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Military

Chapter 3

Disaster Relief in the US and Its Territories

"During January of this year [1977] snow fell on Buffalo every day leaving total accumulation of more than 60 inches of snow. An average temperature of 13 degrees for the month added to the problems. As the blizzard continued, high winds blew over the city causing low temperatures and enormous snow drifts. Eventually winter's grip on the city left many of its automobiles as well as citizens stranded.

Thomas R. Casey, of the Federal Disaster Assistance Administration, was appointed by President Jimmy Carter to coordinate efforts with the state of New York. In close evaluation of the situation, which worsened by the day, Casey called on active Army units to join the [disaster relief] effort. Mr. Casey contacted the First US Army Disaster Control Element and requested assistance. First Army notified the US Army Forces Command (FORSCOM) of the request.

On the morning of January 29, FORSCOM asked XVIII Airborne Corps and Ft. Bragg headquarters for a list of all engineer equipment available to assist in the snow removal operation. Within hours, the 20th Engineer Brigade (Combat) (Airborne) provided the list and placed the equipment and personnel in "ready" status. "

"Operation Snow-Go to the Rescue"
Specialist 4 Robert Small
The Engineer, Jan/Feb/Mar 1977

This chapter addresses conditions under which the military may help civil authorities during emergencies and major disasters. It also outlines policies, procedures, and types of support that may be provided.

An emergency is any occasion or instance that requires federal assistance to supplement state and local efforts and capabilities to save lives; protect property, public health, and safety; or to lessen or avert the threat of a catastrophe. An emergency declaration by the President provides short-term programs for immediate response. These programs provide a wide variety of life-saving, public health, safety, and property-protecting measures. The total assistance provided for any emergency declaration may not exceed $5,000,000, unless it is increased by the Federal Emergency Management Agency (FEMA) Associate Director.

A major disaster is a hurricane, earthquake, fire, explosion, or other catastrophe of a serious nature. The President can declare a major disaster when an event has caused damage severe enough to require federal assistance. This assistance supplements the efforts and available resources of states, local governments, and disaster-relief organizations to alleviate damage, loss, hardships, or suffering.

MILITARY ASSISTANCE TO DISASTER RELIEF

Responsibility for disaster relief lies primarily with individuals, private industry, state and local governments, the American National Red Cross (ANRC), and federal agencies designated by statute. Department of Defense (DOD) components may assist civil authorities, recognized relief agencies, and federal agencies charged with disaster relief. Assistance is provided as needed or as directed by higher authority. Federal military assistance may be provided when--

  • A situation exceeds the capabilities of state and local governments.

  • Support is not available from commercial sources. Military support will not normally be provided if it competes with private enterprise or the civilian labor force, unless directed by FEMA.

  • Requesting authorities make a commitment to reimburse the federal government.

In some cases, a serious emergency or disaster is so imminent that waiting for instruction from higher authority would preclude an effective response. A military commander may take action to save human lives, prevent suffering, or lessen major property damage. The commander will report the action to a higher authority as soon as possible. He will request guidance if continued support is necessary or beyond his ability to sustain. Under these conditions, the commander will not delay or deny support pending receipt of a reimbursement commitment from the requester. Army Regulation (AR) 500-60 contains guidance for these situations.

Military resources used in civil disaster relief are limited to these not immediately required for military missions. Active federal forces used during disaster relief remain under the control of their military chain of command. Civil agencies exercise no command authority over them. Military support will consist of the minimum required assets. Support will end as soon as possible. Military assistance for rehabilitation after a disaster occurs only when directed by FEMA or in support of operations conducted by United States (US) Army Corps of Engineers (USACE).

AUTHORITY AND RESPONSIBILITIES

The following laws and regulations establish statutory authority and limitations for disaster-relief activities:

  • Public Law (PL) 93-288, as amended (The Stafford Act)(42 US Code 5121 et seq). Authorizes FEMA to direct DOD to use available personnel, supplies, facilities, and other resources to provide assistance after a major disaster or emergency declaration by the President. Immediately after an incident that may qualify as a major disaster or emergency, FEMA can direct DOD to use personnel and equipment to remove debris and wreckage and temporarily restore essential public facilities and services. This is permitted when there are threats to life and property that cannot be dealt with effectively by state or local governments. The performance of the emergency work may not exceed a 10-day period from the date of the mission assignment. Under The Stafford Act and The Federal Response Plan, USACE has a standing mission assignment for the functional area of Public Works and Engineering (Emergency Support Function #3) in response to a catastrophic earthquake or other major disasters. In addition to this mission, USACE supports eight other emergency support functions.

