 2-1. Emergency support function annexes (ESFs), continued
ESF #3: Public Works and Engineering
ESF #3 Coordinator: Department of Defense (United States Army Corps of Engineers)
•
Infrastructure protection and emergency repair
•
Infrastructure restoration
•
Engineering services and construction management
•
Emergency contracting support for life-saving and life-sustaining services
ESF #4: Firefighting
ESF #4 Coordinator: Department of Agriculture (United States Forest Service)
•
Coordination of federal firefighting activities
•
Support to wild land, rural, and urban firefighting operations
ESF #5: Emergency Management
ESF #5 Coordinator: Department of Homeland Security (Federal Emergency Management Agency)
•
Coordination of incident management and response efforts
•
Issuance of mission assignments
•
Resource and human capital
•
Incident action planning
•
Financial management
ESF #6: Mass Care, Emergency Assistance, Housing, and Human Services
ESF #6 Coordinator: Department of Homeland Security (Federal Emergency Management Agency)
•
Mass care
•
Emergency assistance
•
Disaster housing
•
Human services
ESF #7: Logistics Management and Resource Support
ESF #7 Coordinator: General Services Administration and Department of Homeland Security (Federal
Emergency Management Agency)
•
Comprehensive, national incident logistics planning, management, and sustainment capability
•
Resource support (facility space, office equipment and supplies, contracting services, and others)
ESF #8: Public Health and Medical Services
ESF #8 Coordinator: Department of Health and Human Services
•
Public health
•
Medical
•
Mental health services
•
Mass fatality management
ESF #9: Search and Rescue
ESF #9 Coordinator: Department of Homeland Security (Federal Emergency Management Agency)
•
Life-saving assistance
•
Search and rescue operations
ESF #10: Oil and Hazardous Materials Response
ESF #10 Coordinator: Environmental Protection Agency
•
Oil and hazardous materials (chemical, biological, radiological, and nuclear) response
•
Environmental short- and long-term cleanup
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