prepared for disaster, dod immediate response authority ira brief leshinsky 11 dec 06

8/8/2019 Prepared for Disaster, DOD Immediate Response Authority IRA Brief Leshinsky 11 Dec 06

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Prepared for Disaster?

Improving the DODs Immediate Response Authority

Major Eric Leshinsky, USAF

Student, Homeland Security and Defense

Naval Postgraduate School, Monterey CA


2/27

OVERVIEW

Homeland Security/Defense National Goals and Objectives

The National Preparedness System and Scenarios

Defense Support to Civilian Authorities (DSCA) Overview

DSCA and the DODs Immediate Response Authority (IRA)

Why should the DoD have an IRA provision?

Historical Look

Legal and Other Issues

Current Barriers to IRA Effectiveness

The Road Ahead Improving the DODs IRA


3/27

Goal #1 (should be) ~ Learn from disasters (such as: Oklahoma City

Bombing/911/Katrina) and address preparedness and capability gaps at

local/state/federal levels

Emergency Preparedness and Response~

We must prepare to minimizethe damage and recover from any future terrorist attacks that may occur

despite our best efforts of prevention.

An effective response to a major terrorist incident--as well as natural

disasters--depends on being prepared. (Ref: National Strategy for Homeland Security, 2002)

National Goals and Objectives

Are we prepared?

and

How can we improve?

Are we prepared?

and

How can we improve?


4/27

Homeland Security (HS) ~A concerted national effort to prevent terrorist

attacks within the U.S., to reduce vulnerability to terrorism, and to

minimize the damage and recover from attacks that do occur. DHS is the

lead federal agency (LFA) for incident management in the United States.(Ref: National Strategy for Homeland Security, 2002)

Homeland Defense (HD) ~ 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. The

DOD is responsible for homeland defense.(Ref: Office of the Undersecretary of Defense for Homeland Defense, 2006)

Definitions & Lead Federal Agencies

Could the DOD be a LFA for HS

if so, when?

Could the DOD be a LFA for HS

if so, when?


5/27

Homeland Security- Scenarios

(1) A military commander receives a request from a local emergency management

officer to send fire trucks off base to help fight a large grass fire that threatens

northern neighborhoods of a city.

(2) A tornado has just hit a city 20 miles from a DoD installation. The city mayor

has requested local DoD medical, fire, and manpower support to help save lives

and mitigate human suffering.

(3) A bomb has exploded and destroyed a local government building. The city

police chief has asked a nearby DoD facility to send security personnel to help

secure the site and assist local police secure other local critical infrastructure.

Can the DoD respond?

Can the DoD respond?


6/27

Through the DoDs IRA provision, local military commanders (and

responsible officials of other DOD Components) are authorized to takenecessary action to respond to requests of civil authorities.

IRA actions are authorized when imminently serious conditions

necessitate immediate action to save lives, prevent human suffering

,

mitigate great property damage.

(Ref: DOD Directives 3025.1 and 3025.15, Stafford Act (42 USC 5121), and The National Response Plan)

YES!

YES!


7/27

Homeland Security- Scenario

A major hurricane has just hit a major U.S. geographical area

Local/State first response is haphazard and/or overwhelmed

The federal government is awaiting official requests for assistance

Media coverage of the area depicts massive property damage and great human

death and ongoing pain/suffering

A DoD installation is less then 100 miles from an area hard hit. The installation

has medical, fire, security, logistical equipment and personnel ready to respond.

The installation commander has not received a request for assistance.

Can the local DoD installation

respond? NO!


8/27

Federal Framework and Military

Domestic OperationsNational Strategic Objectives for HS (in order of priority)

1) Prevent terrorist attacks within the U.S.

2) Reduce Americas vulnerability to terrorism

3) Minimize the damage and recover from attacks that do occur(Ref: National Strategy for Homeland Security)

Federal Disaster Preparedness and Response

DHS is the lead federal agency

Responsible for NRP, NIMS, and Preparedness Goals (IAW HSPD 5/8)

DOD Disaster Preparedness and Response

The U.S. military has remained a major resource!

Organizations (ASD-HD, JCS, COCOMs, Services, EPLOs)


9/27

Federal Framework and Military

Domestic OperationsDOD Disaster Preparedness and Response Primary Military Guidance: Strategy for HD/CS; J-Pub 3-26,

Homeland Security; DoD 3025.1-M, Manual forCivil Emergencies;other DoD Directives

Homeland Defense/Civil-Support Objectives (in order of priority)

1) Achieve maximum awareness of potential threats

2) Deter, intercept, and defeat threats at a safe distance

3) Achieve mission assurance

4) Support civil authorities in minimizing damage from CBRNE attacks

5) Improve national/international capabilities for HD and HS(Ref: Strategy for HD and Civil Support)

Disaster Response Mechanisms

1) DSCA Construct (JDOMS, COCOM, JTFs, Military Services, EPLOs)

2) Local DOD Units (under the DODs Immediate Response Authority)


10/27

Immediate Response Authority(Current Rules of Engagement)