  • Public Law 84-99 (Flood and Coastal Storm Emergencies) (33 US Code 701n). Authorizes USACE to provide emergency and disaster assistance. It authorizes the Chief of Engineers, acting for the Secretary of the Army, to undertake activities including disaster preparedness, advance measures, and emergency operations (flood response and postflood response). It also authorizes rehabilitation of flood-control works threatened or destroyed by a flood, protection or repair of federally authorized shore-protective works threatened or damaged by a coastal storms, provision of emergency water due to a drought or contaminated source, and emergency dredging.

  • Section 686, title 31, US Code (The Economy Act). Authorizes all executive departments or independent government establishments to order materials, supplies, equipment, and work or services from each other. It does not specifically address disaster relief, but federal agencies can use it to obtain military support. It can provide military assistance to federal agencies in situations not otherwise provided for by law. The Economy Act transactions must be coordinated through the Office of the Special Assistant to the Secretary and Deputy Secretary of Defense.

  • Section 3, Title 36, US Code. Authorizes the ANRC to provide disaster relief to persons suffering from fires, floods, and other natural disasters.

  • Army Regulation 500-60 (Disaster Relief). Prescribes Department of the Army (DA) disaster-relief policies and procedures and assigns responsibilities for such activities.

  • Engineer Regulation (ER) 500-1-1 (Natural Disaster Procedures). Prescribes policies, guidance, and procedures for the USACE Domestic Emergency Program (Disaster Preparedness and Emergency/Disaster Response) under the authorities of PL 84-99, The Stafford Act (as amended), and AR 500-60.

Within the DOD, the following individuals have disaster-relief responsibilities:

  • Secretary of the Army. The Secretary of the Army is the DOD Executive Agent for military support in presidentially declared major disasters and emergencies in the US. He is responsible for the use, coordination, and control of military resources used by DOD components.

  • Commander, FORSCOM. The Secretary of the Army delegated to the Commanding General (CG), FORSCOM, the authority to task DOD components for resources to conduct disaster relief in the continental United States (CONUS). The CG, FORSCOM, can further delegate this authority to CONUS Army commanders, but no lower.

  • Commanders of Unified Commands (in Alaska, Hawaii, and US Territories). The Secretary of the Army delegated the authority to conduct disaster-relief operations outside CONUS to commanders of unified commands. They are responsible for disaster-relief operations in their geographical areas of responsibility.

  • Commanders of CONUS Armies. As specified in AR 500-60, CONUS Army commanders will--

    - Plan for and conduct disaster-relief operations in their areas of responsibility.

    - Appoint a DOD military representative (colonel or above) as disaster control officer (DCO). The DCO will be the single point of contact for the Federal Coordinating Officer (FCO) during each declared emergency or disaster.

    - Control DOD resources furnished for disaster relief. Establish and maintain disaster-relief liaison with appropriate federal, state, and local authorities, agencies, and organizations.

    - Furnish resources (on request) to USACE major subordinate command (MSC) and district command (DC) engineers conducting a flood fight.

    - Furnish resources (on request) to support a USACE response to FEMA assignments.

    The CG, FORSCOM, has established an emergency operations center (EOC) in each of the CONUS Armies. On notification of a pending or declared disaster, the CG, FORSCOM, tasks the appropriate CONUS Army to activate its EOC.

  • Commanding General, USACE. Ensures that USACE MSC and DC engineers provide disaster-relief assistance when required by an imminent serious condition, as required by statute, or as directed by FEMA under PL 93-288. Specifically, the CG, USACE, will--

    - Ensure that USACE MSC and DC engineers establish and maintain liaison with the CONUS Army or unified commanders, FEMA regional directors, United States Coast Guard (USCG), ANRC, and other federal, state, and local government agencies.

    - Furnish commanders with information on floods or other disasters or emergencies. Information on USACE activities should be included.

    - Ensure that USACE procedures for disaster relief are coordinated with the CONUS Army or unified commanders.

