2018 Domestic Operational Law Handbook for Judge Advocates

306 Pages·2017·3.13 MB·English

DOMESTIC OPERATIONAL LAW
HANDBOOK

2018

FOR JUDGE ADVOCATES

CENTER FOR LAW AND MILITARY OPERATIONS

September 2018

2018 DOMESTIC OPERATIONAL LAW HANDBOOK
A PRACTITIONER’S GUIDE FOR JUDGE ADVOCATES

EDITORS and CONTRIBUTING AUTHORS
LTC Ted Martin, USA
MAJ Corey E. Thomas, ARNGUS

2018 CONTRIBUTING AUTHORS

COL Pat Butler LTC Richard Sudder
LTC Bayne Johnston LTC Michael McCann
LTC Stephen Faherty LTC Robert Kavanaugh
LTC Benjamin Currier LTC Thomas Forrest
CDR Michael Gesele MAJ Sean Rogers
MAJ Ryan Kerwin Maj Dimple Nolly
LCDR James Zoll LCDR Jonathan Perry
CPT Charles W. VanDerMiller Mr. Kevin Kapitan
Mr. Robert Goodin Mr. Jonathan Russell
Mr. Robert Gonzales

As well as numerous past editors and contributors to the Domestic Operational Law
Handbook.

The contents of this publication are not to be construed as official positions, policies, or decisions of
the United States Government or any department or agency thereof.

Center for Law and Military Operations (CLAMO)
The Judge Advocate General’s Legal Center and School, U.S. Army
Charlottesville, VA 22903-1781

Cover design by MAJ Corey E. Thomas
The Judge Advocate General’s Legal Center & School

Cover Photos:

Hurricanes

Hurricane Irma rips through Puerto Rico. (September 7, 2017) (Photo courtesy Joshua Hoyos and Mi.I. Nestel ABC News)

Domestic Imagery/Incident Awarness and Assessment

Workers prepare an MQ-1C Gray Eagle drone at Michael Army Airfield, Dugway Proving Ground in Utah September 15, 2011.
Reuters/U.S. Army/Spc. Latoya Wiggins/Handout

Chemica/Biological/Radiological/Nuclear/Environmental

Staff Sgt. Hector Pena, 48th Chemical Bde., participates in a situational training lanes exercise during the 20th CBRN Command
Best Warrior Competition July 23, 2014 at Aberdeen Proving Ground, Md. (Photo courtesy Laurena Bell, 20TH CBRN
COMMAND)

Floods

Livestock stranded on high ground surrounding a house under construction during the 2016 flood in Louisiana. (Photo courtesy
Bossier Parish Sheriff’s Office)

Counterdrug

Arkansas Guard members help State Police remove marijuana plants from a Guard helicopter during a recent eradication mission in
support of the National Guard's Counterdrug Program. (September 3, 2008) (Photo courtesy Staff Sgt. Chris A. Durney)
Insurrection
Federalized Soldiers from the Arkansas Army National Guard and the 101st Airborne Division providing support to local law
enforcement in accordance with President Dwight Eisenhower’s Insurrection Act authority. (September 26, 1957) (Photo courtesy
Richard Austin of theclio.com)
National Special Security Events
The 2017 Presidential Inauguration (Photo courtesy Elijah Crawford, 2017)
Wildfires
In 2000, this wildfire burned just north of Sula, Montana. (Photo courtesy John McColgan, Bureau of Land Management)

