Developing and Maintaining Emergency Operations Plans ...

Developing and Maintaining Emergency Operations Plans

Comprehensive Preparedness Guide (CPG) 101 September 2021, Version 3.0

Comprehensive Preparedness Guide 101

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Comprehensive Preparedness Guide 101

Preface

Comprehensive Preparedness Guide (CPG) 101 provides guidance from FEMA on the fundamentals of planning and developing emergency operations plans. The guide describes the steps to produce an emergency operation plan, possible plan structures and components of a base plan and its annexes. Other FEMA guides provide detailed information about planning considerations for specific functions, hazards and threats.1

CPG 101 is a key resource in the emergency management community. While much of the core content in CPG 101 Version 2.0, released in 2010, remains fundamentally valid, a refresh of the document allows for inclusion of additional concepts, principles and strategies. The updated content in CPG 101 Version 3.0 is based on practitioner feedback, identified lessons learned and successful practices from real-world events and exercises that can inform the planning process.

CPG 101 shows how emergency operations plans connect to planning efforts in all five mission areas2. Version 3.0 of this guide emphasizes the importance of including the private and nonprofit sectors in planning activities and incorporates lessons learned as well as pertinent new doctrine, policy and laws.3

The guide provides methods for planners to:

Conduct community-based planning to engage the whole community through a planning process that represents the actual population in the community and involves community leaders and the private sector;

Develop plans by identifying and analyzing risk;

Identify operational assumptions and resource demands;

Prioritize plans and planning efforts to support the transition from development to execution for any threat or hazard; and

Integrate and coordinate efforts across all levels of government, the private sector and nonprofit organizations.

1 For more information, see FEMA's Planning Guides resource page at . 2 Presidential Policy Directive 8 (PPD-8) identifies the five mission areas as prevention, protection, mitigation, response and recovery. More information on PPD-8 can be found at: . 3 The private and nonprofit sector includes all nongovernmental enterprises and organizations, such as businesses, faith-based organizations, constituent advocacy organizations and nongovernmental organizations that support disaster response and recovery.

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Comprehensive Preparedness Guide 101

CPG 101 incorporates the following concepts from operational planning research and day-to-day experience: The planning process and the resulting relationships are just as important as the resulting

document; Plans are not scripts to be followed to the letter but are flexible and adaptable to the actual

situation; and Effective plans convey the goals and objectives of the intended operation and the actions

needed to achieve them. Successful operations occur when organizations know their roles, understand how they fit into the plan and can execute the plan. CPG 101 provides the foundation for state, local, tribal, territorial and insular area emergency planning in the United States.4 Planners in other disciplines, organizations and the private sector, as well as all levels of government, may find this guide useful in developing their emergency operations plans.

4 Per the Stafford Act, insular areas include Guam, the Commonwealth of the Northern Mariana Islands, American Samoa and the U.S. Virgin Islands. Other statutes or departments and agencies may define the term "insular area" differently.

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Table of Contents

Introduction and Overview................................................................................................. 1 1. Purpose ........................................................................................................................ 1 2. Applicability and Scope .................................................................................................. 1 3. Supersession................................................................................................................. 2 4. How To Use This Guide................................................................................................... 2 5. Terminology and Acronyms............................................................................................. 2 6. Revision Process ........................................................................................................... 2

The Basics of Planning ...................................................................................................... 3 1. Planning Fundamentals ................................................................................................. 3 1.1. Planning Principles .....................................................................................................4 1.2. Strategic, Operational and Tactical Planning........................................................... 10 1.3. Planning Approaches ............................................................................................... 11 1.4. Plan Integration........................................................................................................ 12 1.5. Plan Synchronization ............................................................................................... 13 1.6. Common Planning Pitfalls........................................................................................ 13

Understanding the Planning Environment ........................................................................ 15 1. The National Preparedness System .............................................................................. 15 2. National Preparedness Guidance.................................................................................. 17 2.1. National Incident Management System .................................................................. 17 2.2. National Planning Frameworks................................................................................ 18 2.3. National Response Framework................................................................................ 19 2.4. National Disaster Recovery Framework................................................................... 21 2.5. National Mitigation Framework................................................................................ 22 3. Relationship Between Federal Plans and State Emergency Operations Plans .................. 22 3.1. Federal Plans at the National and Regional Levels ................................................. 23 3.2. State, Tribal, Territorial and Insular Area-Level Plans.............................................. 23 3.3. Local-Level Plans ..................................................................................................... 24