    - Provide a DCO, as required by the CONUS Army or unified commander, to coordinate DOD relief effort during an emergency or major disaster. The DCO will establish priorities and define work areas for DOD elements and USACE contractors in coordination with the FEMA regional director.

    - Ensure development of procedures for engineering, construction management, and contracting support to troop units involved in disaster-relief operations, when requested.

DOD personnel will conduct disaster-relief operations in conjunction with personnel from state and other federal agencies. The following agencies and individuals are responsible for specific disaster-relief activities:

  • Federal Emergency Management Agency. FEMA, under Executive Order 12148, administers The Stafford Act and prescribes rules and regulations for carrying out the provisions of the act. The FEMA associate director or regional director may direct any federal agency to provide emergency assistance to save lives and to protect property, public health, and safety. Assistance may be provided with or without compensation.

  • Environmental Protection Agency (EPA). Coordinates the response by federal departments; federal, state, and local agencies; and private parties to certain environmental threats. EPA coordinates efforts to control oil spills or the threats of oil spills into navigable waters. It also coordinates efforts to control hazardous substances that present a threat to the environment.

  • Department of the Interior. Protects lands under its administration from fire damage. This responsibility is assigned specifically to the Bureau of Land Management, the National Park Service, the Bureau of Indian Affairs, and the US Fish and Wildlife Service.

  • United States Coast Guard. Protects lives and property in maritime disasters. It also provides an on-scene coordinator (OSC). The OSC coordinates the response of federal, state, and local agencies and private individuals to control oil spills or other hazardous substances in coastal or contiguous waters.

  • Forest Service, Department of Agriculture. Protects forests and watershed lands from fire, in cooperation with other agencies.

  • Boise Interagency Fire Center (BIFC). BIFC is a federal center under the control of the Departments of Agriculture and the Interior. It provides national coordination and logistical support for federal fire control. DOD provides emergency assistance to the BIFC to help suppress wildfires within CONUS. AR 500-60 contains a copy of the memorandum of understanding between DOD and BIFC.

  • Public Health Service (PHS). Uses its health resources and technical personnel to control communicable diseases. PHS assists federal, state, and local agencies in maintaining safe food supply, sanitary waste disposal, refuse disposal facilities, and the control of insects and rodents. It can also evaluate health hazards and recommend corrective action.

  • National Weather Service (NWS), National Oceanographic and Atmospheric Administration (NOAA). Provides storm warnings (tornado, hurricane, heavy rainfall, and so forth), weather forecasts, and flood warnings. It also provides forecasts of water stages, particularly the peak flow and duration of high water.

  • National Communications System (NCS). Provides technical communications support to FEMA in predisaster planning and during presidentially declared emergencies or disasters.

  • American National Red Cross. Prevents or mitigates suffering caused by fires, floods, and other natural disasters. In emergency situations where FEMA is not involved, the ANRC may request Army assistance when local resources are inadequate. Local ANRC chapters will normally request Army support through the ANRC area office to the CONUS Army commander. During an imminent serious situation, the local ANRC chapter may request help from the nearest military installation.

  • State Emergency Management Agencies. Direct and coordinate state emergency or major disaster-relief activities.

ARMY SOURCES OF SUPPORT


DA may provide assistance for disaster relief through a variety of means. This may include supplies, equipment, or support from selected individuals. At the other end of the spectrum, entire units may conduct disaster-relief operations. These units may come from the Active Army or US Army Reserve (USAR). Under some circumstances, Army National Guard (ARNG) units may be placed in a federal active duty (FAD) status. USACE is a major relief asset for the Army during a disaster.

Active Army units will support disaster-relief operations at the direction of their higher command. Exceptions occur when a serious emergency or disaster is imminent and waiting for instruction from higher authority is inappropriate. Criteria are outlined in the section on military assistance to disaster relief. In these cases, a military commander may do what is required to save human lives, prevent suffering, or lessen major property damage.

USAR units or individuals may perform disaster-relief operations under any of the following conditions (see AR 500-60 for additional guidance and limitations):

  • When ordered to active duty after the President has declared a national emergency.

  • When ordered by the DA on the recommendation of the CONUS Army commander and the CG, FORSCOM, as annual training.

