EMERGENCY SUPPORT FUNCTIONS
2 - CONCEPT OF OPERATIONS
Emergency Support Functional Annex Structure
The addition of Emergency Support Functional Annexes to the TEMP is
new. In previous plans all annexes were functional, but were not designed to be
managed as individual sections per se. The following conventions apply to the
ESF annexes that follow.
I. Lead State Agency:
Each ESF function (or subfunction) has a
designated lead agency within state government. This agency is responsible for
managing the development of capabilities relative to the specific function
described. The lead agency is responsible for direction and control functions
within the group when the group is activated.
II. Support State Agencies:
Each ESF also has one or more support agencies within state or federal
governments (or the private sector). These agencies are tasked with providing
resource or logistical support to the operation of the ESF when activated. Each
agency functions as per its normal routine when the ESF group is not activated.
III. Introduction
A. Purpose.
Each ESF is provided with a purpose statement that reflects the primary reason
the ESF group exists.
B. Scope.
The scope of each ESF is provided to reflect the range of activities in which
the ESF group may find itself tasked.
IV. Policies
These are broad statements describing policies of the state emergency
response organization with respect to the functions and responsibilities
assigned to a particular ESF.
V. Situation and Assumptions
A. Situation.
The situation statement basically explains why the ESF group exists and why it
is necessary to perform the functions assigned to the group.
B. Planning
Assumptions. For any plan to be useful it must be based on an accurate
set of assumptions regarding the situations that it addresses. This section
provides the planning assumptions used in the development of the respective
ESF.
VI. Concept of Operations
A. General.
This section is used to describe, in general terms, what is expected to occur
and how the ESF group is expected to react to it.
B. Organization
and Responsibilities, This section delineates
the specific agencies with assignments in the respective ESF and identifies
their individual responsibilities with respect to that particular ESF.
VII. Mitigation and Preparedness Activites.
This section identifies critical tasks that need to be performed prior to the
occurrence of a disaster. This includes mitigation activities such as the
development and institution of seismic codes, incorporation of seismic design
in road structures, etc. The preparatory tasks include the development of
plans and procedures for accomplishing tasks ascribed to the agency in the
Response and Recovery section immediately following this section.
VIII. Response and Recovery Actions. This section identifies
critical tasks that need to be performed following the onset of a significant
disaster. This section is by no means intended to be comprehensive, but most
tasks critical to the rapid response of state and federal emergency relief
groups have been assigned to one or more agencies tasked in the particular
ESF.
IX. Training A description of training relative to a
particular ESF is provided at the end of each section. Since training tends to
be functionally specific, it is provided as an attachment to each ESF rather
than having one training annex or similar document.
Appendices Each ESF has one or more appendices attached to
it. There are several types of appendices:
1. Organizational
charts
2. Documents
describing specific procedures or special operational guidelines
3. Maps
showing locations of offices, district/regional boundaries, radio transmitter
locations, etc.
4. Flow
charts detailing flow of critical information
5. Forms
that are used by the emergency response organization
The ESF Concept of Operations
During most smaller emergencies, each agency
in state government performs its specialized tasks according to the agency's
in-house Standard Operating Procedures (SOPs). During major emergencies,
however, there is an increased need for the coordination of all activities
relevant to the emergency response as they relate to the event as a whole. This
operation takes place at the State EOC. The ESF Group is composed of a lead
agency and one or more support agencies. The lead agency is responsible for the
coordination of the ESF group as a whole, with
individual agencies performing their emergency missions as they otherwise
would, except that they are being coordinated by the lead agency. Conflicts
that arise during emergency operations will be resolved by the Central
Direction and Control Group.
Each agency is responsible for developing its own respective plans and
SOPs for carrying out its assigned missions. The lead agency, however, is also
responsible for the following:
1. Coordinating
the development of an ESF SOP that governs the functions of the various
organizations assigned to that ESF during activation.
