FEMA Operational Planning Manual

1 U. S. DEPARTMENT OFHOMELAND SECURITYFEMAFEMA Operational Planning ManualFEMA P-1017 / June 20141 Contents Chapter 1: Introduction ..8 Purpose .. 8 Applicability and Scope .. 9 Supersession .. 9 Authorities and Foundational Documents .. 9 Background .. 10 Incorporating National Planning System and Federal Interagency Operational Plans Guidance .. 10 How to Use This Manual .. 13 Planning as Risk Management .. 14 The Planning Process .. 14 Chapter 2: Types of Operational Plans and Their Definitions .. 17 Operational Planning .. 17 Deliberate Plans .. 17 crisis action Plans .. 17 Chapter 3: Step 1 - Form A Collaborative Planning Team .. 19 Scoping the Plan .. 19 Senior Leader s Intent.

2 20 Scope .. 20 Develop a Work Plan .. 21 Create a Planning Notification .. 22 Parts of a Planning Team .. 23 Senior Leadership Steering Committee .. 23 Core Planning Team .. 24 Collaborative Planning Team .. 25 Planning Team Members .. 25 Planning Team Leader .. 25 Planners .. 26 Subject Matter Experts .. 27 Partners and Stakeholders .. 27 Engage the Whole Community .. 29 Chapter Summary .. 29 Chapter 4: Step 2 - Understand the Situation .. 30 The Information Analysis Process .. 30 31 Operational 32 Capabilities .. 32 Resource Limitations and Shortfalls .. 32 Research Sources .. 32 Risk information .. 33 2 Strategic National Risk Assessment .. 33 State and Local Hazard Mitigation Plans.

3 34 Threat and Hazard Assessment (THIRA) .. 34 Fusion Centers .. 35 FEMA Studies and Analysis .. 35 Statutes .. 35 Resources from Other Planning 35 Analysis .. 35 Identify Threat/Hazard and Develop Planning Scenario .. 36 Determine Physical Effects and Operational Impacts .. 37 Identify Physical Effects .. 38 Determine Operational Impacts .. 38 Identify Critical Facts and 39 Facts .. 39 Assumptions .. 39 Planning Factors .. 39 Core Capability Analysis .. 41 Catastrophic Scenarios .. 42 Chapter Summary .. 42 Chapter 5: Step 3 - Determine Goals and Objectives .. 43 Describe End State .. 43 Develop Mission Statement .. 43 Identify Relevant Operational Phases .. 44 Operational Phases.

4 44 Phase 1 .. 45 Phase 2 .. 46 Phase 3 .. 46 Developing Criteria by Phase .. 46 Types of Incidents and Phases .. 47 Response, Recovery and Mitigation Relationships .. 47 Develop Objectives .. 48 Objectives by Core Capability .. 49 Brief Senior Leaders .. 50 Components of an Information Analysis Brief .. 51 Gain SLSC Approval of the Analysis .. 52 Chapter Summary .. 52 Chapter 6: Step 4 - Plan Development .. 53 Courses of 53 Concept of Operations .. 53 Concept of 54 Course of action Development .. 54 Forming a COA Workgroup .. 54 Brainstorming .. 55 Envisioning Operations .. 55 Developing Resource Needs .. 55 3 Atypical Solutions .. 55 Writing a COA Description .. 56 Course of action Analysis.

5 57 Develop Assessment Criteria .. 57 Define Criteria Ratings .. 58 Course of action Comparison .. 59 Weighted Numerical Comparison Technique .. 60 Non-Weighted Numerical Comparison Technique .. 61 Qualitative Narrative Technique .. 61 Plus/Minus/Neutral Comparison .. 62 Selecting a COA Comparison Technique .. 62 Numeric Comparison .. 62 Narrative Comparisons .. 62 Plus/Minus/Neutral Comparisons .. 62 Course of action Recommendation .. 62 Course of action Decision Brief .. 63 Operational Design .. 64 Tasks .. 68 Coordination of Tasks .. 68 Resource Allocation and Alignment .. 69 Resource Alignment Desired Outcomes: .. 70 Chapter Summary .. 71 Chapter 7: Step 5 - Plan Preparation, Review, and Approval.