  • When approved by the CG, FORSCOM, in a voluntary active duty for training (ADT) status.

  • When USAR commanders approve voluntary participation, with orders, during imminent serious conditions in a nondrill, nonpay status. USAR members taking part in such support are performing an official duty.

ARNG units may perform disaster relief while on federal active duty or state active duty (SAD). When not in active federal service, ARNG units will remain under the control of the state governor. Normally, they will be assigned a mission through their chain of command. However, with the concurrence of the governor, they may accept missions from the CONUS Army or unified commander on a reimbursable basis. Units may take federally owned equipment with them when ordered into disaster-relief areas. USAR equipment may be loaned to ARNG forces for disaster relief while on state active duty status. Procedures are outlined in AR 500-60. Once federalized by the President, units will be under the control of the chain of command established for the specific disaster-relief operation.

USACE responsibilities include--

  • Establishing policies and procedures to implement USACE authority to provide emergency and disaster assistance under Public Law 84-99 and AR 500-60 and in support of other agency authorities.

  • Establishing and maintaining an emergency management organization.

  • Providing guidance to subordinate elements supporting other agencies with emergency and disaster assistance.

  • Maintaining all USACE elements in a state of readiness to respond to disasters and emergencies.

  • Maintaining liaison and/or coordinating USACE programs with appropriate federal agencies to ensure timely support to requests for assistance.

Within the Corps of Engineers, MSC and DC commanders have been delegated the overall responsibility for preparedness and response missions.

The MSC commander's responsibilities include--

  • Establishing and maintaining an emergency-management organization. This includes appropriate personnel, space, and facilities to manage required preparedness and response programs.

  • Developing guidance and procedures to implement emergency- and disaster-response authorities within the MSC through publication of supplements or other documents.

  • Establishing and maintaining contacts with appropriate military, federal, and state, agencies and coordinating the USACE emergency program, as necessary.

  • Managing the disaster-preparedness program and response activities command wide within delegated authorities.

  • Providing guidance to subordinate elements supporting other agencies with disaster assistance.

  • Establishing and maintaining inoperable EOC.

The DC commander's responsibilities include--

  • Establishing and maintaining an emergency-management organization. It must include appropriate personnel, space, and facilities to manage required preparedness and response programs.

  • Establishing and maintaining operational plans and procedures to respond to emergencies and disasters within their authority and geographic area of responsibility.

  • Maintaining sufficient, required emergency supplies and equipment.

  • Ensuring personnel are prepared to respond to emergencies and disasters.

  • Establishing and maintaining an operable EOC.

  • Conducting exercises.

  • Establishing and maintaining contacts with appropriate officials from military, federal, state, local, and charitable agencies.

DISASTER-PREPAREDNESS PLANNING

Disaster preparedness consists of activities that permit rapid response to natural disasters or emergencies. USACE, FORSCOM, CONUS Army, and installation staffs conduct disaster- preparedness planning to minimize delays.

Within USACE, the Chief of Emergency Management Division or Branch is responsible for USACE MSC and DC disaster-preparedness programs. The following areas are included in USACE disaster preparedness planning:

  • Preparing emergency publications. These include regulation supplements, emergency plans, and so forth.

  • Conducting disaster-preparedness exercises and training.

  • Inspecting nonfederal flood-control works (levees and dams).

  • Procuring supplies and equipment for emergency operations.

  • Establishing MSC and DC EOCs.

USACE MSC and DC emergency managers develop and coordinate disaster-preparedness programs. Detailed procedures are in Engineer Regulation (ER) 500-1-1.

EMERGENCY OPERATIONS

Requests for Army support for disaster-relief operations may be initiated through several channels including--

  • A direct request from a civil authority to a military commander.

  • A request from USACE MSC or DC.

  • An awareness by USACE or DOD of an ongoing or imminent situation.

  • A request from FEMA.

  • A request from ANRC.

Military commanders may approve direct requests from civil authorities for emergency assistance to save human lives, prevent suffering, or lessen great destruction or damage. This is outlined in the paragraphs on military assistance to disaster relief. When a commander receives a request that does not meet the criteria in AR 500-60, he should direct civil authorities to forward it through channels to DOD. Requests must contain (see AR 500-60)--

  • A brief statement of the situation.