Local/State Civil Authorities must provide official verbal orwritten request for assistance (verbal must be later provided inwriting)

Requests may be made to the nearest DOD Component ormilitary commander

Commanders do not need to seek higher approval authoritydue to imminently serious conditions

Commanders should advise Higher HQ ASAP

Support should be provided on a cost-reimbursable basis ifpossible, but inability/unwillingness to reimburse should not

result in delaying or denying response Period of support should normally not exceed 72 hrs

(Ref: DoD Directives 3025.1 and 3025.15)


11/27

Immediate Response Authority

All requests by civil authorities for DOD assistance shall be

evaluated by approval authorities against the following criteria:

Legality (compliance with laws)

Lethality (potential use of force by or against DOD forces)

Risk (safety of DOD forces)

Cost (who pays, impact to DOD budget)

Appropriateness (whether the mission is in the best interest for theDOD to conduct)

Readiness (impact on DODs ability to perform primary mission)

(Ref: DOD Directive 3025.15)

However, DOD assistance under IRA

should not be delayed!

However, DOD assistance under IRA

should not be delayed!


12/27


IRA may include DOD assistance to meet the following types of needs:

Rescue, evacuation, and emergency medical treatment of casualties, maintenance orrestoration of emergency medical capabilities, and safeguarding the public health.

Emergency restoration of essential public services (including fire-fighting, water,communications, transportation, power, and fuel).

Emergency clearance of debris, rubble, and explosive ordnance from public facilitiesand other areas to permit rescue or movement of people and restoration of essentialservices.

Recover, identification, registration, and disposal of the dead

Monitoring and decontaminating radiological, chemical, and biological effects;controlling contaminated areas; and reporting through national warning and hazardcontrol systems

Roadway movement control and planning

Safeguarding, collecting, and distributing food, essential supplies, and materiel onthe basis of critical priorities

Damage assessment

Interim emergency communications

Facilitating the reestablishment of civil government functions

(Ref: DOD Directive 3025.1)


13/27

Disaster Relief Storms Earthquakes

Floods

Ice and Snow

National Preparedness System

(Lead Federal Agencies)

Maritime Security Wildland Firefighting

Air/Sea Disasters

Disease Eradication

Radiological Accidents

Postal Augmentation

Incident Management Civil Disturbances

Mass Migration

Counter-Drug


14/27

Homeland Security/Defense clearly

requires a total federal effort

Bottom-line Goal: Protect America and its people

prior to, during, and after disasters strike!

Bottom-line Goal: Protect America and its people

prior to, during, and after disasters strike!


15/27

DODs Role in Homeland

Security/Defense is Critical

Extraordinary

Circumstances

DomesticDisaster Relief

DomesticCivil Support

CounterNarcoticsCounter Terrorism

CBRNEConsequenceManagement

SpecialEvents

Execute OPLANS

TemporaryCircumstances

Emergency

Circumstances

DoDs #1Priority

Unique Area ofResponsibility

SpecializedCapabilities

DODs Roles/Mission/Priorities may need

to become more balanced across thespectrum of HS and HD!

DODs Roles/Mission/Priorities may need

to become more balanced across thespectrum of HS and HD!


16/27

DisasterDisaster

Local Government

Response

State Government

Response

National Response Framework

FEMA Activates

National Response Plan

27 Federal Agencies

FEDERALCOORDINATING

OFFICER (FCO)

DoDDoD

JDOMS

NORTHCOM/PACOMNORTHCOM/PACOM(JFCOM)(JFCOM)

JTF

CMDR

Defense Coordinating Officer (DCO)

ASD / HD

NORTHAF / PACAF1AF

JFACC / COMAFFOR

NORTHAF / PACAF1AF

JFACC / COMAFFOR

AF ProvidersAF Providers

President Declares

Emergency

FEMA NationalAdvises

President

DEPLOYES FORCES

Requests Federal Assistance

(RFA)

Governor

StateCoordinating

Officer(SCO)

FEMA Region

Advises

Governor

Federal Response and Assistance

Critical Problem: Time (First 72hrs)

Partial Solution: IRA


17/27

Presidential DeclarationCommanders Decision

Event

Immediate

Response

10 Day

Rule

Military Only

MOU/MOA

Disaster/

Emergency

NRP

The DoD actually has a

2-Tier Disaster Response Capability

Save Lives

Mitigate Great Prop Damage

Prevent Human Suffering

Installation Level


18/27

Tasking Flowchart

Local/State/Fed Agency

Request for Assistance

Immediate

Response Requested?

DOD

Installation

Must Consider if Actions will:

Save lives

Prevent human suffering

Mitigate great propertydamage

No

Yes

Declared

Disaster?