2. Conducting
planning sessions during non-emergency periods for the purpose of developing
policies, plans, and procedures for coordinating the state level response to a
disaster (with respect to that particular ESF).
3. During
emergency activation, coordinating the flow of messages into and out of the ESF
group, providing direction and control for the ESF group, and coordinating the
activities of that ESF with the activities of other ESF groups.
4. Compiling
documentation relative to the ESF group's activities during the emergency.
This model of the ESF group allows the utilization of many Incident
Command System concepts in the SEOC during activation. An effective span of
control is maintained by consolidating all of the agencies with emergency
responsibilities into groups with an internal management structure, with the
ESF Manager being responsible to the Central Direction and Control Group at the
head table during SEOC activation. Instead of having some 80 agencies
responsible to the head table, there are now less than 25. For the purpose of
further defining roles and responsibilities, each ESF group is also assigned to
a branch as follows:
1. Response Branch
· ESF 4,
Firefighting
· ESF 8,
Emergency Medical Services (8.1)
· ESF 9,
Search and Rescue
· ESF 10,
Environmental Response
· ESF 13,
Law Enforcement
2. Human Needs Branch
· ESF 6,
Human Services
· ESF 8,
Public Health and Crisis Intervention Support (8.2 & 8.3)
· ESF 11,
Food
3. Services and Support Branch
· ESF 1,
Transportation
· ESF 3,
Infrastructure
· ESF 7,
Resource Management
· ESF 12,
Energy
· ESF 14,
Donations/Volunteers
4. Communications Branch
· ESF 2,
Communications
5. Intelligence Branch
· ESF 5,
Information and Planning
6. Recovery Branch
· ESF 15,
Recovery
Each of these Branches is consolidated in the SEOC during activation to
insure coordination among the various organizations. Attachment
1 
provides
a graphic representation of the EOC organization for emergencies.
Most agencies have only one ESC assigned to the SEOC during
emergencies. Each of these individuals is assigned a place in the floor plan
that corresponds to the ESF in which his/her primary responsibilities lie.
Tasks required of that particular ESC by an ESF in which he/she is not resident
will be handled by telephone or E-mail as per established guidelines. The ESF
Manager requiring assistance from a non-resident ESC will simply send him/her a
request to provide the services and the ESC will provide a follow-up message
indicating his/her ability/inability to complete the requested task(s).
Each branch will have an Intelligence Officer assigned to it whose
primary function will be the coordination of intelligence information between
that Branch and the ESF 5 workgroup. This information flow goes both ways
during emergency operations. This is to insure that the ESF 5 workgroup is able
to maintain an accurate assessment of the disaster situation and is able to
develop short-range and long-range planning guidance for use by the Central
Direction and Control group and potentially affected ESFs.
ESF Standard Operating Procedures
Each ESF Group is required to develop an SOP for use during ESF
activation. The primary responsibility for the development of this document
lies with the lead agency in the individual ESFs. The
SOPs should, at a minimum, include:
· Procedures
for notification of ESF agencies/organizations,
· Mechanisms
for communications between and among the various ESF components,
· Procedures
for establishing ESF group(s) at the SEOC, REOCs, and
other worksites,
· Identification
of emergency capabilities of agencies tasked in the ESF,
· Descriptions
of the relationships of the lead and support agencies assigned to the ESF,
· Procedures
for carrying out tasks and responsibilities assigned to the group, including:
1. Logistics
and resource requirements,
2. Communications
requirements,
3. Requirements
for the development of specific agency implementing procedures (or agency
SOPs),
4. Procedures
for coordinating ESF group functions/tasks with other ESFs,
5. Procedures
for tasking non-resident ESCs located in the SEOC or
other location with assignments related to the working group,
6. The
collection and dissemination of intelligence information to ESF 5 and other ESFs with a need for such information,
7. Procedures
and policies for acquiring needed facilities, vehicles, and other resource
support from ESF 7
· Procedures
for relocating the ESF workgroup (or components thereof) to a DFO, REOC, or
other location as might be dictated by the TEMA Director, and
· Procedures
for the coordination of planning sessions and guidelines concerning the
development of the SOP and various implementing procedures.