  • Assistance being provided by state and local governments.

  • Support required and the estimated time needed.

  • A statement that military assistance will not be in competition with commercial sources.

  • An estimate of costs and provision for reimbursement.

  • A statement on whether or not assistance has been requested from another military department or federal agency.

Upon the President's declaration of a major disaster or emergency, the FEMA director may coordinate and administer the support of disaster-relief activities of all federal agencies. FEMA may task federal agencies (including DOD) to provide personnel, equipment, supplies, facilities, and other resources in support of state and local disaster assistance efforts. The Directorate of Military Support (DOMS) is the DOD point of contact in all matters related to military assistance during major disasters or emergencies. DOMS is in the Office of the Deputy Chief of Staff for Military Operations and Plans (ODCSOPS).

When a presidential declaration of a major disaster or emergency is made, FEMA will appoint an FCO. The FCO is responsible for coordinating federal assistance in an emergency or major disaster. He initiates action immediately to assure that federal assistance is provided based on the declaration.

FEMA will notify DOMS or the Army Operations Center (AOC) when a major disaster or emergency has officially been declared. DOMS or the AOC will notify FORSCOM and provide updates as the situation develops. Upon initial notification, FORSCOM will notify subordinate commands and designate a lead and support CONUS Army headquarters. The lead CONUS Army commander will appoint and maintain control of the DCO and staff. The DCO and his staff will deploy to the disaster area and collocate with the FCO.

FEMA regional directors and the FCO will submit requests for DOD resources to the CONUS Army or unified commander through the DCO. Requests for other-than-Army resources will be sent by the CONUS Army or the unified commander to the service headquarters having control of the assets. If USACE representatives receive direct requests while active military assistance is being given, the USACE MSC or DC engineer will notify the CONUS Army or the unified commander. This will be done to ensure coordinated military effort.

Under the Federal Disaster Plan, USACE is the primary and/or lead agency for Emergency Support Function #3, Public Works and Engineering. USACE will provide immediate supplemental engineering and construction support to the state following a presidential declaration. This includes water supply. Some typical response activities include--

  • Emergency debris removal.

  • Temporary repair or replacement of roads and bridges.

  • Emergency restoration of critical facilities and services.

  • Demolition or stabilization of damaged structures.

In addition to its mission under the Federal Disaster Response Plan, USACE is also one of the federal agencies FEMA tasks to provide engineering, design, construction, and construction-contract management in support of recovery operations. FEMA may request USACE to perform the following:

  • Direct Federal Assistance (DFA). DFA is the performance of eligible work when a state or local government lacks the capability to perform or contract for the work or the regional director determines that assistance is necessary to meet an immediate threat to life, health, or safety.

  • Preliminary Damage Assessment (PDA) and/or Damage Survey Report (DSR). A PDA provides a categorized description and initial cost estimate of damages. FEMA uses the PDA in evaluating a request for federal assistance and to identify major work categories. A DSR provides a specific statement of the extent of damages and a complete description of the damaged facility. It includes a statement of the scope of eligible work and a detailed estimate of the reasonable cost of eligible work. This is the primary vehicle used by FEMA to fund or reimburse applicants for public assistance under The Stafford Act.

  • Technical Assistance. Technical assistance is the provision of engineering support, construction management, and technical advice to state and local agencies.

Under PL 84-99, USACE provides flood emergency or disaster assistance in the form of advance measures, flood response, and postflood response.

  • Advance Measures. USACE may perform activities to protect against loss of life and damages to either urban areas or public facilities due to flooding. Assistance to prevent damages may be taken before a riverine flood, a hurricane or coastal storm, a storm on an inland body of water, or a closed-basin flood. An imminent threat of unusual flooding must exist to justify USACE advance measures. Advance-measures assistance may be technical or direct assistance. Technical assistance consists of providing any combination of technical review, advice, or recommendations to state and local agencies before, during, or after a flood event. Direct assistance authorizes USACE to supplement state and local resources with its supplies and equipment. As an alternative, USACE may contract construction of temporary flood-control projects.

  • Flood Response. Technical assistance consists of providing review and recommendations in support of state and local flood-fighting efforts. This includes addressing flood-fighting techniques and emergency construction methods; inspecting flood-protection structures; and providing hydraulic, hydrologic, and geotechnical data and advice. Direct assistance may include supply issuance, equipment loan, rescue operations, direct flood-fighting operations, and emergency contracting.