6 72 Write the Plan .. 72 Organizing Materials .. 72 Using Clear and Concise Language .. 73 Using Planning Products .. 73 Using a Standard Format .. 73 FEMA Deliberate Plan Outline .. 74 Review the Plan .. 75 Approve and Disseminate the Plan .. 75 Final Plan Briefing .. 75 Chapter Summary .. 77 Chapter 8: Step 6 - Plan Implementation and Maintenance .. 78 Transfer of Responsibility .. 78 Training and Exercising The Plan .. 78 Train on the Plan .. 79 Annual Training .. 79 Ad Hoc 79 After- action Report, Corrective action Plan, and Training Synchronization .. 79 Communicating the Training Aspect of the Plan .. 79 Exercise the Plan .. 79 Exercising Plans at FEMA .. 80 Executing the Plan.

7 81 4 Refining Documents .. 81 Maintaining the Plan .. 81 Chapter Summary .. 82 Chapter 9: Using Deliberate Plans in crisis action Planning .. 83 crisis action Planning .. 85 crisis action Planning Products .. 88 Incident action Plan .. 88 The Planning P and the Operations O .. 88 Advance Operational Plan .. 90 Incident Strategic Plan .. 90 Recovery Support Strategy .. 90 Regional Support Plan (RSP) .. 91 National Support Plan .. 91 Functional Plans .. 92 Chapter Summary .. 92 Appendix A: Glossary .. 93 Appendix B: Acronym List .. 99 Appendix C: Deliberate Plan Template .. 103 1. Situation .. 103 2. 104 3. Execution .. 105 4. Administration, Resources, and Funding .. 105 5.

8 Oversight, Coordinating Instructions, and Communications .. 106 Annexes .. 106 Annex A: Task Organization .. 107 Appendix 1 .. 108 Tab .. 108 Annex B: Intelligence .. 108 Annex C: Operations .. 110 Appendix #: (Core Capabilities) .. 111 Annex D: 112 Annex E: Communications .. 113 Annexes F-W: (Defined by planners as needed) .. 113 Annex X: Execution .. 113 Annex Z: 114 Appendix D: Example Annex D 115 1. Situation .. 115 2. 115 3. Execution .. 115 Appendix A: Synchronization Matrix .. 116 4. Administration, Resources, and Funding .. 116 Capability Resources .. 116 Internal and External 116 5 Shared Resources .. 116 Adjudication of Resources .. 116 Financial .. 116 5.

9 Oversight, Coordinating Instructions, and Communications .. 116 National Level .. 116 Regional Level .. 117 State, Local, Tribal, Territorial .. 117 Incident Level .. 117 International Level .. 117 Coordinating Information .. 117 Critical Information Requirements .. 118 Identify Critical 118 Appendix 1 .. 118 Appendix 2: Critical Transportation: .. 118 1. Situation .. 118 2. Mission .. 118 3. Execution .. 119 4. Administration and Support .. 127 Appendix E: Authorities and Foundational Documents .. 128 Appendix F: Planning Notification Outline .. 131 Appendix G: Plan Rubric .. 132 Appendix H: Sample Core Capability Objectives .. 133 Appendix I Planning Integration .. 136 Key Assumptions.

10 136 Proposed End State .. 136 Appendix J: Planner s Toolkit .. 139 Appendix K: Core Capability Fact Sheets .. 140 List of Figures Figure 1: Mission Areas and Core Capabilities in 12 Figure 2: Deliberate Plan Alignment.. 13 Figure 3: The Six-Step Planning Process.. 15 Figure 4: The Planning Process.. 16 Figure 5: Forming a Planning Team.. 19 Figure 6: Planning Team Parts, Roles, and Examples of Members.. 23 Figure 7: The Planning Team.. 29 Figure 8: Understand the Situation.. 30 Figure 9: Research to Analysis.. 36 6 Figure 10: Informing the Planning Scenario.. 37 Figure 11: Analysis to Planning Factors.. 40 Figure 12: Planning Factors by Core Capability.. 41 Figure 13: Core Capability Analysis and Planning Factors.