Each agency is responsible for developing specific SOPs and
implementing procedures for use in deploying that agency's assets and resources
in times of emergency. Each agency shall maintain control of its own personnel
and assets during emergency operations. Further guidance concerning agency SOPs
may be found in the Basic Plan. The Emergency Management Planning Concept
described here is graphically depicted at the end of this section (Attachment
2 ).
State Emergency Response Concept of Operations
The flow of requests and information from the local level through the
state level is depicted in Attachment
3 ,
the Tennessee State Emergency Response Concept of Operations. The local EOC has
primary responsibility for handling emergency response and support operations
at the local level. If the local EMA Director determines that local
capabilities are inadequate for dealing with the situation, he/she will request
assistance through the State Regional EOC (REOC), if activated. If the REOC is
not in operation, the request can be made directly to the State EOC (SEOC). The
Regional Director (RD) will decide if the request can be fulfilled by obtaining
resources from unaffected counties within his region or if the request must be
submitted to the Regional ESF Group. If the Regional ESF Group is able to
handle the request (through state agency regional offices) appropriate measures
are taken at the REOC to deliver needed services. If a request cannot be filled
at the regional level it is forwarded to the SEOC for action.
The SEOC can fulfill requests for assistance through the state ESF
structure or by obtaining resources from unaffected counties in the state's
other regions (through the appropriate REOCs). The
state ESF structure will respond to requests as per procedures established in
the ESF SOPs, which may include the procurement of state employees from other
regions of the state not affected by the emergency. Constant communication
between the state ESF components and the ESF components at the regional levels
must be maintained to insure an effective state response to an emergency.
Additionally, if an REOC is not activated, the SEOC (or appropriate ESF Group)
may request assistance directly from state agency ESCs
in the affected area(s).
Once resources have been identified and tasked to respond to a specific
situation, they may report directly to the local government or they may be
directed to report to a State Staging Area or a Forward Staging Area in a
county affected by the emergency. Resources coming from several areas of the
state distant from the affected area(s) may be sent to a Marshaling Point prior
to being assigned to a specific Staging Area.
Finally, if the state's assets are not sufficient to address the
emergency situation, a request for federal assistance may be made by the
Governor to the FEMA Region IV Director.
ESF Descriptions
Each ESF document, by definition, may be utilized as a stand-alone
annex. Most often, however, the ESFs are used in
conjunction with one or more additional ESFs to
facilitate the state's response to a particular event. Each has a unique
functional responsibility; however, each ESF may be composed of one or more subfunctional groups, each geared towards a specific set of
activities that might be required in an emergency. A description of each ESF
and its components follows.
A. ESF 1 - Transportation
1. Transportation
Networking
The transportation function within the state emergency organization
functions primarily as a coordinating group. This group insures all roads and
conduits into and out of an affected area remain open, and that the traffic
allowed into those areas is coordinated in a manner that prevents bottlenecking
and gridlock which would prevent needed emergency assistance reaching those
areas that need it. The allocation of vehicles (state-owned) is handled by the
Department of General Services as a function of Resource Management and is
therefore described under the ESF 7 subfunction of
Resource Management.
B. ESF 2 - Communications
The state communications and warning functions are consolidated under
the heading of Communications, primarily because they are necessarily interrelated.
1. Communications
Systems
The Communications Systems subfunction is
responsible for the development, maintenance, restoration, and utilization of
state, local, and private sector communications assets during emergencies. This
includes the radio systems owned and operated by TEMA, THP, TDOT, the Tennessee
Division of Forestry, and other state agencies, amateur radio networks, federal
communications capabilities within the state, cellular telephone networks, as
well as the local and long-distance telephone systems connecting the federal,
state, local, and private sector resources that might be needed in an
emergency. The Communications Systems Section is divided into three subgroups:
Radio Systems, Telecommunications Systems, and Data Systems.