  • Postflood Response. For USACE to provide emergency assistance, a written request from a state governor to the DC commander will be provided concurrently with or immediately after the governor's request to FEMA for a PDA. Assistance will be temporary to meet the immediate threat. USACE assistance will be limited to major floods or coastal storm disasters resulting in life-threatening situations. USACE will not take action on a governor's request if it is received subsequent to a Presidential declaration or denial. Assistance may only be provided for a maximum of 10 days from the receipt of the governor's request for assistance. Subsequent requests for additional assistance resulting from the same flood or coastal-storm event will not extend the 10-day period or trigger a new 10-day period. No work will be performed, including contract work, after the 10-day period expires. Assistance may be technical or direct. Activities may include clearance of drainage structures and debris to open critical transportation routes. USACE may also restore public services or facilities and provide other assistance to prevent loss of life or facilities.

Whenever FEMA tasks USACE to perform engineering or construction missions, the USACE MSC commander will notify the CONUS EOC or DCO as appropriate. The MSC and/or DC commander will then determine the capabilities of contractor resources to accomplish the mission. If contractor resources are inadequate, the MSC commander will notify the FEMA regional director and Commander, USACE. He will detail the need for augmentation by regular Army forces. He will also address the impact on completion of the requested mission if assistance is not provided. When both troops and civilian contract elements are involved in construction operations, the designated USACE representative will establish priorities and define work areas in coordination with the FCO. USACE may also request military assistance to respond to an emergency flood event under PL 84-99.

When requested, USACE will provide engineering, construction management, and contracting support to troop units involved in disaster-relief operations. Funding, recounting, and reimbursement for Army participation in domestic disaster-relief operations are explained in AR 500-60.

MILITARY ENGINEER UNIT DISASTER-RELIEF MISSIONS

Military engineers may become involved in disaster-relief operations as individuals, teams, or complete units. Individuals may provide technical assistance to civil authorities in the areas of damage assessment and engineer work estimation. Teams may provide specialized support such as well drilling, power supply and distribution, or utilities repair or reconstruction. Units with personnel and vehicles that perform general tasks may be directed to support all types of disaster-relief operations. (Military personnel will not be used to enforce civil law.) Missions that may require engineer-specific skills and equipment include the following:

  • Flood Relief.

    - Assessing damage to roads, bridges, structures, utilities, and so forth.

    - Supporting search and rescue operations with personnel and equipment.

    - Conducting topographic surveys for the extent of flood damage.

    - Overprinting of maps to depict damage, water levels, key facilities, search-and-rescue activities, and so forth.

    - Opening roadways for emergency and medical traffic.

    - Constructing temporary bridges.

    - Providing emergency power.

    - Clearing debris, mud, and so forth.

    - Restoring critical facilities, services, and utilities.

    - Demolishing unsafe structures.

    - Providing and/or restoring power to critical facilities.

    - Providing expedient repair of critical distribution systems.

  • Earthquake relief.

    - Assessing damage to roads, bridges, structures, utilities, and so forth.

    - Supporting search-and-rescue operations with personnel and equipment.

    - Opening roadways for emergency and medical traffic.

    - Restoring critical facilities, services, and utilities.

    - Demolishing unsafe structures.

    - Providing and/or restoring power to critical facilities.

    - Providing expedient repair of critical distribution systems.

  • Tornado or hurricane relief.

    - Assessing damage to structures, utilities, and so forth.

    - Supporting search-and-rescue operations with personnel and equipment.

    - Clearing rubbled areas.

    - Opening roadways for emergency and medical traffic.

    - Restoring critical facilities, services, and utilities.

    - Demolishing unsafe structures.

    - Providing and/or restoring power to critical facilities.

    - Providing expedient repair of critical distribution systems.

  • Volcano relief.

    - Evacuating threatened areas.

    - Assessing damage to roads, bridges, structures, utilities, and so forth.

    - Supporting search-and-rescue operations with personnel and equipment.

    - Opening roadways for emergency and medical traffic.

    - Restoring critical facilities, services, and utilities.

    - Demolishing unsafe structures.

    - Providing and/or restoring power to critical facilities.