EDITOR’S NOTE
The Domestic Operational Law (DOPLAW) Handbook for judge advocates is a product of the
Center for Law and Military Operations (CLAMO). The content is derived from statutes, Executive
Orders and Directives, national policy, DoD Directives and Instructions, joint publications, service
regulations, field manuals, as well as lessons learned by judge advocates and other practitioners
throughout Federal and State government. This edition includes substantial revisions. It
incorporates new guidance set forth in Department of Defense Directive 3025.18 (Defense Support
of Civil Authorities), Department of Defense Instruction 3025.21 (Defense Support of Civilian Law
Enforcement Agencies), numerous new National Planning Framework documents, and many other
recently updated publications. It provides amplifying information on wildfire response, emergency
mutual assistance compacts, the role of the National Guard and Army units in domestic response,
and provides valuable lessons learned from major disasters such as Hurricanes Harvey, Irma, and
Maria.
The Handbook is designed to serve as a working reference and training tool for judge advocates;
however, it is not a substitute for independent research. With the exception of footnoted doctrinal
material, the information contained in this Handbook is not doctrine. Judge advocates advising in
this area of the law should monitor developments in domestic operations closely as the landscape
continues to evolve. Further, the information and examples provided in this Handbook are advisory
only. The term “State” is frequently used throughout this Handbook, and collectively refers to the
50 States, Guam, Puerto Rico, U.S. Virgin Islands, and the District of Columbia. The same is often
referred to as “the 54 States and territories.” Finally, the content and opinions expressed in this
Handbook do not represent the official position of the U.S. Army or the other services, the National
Guard Bureau, the Office of The Judge Advocate General, The Judge Advocate General’s Legal
Center and School, or any other government agency.
This Handbook is also available in electronic format from the CLAMO website at
https://www.jagcnet.army.mil/, and the “Military Legal Resources” section of the Library of
Congress website at https://www.loc.gov/rr/frd/Military_Law/military-legal-resources-home.html.
CLAMO also posts lessons learned, after action reports, and other products in the National Security
Law Document Library on JAGCNET at https://www.jagcnet2.army.mil/IODocLib (CAC access
required), and the National Security Law Milbook site at
https://www.milsuite.mil/book/groups/international-and-operational-law (CAC access required).
The continued vitality of this publication depends upon feedback from the field. Accordingly,
CLAMO encourages your suggestions, comments, and work products for incorporation into the
next edition of this Handbook. You may contact CLAMO at [phone]/3210 (COMM), 521-
3248/3210 (DSN), via email at [email protected], or via
regular mail at 600 Massie Road, Charlottesville, Virginia 22903-1781.

Domestic Operational Law Handbook 2018
TABLE OF CONTENTS

CHAPTER 1: OVERVIEW OF DOMESTIC SUPPORT OPERATIONS ............................................................1
A. BACKGROUND .................................................................................................................................1
B. PURPOSE OF THIS HANDBOOK .........................................................................................................3
C. DOD’S ROLE IN CIVIL SUPPORT ......................................................................................................3
D. DEFENSE SUPPORT OF CIVIL AUTHORITIES (DSCA) .......................................................................6
E. HANDBOOK ORGANIZATION ............................................................................................................6

CHAPTER 2: NATIONAL FRAMEWORK FOR INCIDENT MANAGEMENT ..................................................8
A. THE FEDERAL RESPONSE STRUCTURE ............................................................................................9
1. E.O. 12656 ......................................................................................................................10
2. THE HOMELAND SECURITY ACT ......................................................................................11
3. HOMELAND SECURITY PRESIDENTIAL DIRECTIVE 5 (MANAGEMENT OF DOMESTIC
INCIDENTS) ......................................................................................................................12
4. PRESIDENTIAL POLICY DIRECTIVE 8 ................................................................................13
5. PPD-8 AND THE NATIONAL PREPAREDNESS SYSTEM (NPS) ............................................14
6. NATIONAL RESPONSE FRAMEWORK.................................................................................14
7. NATIONAL PREVENTION FRAMEWORK .............................................................................26
8. NATIONAL MITIGATION FRAMEWORK .............................................................................27
9. NATIONAL DISASTER RECOVERY FRAMEWORK ...............................................................28
10. NATIONAL PROTECTION FRAMEWORK .............................................................................29
11. NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS) ....................................................30
12. OTHER SIGNIFICANT RESPONSE PLANS AND AUTHORITIES RELATED TO NPS .................31
B. THE STAFFORD ACT ......................................................................................................................34
1. REQUESTS FOR EMERGENCY OR MAJOR DISASTER DECLARATIONS ................................37
2. LIABILITY UNDER THE STAFFORD ACT .............................................................................39
3. CATEGORIES OF AGENCY SUPPORT UNDER THE STAFFORD ACT .....................................39
4. INTERPLAY BETWEEN THE STAFFORD ACT AND NPS ......................................................40
C. IMMEDIATE RESPONSE AUTHORITY ...............................................................................................41
1. FEDERAL MILITARY COMMANDERS .................................................................................41
2. STATE GOVERNORS .........................................................................................................42
D. CONCLUSION .................................................................................................................................42

CHAPTER 3: STATUS AND RELATIONSHIPS BETWEEN COMPONENTS RESPONDING TO DOMESTIC
INCIDENTS ....................................................................................................................................45
A. INTRODUCTION ..............................................................................................................................45
B. RESERVE COMPONENT ..................................................................................................................46
1. U.S. ARMY RESERVE (USAR) .........................................................................................46
2. U.S. AIR FORCE RESERVE (USAFR) ...............................................................................46
Table of Contents