2. Warning
The Warning subfunction is responsible for
the issuance of warning information regarding impending hazards, as well as the
maintenance of warning networks which might be used by the state in an
emergency (i.e., the conceptual networks--the actual networks themselves [e.g.,
radio equipment, etc.] are maintained by the Communications Systems subfunction). This includes the EAS, NOAA Weather Radio
system, NAWAS, and other warning systems in place throughout the state.
C. ESF 3 - Infrastructure
1. Building
Inspection and Condemnation
This subfunction is responsible for the
inspection of buildings and structures following a disaster and, if necessary,
condemning them and insuring their destruction in a timely manner.
Additionally, the state provides for the inspection of work environments to
insure they remain safe for employee occupancy following a disaster.
2. Route
Clearance and Bridge Inspection
This subfunction is responsible for insuring
state roads and bridges remain viable following a disaster. This includes the
physical removal of debris on roadways, railroads, airstrips, etc., critical
for emergency vehicle passage, as well as the inspection of state bridges to
insure they may continue to be used and have not suffered fatal damage as a
result of a particular event. Assistance to local road crews is provided
through this subfunction.
3. Debris
Removal
This subfunction handles problems arising
from the generation, accumulation, and disposal of debris following a disaster.
4. Water
and Wastewater Systems
This subfunction is responsible for the
restoration of potable water and wastewater disposal capabilities following a
disaster.
D. ESF 4 - Firefighting
The detection and suppression of fires is the primary purview of this
group. Assistance to local fire suppression efforts is handled by ESF 4.
E. ESF 5 - Information and Planning
1. Disaster
Intelligence
This subfunction is responsible for
collecting intelligence information surrounding the disaster. This includes
items such as the scope (extent) of the disaster, status of various systems
(i.e., communications, transportation, utility, etc.), monitoring of resource
status, and other information. Disaster Intelligence develops reports
concerning the disaster, provides visual displays for the SEOC during
operations, prepares SITREPS, develops short-range and long-range planning
guidance for use in addressing developing issues, and accesses technical
expertise to assist with evaluating the actual and/or potential effects of an
event upon the population and infrastructure of the state.
2. Public
Information
This group is responsible for the provision of information (both
general and that which conveys emergency instructions to the public) concerning
an actual or impending disaster. The coordination of JIC activities, EBS
activation, and the distribution of emergency preparedness instructions through
other means are addressed through this venue.
3. Damage
Assessment
This subfunction is responsible for the
collection of information concerning damages to structures and systems as a result
of a disaster, as well as the preparation of reports to be forwarded to the
TEMA Director for use in requesting federal disaster assistance.
F. ESF 6 - Human Services
1. Shelter
and Mass Care Operations
This subfunction coordinates the state
assistance in sheltering, feeding, and caring for victims of a disaster.
2. Disaster
Victim Services
This subfunction provides assistance to
victims in locating relatives (and vice versa) through the Disaster Welfare
Inquiry system, the restoration of mail delivery, the use of amateur radio
networks to deliver essential and important communications, etc. Psychological
health services are also addressed within this subfunction.
G. ESF 7 - Resource Support
1. Logistics
This subfunction coordinates the actual
movement of resources into areas where a need (or needs) exists. This includes
the warehousing and tracking of resources, the packaging and loading and
subsequent transportation of resources to affected areas, and the disposal of
used and/or unused resources following a disaster.
2. Resource
Management
This group is responsible for the acquisition of all types of resources
that are identified as "needed" following a disaster. This group will
make arrangements to purchase needed resources if it is determined the state
does not have the resources itself to supply a requirement in the field. The
payment of debts and other encumbrances generated as a result of the emergency
is handled by this group as well.