No

DCO

JDOMS

ASD/HD

JDOMS

NORTHCOM

DOD ComponentHQ/Element

Yes


19/27

The Future of DODs


Critical Challenge: Integrated Use of Military Capabilities

Recommendation #23:

DOD should revise its Immediate Response Authority (IRA) policy

to allow commanders, in appropriate circumstances, to exerciseIRA even without a request from local authorities. DOD should

work with DHS and State officials to improve integration of military

response capabilities.(Ref: The Federal Response to Hurricane Katrina--Lessons Learned, Feb 06)

Is the DoD prepared for this role/mission?Is the DoD prepared for this role/mission?


20/27

Why Should the DoD have an

Immediate Response Authority?

Fills a critical capabilities gap in immediate

responses to domestic emergencies!

Fills a critical capabilities gap in immediate

responses to domestic emergencies!

Long history of domestic consequence mgmt/DSCA

Capabilities unlike no other (A/C, UAV, logistics, etc.)

Huge federal force (~3M)

Huge footprint (2,900 DOD sites in all 50 states) Critically trained (SABC, Firefighting, SF, Comm, etc.)

Critical experience (IEDs, terrorist tactics, threat

working groups, M.A.R.Es, etc.)

Trained to deploy (Recalls, deployment lines, etc.)


21/27

What Are the Current Barriers &

Challenges to Effective IRA?

STRATEGIC POLICIES/GUIDANCE

DOD directives governing IRA are outdated (1993/1997)

DOD guidance is lacks critical details/guidance

Civilian authority requester/DOD approval authority is too broad

AORs are not defined and/or de-conflicted Limited reference in the National Response Plan (NRP)

DOD Planning is not centralized (NORTHCOM does not oversee or

manage IRA; dependent on services to oversee and supplement)

IRA Familiarization both w/in Federal agencies (DOD/FEMA/DHS)

and State/Local agencies (elected officials, state/local EMO, first

responders) 28% of U.S. Cities do not have IRA plan (183 cities polled/Jul 06)

OPERATIONAL/TACTICAL ISSUES

MOU/As will vary by base/service (needs to be standardized)

Transformation and civilian labor contracts may limit response

DOD mission comes first what if CI is impacted or lives at stake?


22/27


(Actions for Today) Improve effectiveness of the DODs IRA

Clarify IRA ROEs

Expand IRA guidance in NRP

Expand IRA planning and DOD participation in National Incident

Management (NIMS) and Command Systems (ICS)

Provide training/handbook to civil authorities and DODpersonnel (commanders, on-scene commanders, and personnel)

Ensure all local critical infrastructure is included in MOU/As

Centralize oversight and chain-of-command of IRA

USNORTHCOM/USPACCOM (Planning/Training/Inspections)

Clarify AORs, standardize MOU/As, and mandate mutual aid

agreements between all DOD installations/agencies within AORs to

improve unity of effort/reduce potential duplication of response

Evaluate the role/effectiveness of current DSCA liaison positions


23/27


(Actions for Today) Mandate local IRA planning, training and exercises

Establish lessons learned/best practice forums/database

Evaluate and address legal issues related to IRA

Mandate DOD installations identify and posture IRA response teams

of various size and capabilities (i.e. Air Force Augmentee Program)

DOD should oversee armed services transformation efforts and

evaluate its potential impact on Homeland Security missions,

including IRA

NORTHCOM should consider adopting PACCOMs JTF-HD concept

of operations: Concept involves organizing all military facilities and

infrastructure in Hawaii into "Base Clusters" to facilitate planning,

prioritization of efforts, and coordination with civilian agencies.


24/27


(Actions for the Future) Continue to refine IRA doctrine, planning, training, and preparedness

Do local/state first responders always need to be overwhelmed?

Are official civilian requests always necessary/appropriate?

Will DOD mission priorities always take priority over response?

Does IRA end once a federal disaster has been declared?

Evaluate reimbursement policies related to DSCA (including IRA)

Federal budgeting may help improve IRA effectiveness

HS grants should mandate DOD participation/coordination

Continue to evaluate and assign specific DOD units for HomelandSecurity roles/missions, as needed

Future BRAC criteria should include impact to IRA operations

Continue to examine what different roles/missions will be assigned to

the Active, NG, and Reserve components (including DOD civilians)


25/27

Natural Disasters:

Hurricane, Tornado, Flood/Drought, Earthquake, Tsunami, Fire

Multiple-events

Homeland Security

(Potential Future Scenarios)

Manmade Disasters:

Conventional attacks by state/non-state actors

Multiple terrorist attacks (IEDs, shopping centers, Snipers)

Chemical/biological/nuclear mishap

Riots

OurNational Response

System must be Ready!

OurNational Response

System must be Ready!


26/27


BOTTOM-LINE:

The DOD currently plays a direct and vital role

as a first responder to domestic disasters(natural and manmade) through the DODs

Immediate Response Authority!

We must be better prepared for the nextKatrina, 9/11, or ????

BOTTOM-LINE:

The DOD currently plays a direct and vital role

as a first responder to domestic disasters(natural and manmade) through the DODs

Immediate Response Authority!

We must be better prepared for the nextKatrina, 9/11, or ????


27/27


???

prepared for disaster, dod immediate response authority ira brief leshinsky 11 dec 06

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