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Identifying the Right Plan for the Job................................................................................ 27 1. The Emergency Operations Plan ................................................................................... 27 1.1. State, Local, Tribal, Territorial and Insular Area Emergency Operations Plans ....... 29 2. Structuring an Emergency Operations Plan.................................................................... 30 2.1. Function-Focused Format ........................................................................................ 31 2.2. Agency-/Department-Focused Format..................................................................... 34 3. Using Plan Templates................................................................................................... 35 4. Additional Types of Plans.............................................................................................. 37 4.1. Procedural Documents ............................................................................................ 40

The Planning Process...................................................................................................... 43 1. Steps in the Planning Process ...................................................................................... 43 1.1. Step 1: Form a Collaborative Planning Team .......................................................... 43 1.2. Step 2: Understand the Situation ............................................................................ 48 1.3. Step 3: Determine Goals and Objectives................................................................. 52 1.4. Step 4: Develop the Plan ......................................................................................... 53 1.5. Step 5: Prepare and Review the Plan ...................................................................... 57 1.6. Step 6: Implement and Maintain the Plan............................................................... 61

Creating an EOP Base Plan.............................................................................................. 67 1. Introductory Material.................................................................................................... 67 2. Purpose, Scope, Situation Overview and Planning Assumptions...................................... 68 2.1. Purpose.................................................................................................................... 68 2.2. Scope ....................................................................................................................... 68 2.3. Situation Overview ................................................................................................... 68 2.4. Planning Assumptions ............................................................................................. 70 3. Concept of Operations ................................................................................................. 70 4. Organization and Assignment of Responsibilities ........................................................... 71 5. Direction, Control and Coordination .............................................................................. 73 6. Information Collection, Analysis and Dissemination ....................................................... 73 7. Communications and Coordination ............................................................................... 74

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8. Administration, Finance and Logistics ........................................................................... 74 8.1. Administration.......................................................................................................... 75 8.2. Finance .................................................................................................................... 76 8.3. Logistics ................................................................................................................... 77

9. Plan Development and Maintenance ............................................................................ 77 10. Authorities and References .......................................................................................... 78

Adding EOP Annexes ....................................................................................................... 81 1. Functional Annexes...................................................................................................... 81 1.1. Functional Annexes Content .................................................................................... 81 1.2. Annex Implementing Instructions .......................................................................... 102 1.3. Special Preparedness Programs............................................................................ 102 2. Hazard- or Threat-Specific Annexes............................................................................. 102 3. Human-Caused Incidents ........................................................................................... 103 3.1. Civil Unrest Annex .................................................................................................. 103 3.2. Cyber Incident Annex ............................................................................................. 103 3.3. Terrorism Annex ..................................................................................................... 104 4. Natural Hazards......................................................................................................... 104 4.1. Biological Incident Annex....................................................................................... 104 4.2. Drought Annex ....................................................................................................... 104 4.3. Earthquake Annex.................................................................................................. 104 4.4. Extreme Temperature Annex ................................................................................. 105 4.5. Flood Annex ........................................................................................................... 105 4.6. Hurricanes/Severe Storm Annex ........................................................................... 105 4.7. Pandemic Annex .................................................................................................... 105 4.8. Seismic Eruptions/Volcanic Ash Annex ................................................................. 105 4.9. Tornado Annex ....................................................................................................... 106 4.10. Tsunami Annex....................................................................................................... 106 4.11. Winter Storm Annex ............................................................................................... 106 5. Technological Hazards ............................................................................................... 106 5.1. Dam and Levee Emergency Annex ........................................................................ 106

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5.2. Hazardous Materials Spill Annex ........................................................................... 106 5.3. Accidental Release of Lethal Chemical Agents or Munitions Annex...................... 107 5.4. Power Outage Incident Annex ................................................................................ 107 5.5. Radiological Incident Annex................................................................................... 107 6. Additional Hazards (as Applicable) .............................................................................. 108 Appendix A: Authorities.................................................................................................. 109 Appendix B: Abbreviations and Acronyms....................................................................... 111 Appendix C: Glossary..................................................................................................... 115 Appendix D: Enhancing Inclusiveness in EOPs................................................................ 121

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