    - Providing expedient repair of critical distribution systems.

  • Tidal-wave relief.

    - Assessing damage to roads, bridges, structures, utilities, and so forth.

    - Supporting search-and-rescue operations with personnel and equipment.

    - Conducting topographic surveys for the extent of damage.

    - Overprinting of maps to depict damage, key facilities, search-and-rescue activities, and so forth.

    - Opening roadways for emergency and medical traffic.

    - Constructing temporary bridges.

    - Providing emergency power.

    - Clearing debris, mud, and so forth.

    - Restoring critical facilities, services, and utilities.

    - Demolishing unsafe structures.

    - Providing and/or restoring power to critical facilities.

    - Providing expedient repair of critical distribution systems.

  • Emergency snow removal.

    - Clearing snow from critical roads and facilities.

    - Clearing access to critical facilities such as hospitals.

    - Hauling and dumping snow away from congested areas.

    - Transporting and delivering critical supplies.

  • Forest-fire fighting.

    - Cutting fire breaks with equipment, chain saws, and hand tools.

    - Constructing base camps.

    - Constructing fire roads.

    - Transporting water.

Engineer units supporting disaster-relief operations must take adequate tools and equipment to support all potential missions. Planners must design units' support packages (fuel, water, communications assets, maintenance support, and so forth) to facilitate the success of their operations. A detailed reconnaissance of the area of responsibility is essential in developing a plan of action in conjunction with civil authorities, other federal agencies, and USACE representatives.

When conducting disaster-relief operations, maintaining personnel accountability is a critical task. Leaders must keep track of their subordinates at all times. During a crisis situation, a soldier may become separated from his unit and trapped in a hazardous area. Unit leaders must develop a system for tracking their soldiers at all times (to include during rest or sleep breaks).

RECOVERY AND REHABILITATION

Rehabilitation after a natural disaster will be conducted primarily by civilian agencies. Military assistance is authorized only when directed by FEMA or in support of emergency operations conducted by USACE. PL 84-99 authorizes the Chief of Engineers to develop standards and criteria and to rehabilitate flood-control works or federally authorized and constructed shore-protection projects threatened or damaged by a flood, hurricane, or coastal storm. USACE MSC commanders are authorized to approve these rehabilitation projects. When a project is approved by the MSC commander, information copies will be provided to the Commander, USACE. MSC or DC commanders may disapprove ineligible projects without consulting higher authority. ER 500-1-1 provides specific guidance relating to flood-control work rehabilitation-project procedures.

USACE SUPPORT FOR SPECIAL REQUIREMENTS

PL 84-99 allows USACE to provide water to any locality that is confronted with a contaminated water source. The law authorizes assistance in situations causing or likely to cause a substantial threat to the public health and welfare of the local inhabitants. USACE assistance may only supplement state, local, or combined efforts to provide water for public health and welfare.

Assistance may be provided to localities whose publicly or privately owned water and/or distribution system services a community. Aid will normally be temporary to meet the immediate threat. Permanent restoration of safe water supplies is the responsibility of local interests. USACE assistance will not be used to accomplish deferred or deficient maintenance. Assistance is limited to 30 days or until FEMA begins providing emergency water under its own authorities, whichever is earlier. Headquarters (HQ), USACE may extend this time limit provided there is adequate justification.

USACE commanders will determine water quantity and distribution methods after considering the needs of the individual situation and the cost effectiveness of providing various water quantities. USACE assistance under this authority may include water transport to local water points, distribution of bottled water, and temporary connection of a new supply to the existing distribution system. Installation of temporary filtration equipment or the use of military mobile purification units is also permissible.

During drought conditions, emergency water assistance (usually temporary) is provided to meet minimum public health and welfare requirements. Reviews of requests for assistance are to be tempered by the fact that USACE assistance supplements state and local efforts. Long-term solutions to water supply problems are the responsibility of state and local interests. USACE may construct wells or transport water to farmers, ranchers, and political subdivisions within drought-distressed areas. The Assistant Secretary of the Army for Civil Works determines whether an area is drought distressed. This is based on an inadequate water supply that is causing or is likely to cause a substantial threat to the health and welfare of local inhabitants. This includes the threat of damage or loss of property. Written requests for assistance should come through the governor or his authorized representative.