3. Staging
Areas
To prevent a rapid and overwhelming influx of resources into affected
areas, Staging Areas are utilized as temporary marshaling sites for collecting
and gradually directing emergency resources into those areas. This group
coordinates the activation and utilization of state-operated staging areas and
marshaling points during emergency situations.
H. ESF 8 - Health and Medical Services
1. Emergency
Medical Services
This subfunction coordinates the provision of
2. Public
Health
This group addresses the public health ramifications associated with a
particular emergency. This includes manning shelters, first aid/clinic
operations, restoring public health functions, defining the epidemiology of the
disaster (including the collection and maintenance of statistical data), the
administration of vaccinations and immunizations, the determination of
potential health effects associated with debris accumulation, pollution, hazmat
releases, etc.
3. Crisis
Intervention Support (CIS)
This unit coordinates the provision of CIS to emergency workers who
have worked in the tense environment of a major disaster. This includes state
and local personnel.
I. ESF 9 - Search and Rescue
This group coordinates the state assistance in locating persons missing
as a result of any one or more of a number of reasons. This includes urban
search and rescue problems generated as the result of an earthquake or building
collapse, the search for persons who are lost in wooded or other environments,
the search for escaped prisoners and detainees, the search for downed aircraft,
the extrication of accident victims, etc. This group also provides the
interface with the federal Urban Search and Rescue Teams.
J. ESF 10 - Environmental Response
1. Hazardous
Materials
This subfunction is responsible for
coordinating the technical response to non-radioactive hazardous materials
incidents.
2. Radiological
Materials
This group coordinates the technical response to actual or impending
releases of radiological materials, either as a result of an accident at a
nuclear power plant (i.e., the off-site problems) or processing facility, or
through an accident in some mode of transportation.
K. ESF 11 - Food
This group is responsible for securing food needed for the feeding of
victims and emergency workers in affected areas. Additionally, this group is
also responsible for assessment and protective action implementation associated
with potential harmful effects upon the state's food supply as the result of a
disaster.
L. ESF 12 - Energy
This subfunction is concerned with the
restoration of the utility (electrical and gas) infrastructure following a
disaster, as well as the provision of temporary emergency power capabilities to
critical facilities until such time as a permanent restoration is accomplished.
M. ESF 13 - Law Enforcement
1. Traffic
Control
This subfunction works closely with the ESF 1
group to effect the orderly flow of traffic into, out
of, and around areas affected by a disaster.
2. Security/Crime
Control
This subfunction addresses the provision of security
in disaster areas, as well as the actual policing functions normally associated
with law enforcement activities, including riot control, explosive ordinance
removal, counterterrorism, etc.
3. Institutions/Jails
This group is responsible for coordinating prisoner recapture, the
utilization of prisons and facilities following disasters, and the moving of
prisoners from damaged facilities to undamaged ones.
4. Evacuation/Movement
This group is responsible for coordinating the state's assistance to
local governments in carrying out evacuations.
N. ESF 14 - Donations/Volunteers
1. Donations
This group is responsible for managing the influx of donated goods into
the state following a disaster and provides the interface with the federal
National Donations Management System.
2. Volunteers
This group coordinates the use of persons and organizations who
volunteer their services following a disaster. This includes medical and other
emergency response personnel, public works crews, private charitable groups,
etc.
O. ESF 15 - Recovery
1. Assistance
Programs
This subfunction is the mechanism through
which the state provides disaster relief assistance to victims in the affected
area(s), including the Individual and Family Grant program, the Small Business
Administration's loan programs, the administration of unemployment
compensation, and various other disaster relief programs available for both Presidentially-declared and non-Presidentially
declared disasters.
2. Recovery
and Reconstruction
This subfunction addresses the long-term
economic impact of disasters upon local communities and assists the communities
in developing plans for reconstruction. Grant and low-interest loan programs
are identified and targeted for application by the community. Significant
attention is given to the mitigation of future potential hazards when
developing local recovery plans.