FEMA Operational Planning Manual
FEMA OperationalPlanning ManualFEMA P-1017 / June 2014PARTMENTOMELRIHOTYFU. S.DEAND SECUFEMA
ContentsChapter 1: Introduction .8Purpose . 8Applicability and Scope . 9Supersession. 9Authorities and Foundational Documents . 9Background . 10Incorporating National Planning System and Federal Interagency Operational Plans Guidance . 10How to Use This Manual . 13Planning as Risk Management . 14The Planning Process . 14Chapter 2: Types of Operational Plans and Their Definitions .17Operational Planning . 17Deliberate Plans . 17Crisis Action Plans . 17Chapter 3: Step 1 - Form A Collaborative Planning Team.19Scoping the Plan . 19Senior Leader’s Intent . 20Scope . 20Develop a Work Plan . 21Create a Planning Notification . 22Parts of a Planning Team . 23Senior Leadership Steering Committee . 23Core Planning Team . 24Collaborative Planning Team . 25Planning Team Members . 25Planning Team Leader . 25Planners . 26Subject Matter Experts . 27Partners and Stakeholders . 27Engage the Whole Community . 29Chapter Summary . 29Chapter 4: Step 2 - Understand the Situation.30The Information Analysis Process . 30Research. 31Operational Environment. 32Capabilities . 32Resource Limitations and Shortfalls . 32Research Sources . 32Risk information. 331
Strategic National Risk Assessment . 33State and Local Hazard Mitigation Plans . 34Threat and Hazard Assessment (THIRA) . 34Fusion Centers. 35FEMA Studies and Analysis . 35Statutes . 35Resources from Other Planning Initiatives. 35Analysis . 35Identify Threat/Hazard and Develop Planning Scenario . 36Determine Physical Effects and Operational Impacts . 37Identify Physical Effects . 38Determine Operational Impacts. 38Identify Critical Facts and Assumptions. 39Facts . 39Assumptions. 39Planning Factors . 39Core Capability Analysis . 41Catastrophic Scenarios. 42Chapter Summary . 42Chapter 5: Step 3 - Determine Goals and Objectives .43Describe End State . 43Develop Mission Statement . 43Identify Relevant Operational Phases . 44Operational Phases . 44Phase 1 . 45Phase 2 . 46Phase 3 . 46Developing Criteria by Phase . 46Types of Incidents and Phases . 47Response, Recovery and Mitigation Relationships . 47Develop Objectives . 48Objectives by Core Capability . 49Brief Senior Leaders . 50Components of an Information Analysis Brief . 51Gain SLSC Approval of the Analysis . 52Chapter Summary . 52Chapter 6: Step 4 - Plan Development .53Courses of Action. 53Concept of Operations . 53Concept of Support. 54Course of Action Development . 54Forming a COA Workgroup . 54Brainstorming . 55Envisioning Operations . 55Developing Resource Needs . 552
Atypical Solutions . 55Writing a COA Description . 56Course of Action Analysis . 57Develop Assessment Criteria . 57Define Criteria Ratings . 58Course of Action Comparison . 59Weighted Numerical Comparison Technique . 60Non-Weighted Numerical Comparison Technique . 61Qualitative Narrative Technique . 61Plus/Minus/Neutral Comparison . 62Selecting a COA Comparison Technique . 62Numeric Comparison . 62Narrative Comparisons . 62Plus/Minus/Neutral Comparisons . 62Course of Action Recommendation . 62Course of Action Decision Brief . 63Operational Design . 64Tasks . 68Coordination of Tasks . 68Resource Allocation and Alignment . 69Resource Alignment Desired Outcomes:. 70Chapter Summary . 71Chapter 7: Step 5 - Plan Preparation, Review, and Approval .72Write the Plan . 72Organizing Materials . 72Using Clear and Concise Language . 73Using Planning Products . 73Using a Standard Format . 73FEMA Deliberate Plan Outline . 74Review the Plan . 75Approve and Disseminate the Plan . 75Final Plan Briefing . 75Chapter Summary . 77Chapter 8: Step 6 - Plan Implementation and Maintenance .78Transfer of Responsibility . 78Training and Exercising The Plan . 78Train on the Plan . 79Annual Training . 79Ad Hoc Training. 79After-Action Report, Corrective Action Plan, and Training Synchronization . 79Communicating the Training Aspect of the Plan. 79Exercise the Plan . 79Exercising Plans at FEMA . 80Executing the Plan . 813
Refining Documents . 81Maintaining the Plan . 81Chapter Summary . 82Chapter 9: Using Deliberate Plans in Crisis Action Planning .83Crisis Action Planning . 85Crisis Action Planning Products . 88Incident Action Plan . 88The Planning “P” and the Operations “O” . 88Advance Operational Plan . 90Incident Strategic Plan . 90Recovery Support Strategy . 90Regional Support Plan (RSP) . 91National Support Plan . 91Functional Plans . 92Chapter Summary . 92Appendix A: Glossary .93Appendix B: Acronym List .99Appendix C: Deliberate Plan Template . 1031. Situation . 1032. Mission. 1043. Execution . 1054. Administration, Resources, and Funding . 1055. Oversight, Coordinating Instructions, and Communications . 106Annexes . 106Annex A: Task Organization . 107Appendix 1. 108Tab 1.1 . 108Annex B: Intelligence . 108Annex C: Operations . 110Appendix #: (Core Capabilities) . 111Annex D: Logistics. 112Annex E: Communications . 113Annexes F-W: (Defined by planners as needed) . 113Annex X: Execution . 113Annex Z: Distribution. 114Appendix D: Example Annex D Structure. 1151.2.3.Situation . 115Mission. 115Execution . 115Appendix A: Synchronization Matrix . 1164. Administration, Resources, and Funding . 116Capability Resources . 116Internal and External Resources. 1164
Shared Resources . 116Adjudication of Resources . 116Financial . 1165. Oversight, Coordinating Instructions, and Communications . 116National Level . 116Regional Level . 117State, Local, Tribal, Territorial . 117Incident Level . 117International Level . 117Coordinating Information . 117Critical Information Requirements . 118Identify Critical Consideration. 118Appendix 1 . 118Appendix 2: Critical Transportation: . 1181. Situation . 1182. Mission . 1183. Execution. 1194. Administration and Support . 127Appendix E: Authorities and Foundational Documents . 128Appendix F: Planning Notification Outline . 131Appendix G: Plan Rubric . 132Appendix H: Sample Core Capability Objectives . 133Appendix I Planning Integration . 136Key Assumptions . 136Proposed End State . 136Appendix J: Planner’s Toolkit . 139Appendix K: Core Capability Fact Sheets . 140List of FiguresFigure 1: Mission Areas and Core Capabilities in PPD-8.12Figure 2: Deliberate Plan Alignment. .13Figure 3: The Six-Step Planning Process. .15Figure 4: The Planning Process. .16Figure 5: Forming a Planning Team. .19Figure 6: Planning Team Parts, Roles, and Examples of Members. .23Figure 7: The Planning Team. .29Figure 8: Understand the Situation. .30Figure 9: Research to Analysis. .365
Figure 10: Informing the Planning Scenario. .37Figure 11: Analysis to Planning Factors. .
This FEMA Operational Planning Manual describes how FEMA conducts operational planning activities. To maximize interoperability within FEMA, it is important to standardize the approach to operational planning. This manual identifies and describes
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