Water may be transported for human and livestock consumption only. Water for irrigation, recreation, or commercial and/or industrial processing will not be provided under this authority. When USACE assists in transporting needed water, all reasonable transport methods should be addressed. These may include trucks carrying bottled water, trucks or trailers carrying bulk water, or small pipelines laid on the ground. The purchase or acquisition of water, the loading and unloading of water from the transportation mechanism, and the storage facility at the terminal point are not USACE expenses. When the recommended option for transporting water includes a permanent facility, there must be clear justification.

When drilling wells, the project owner will be responsible for providing permanent storage and distribution systems. In situations where water will be provided for livestock, consideration should be given to sell part of the herd to provide resources to satisfy the need.

Any USACE well construction will be paid for by the applicant. USACE may construct wells only when commercial or other sources cannot construct it within a reasonable time. Federally owned well-drilling equipment can only be used when commercial firms cannot provide comparable service soon enough. This is based on the time available while preventing the applicant from suffering increased hardships from inadequate water supply.

Flood hazard mitigation decreases the impact of flooding on people and property by reducing its cause, occurrence, and effects. The primary objective of hazard mitigation is to reduce or avoid federal expenditures resulting from flood situations. This is achieved through a coordinated interagency and intergovernmental team approach in the immediate postdisaster period to quickly develop flood hazard mitigation recommendations. Details of flood hazard mitigation operations are outlined in ER 500-1-1.

The Chief of Engineers is responsible for managing and executing the Army Prime Power Program. He has delegated this responsibility to the US Army Engineering and Housing Support Center (USAEHSC), which is a field operating agency of USACE. The objectives of the Army Prime Power Program are to--

  • Provide an insurance level of prime, utility-grade power-generation equipment and local power-distribution capability for theater commanders during military contingency operations.

  • Provide advice and technical assistance in all aspects of electrical systems and general power in support of war-fighting, disaster-relief, and nation assistance operations.

  • Maintain a cadre of skilled military professionals trained to install, test, inspect, operate, maintain, and support prime power assets.

  • Loan prime power assets to high-priority, DOD electrical-power requirements, including disaster relief.

  • Provide special support for other federal agencies, such as the Department of State.

Prime power personnel (military occupational specialty (MOS) 52E) are skilled in both military and nonmilitary systems. They can inspect, repair, operate, and maintain nonmilitary prime power equipment, such as commercial diesel plants and distribution systems. This capability is well suited for disaster relief or postcombat operations if power plants or distribution systems have been damaged. USAEHSC can provide generator sets or prime power plants based on the requirements of the requestor. If a requestor is unsure of his requirements, USAEHSC can assist in determining them. This includes load estimates, power systems design, and so forth. USAEHSC has a limited number of soldiers to operate and maintain the equipment or to provide operator training. AR 700-128 provides details on this program.

Under the National Contingency Plan (NCP), DOD is a member of the National Response Team (NRT). Within this organization, DOD is responsible for providing resources for the effective operation of the NCP. The objective of the NCP is to support the National Oil and Hazardous Substances Pollution Contingency Plan. This plan ensures a coordinated federal response at the scene of an oil spill or a release of hazardous substance that poses a threat to public health and welfare. USACE is included in the NCP as a branch of the DOD that has "relevant expertise." It can be used in response to discharges or releases and provides members to the Regional Response Teams (RRTs) according to AR 200-1. USACE support capabilities in cleanup activities include recovery of oil using USACE hopper dredges and the reserve fleet of contractor-owned hopper dredges. USACE can also provide contracting, construction management, real estate support services, engineering, environmental review and monitoring, research and development, tracking and forecasting of oil spill location, and power generation.

USACE participation will normally be at the request of the OSC. However, assistance may be requested by DOD or the RRT chairman. The OSC directs the response efforts at an oil spill or hazardous-substance release. In general, the OSC is predesignated by the regional or district head of the lead agency. However, for releases from vessels or facilities under the jurisdiction, custody, or control of DOD, Department of Energy (DOE), or another federal agency, the OSC/RPM will be provided by the federal agency responsible for the release except for the special conditions stated in the NCP. The USCG will provide an OSC for oil spills, including those from a federal agency facility or vessel within or threatening the coastal zone.



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