Domestic Operational Law Handbook for Judge Advocates, 2013

248 Pages·2013·2.66 MB·English

DOMESTIC OPERATIONAL LAW

HANDBOOK

2013

FOR JUDGE ADVOCATES

CENTER FOR LAW AND MILITARY OPERATIONS

October 2013

2013 DOMESTIC OPERATIONAL LAW HANDBOOK

A PRACTITIONER’S GUIDE FOR JUDGE ADVOCATES

EDITORS
CDR Dave Sherry, USCG
LCDR Robert Pirone, USCG
2013 CONTRIBUTORS

COL Michael Noyes LTC Richard Sudder
LTC John Maier MAJ Ben Currier
LTC Nick Lancaster MAJ Bayne Johnston
MAJ Bill Johnson MAJ José Gonzalez
MAJ Hobe Schultz MAJ Pia Rogers
LCDR Holly Higgins MAJ Marc Koblenz
MAJ George Burnette MAJ Robert Kavanaugh
MAJ Maximino Gonzalez LT Michael Walker

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.

Cover design by Ms. Cherie A. Hulsman-Reid,

The Judge Advocate General’s Legal Center & School

Cover Photos:

100421-G-XXXXL - Deepwater Horizon fire

NEW ORLEANS - Fire boat response crews battle the blazing remnants of the off shore oil rig Deepwater Horizon April 21, 2010.
A Coast Guard MH-65C dolphin rescue helicopter and crew document the fire aboard the mobile offshore drilling unit Deepwater
Horizon, while searching for survivors April 21, 2010. Multiple Coast Guard helicopters, planes and cutters responded to rescue the
Deepwater Horizon's 126 person crew. U.S. Coast Guard photo, PO Richard Brahm.

050830-C-3721C-032 (FR) - Hurricane Katrina

NEW ORLEANS (Aug. 30, 2005) - Coast Guard Petty Officer 2nd Class Shawn Beaty looks for survivors in the wake of Hurricane
Katrina. U.S. Coast Guard photo by Petty Officer 2nd Class NyxoLyno Cangemi.

121128-G-HE371-001 - Coast Guard works with Army Corps during Hurricane Sandy

Cmdr. Eric Doucette, Incident Commander for the Hurricane Sandy Pollution Response Unified Command, Capt. Gordon Loebl,
Captain of the Port of N.Y., Col. Paul Owen, Commander and District Engineer with the Army Corps of Engineers and ACOE
representatives discuss the plan for the salvage of the John B. Caddell on Staten Island, a 184-foot tank ship that ran aground
following Hurricane Sandy. U.S. Coast Guard photo by Petty Officer 1st Class Matthew Schofield.

110829-G-AV652-370 - La Push, WA

La Push, WA. Members from the U.S. Coast Guard 13th District Aids to Navigation Hardware Shop, U.S. Coast Guard Cutter Fir,
an aircrew from the U.S. Army Reserves' Bravo Company 214th General Support Aviation Battalion, U.S. Coast Guard Station
Quillaute River and members from the Quileute Tribe worked together to remove the buoy that washed up on shore in the winter of
2010. U.S. Coast Guard photo by Petty Officer 2nd Class Zac Crawford.

RU785-442 - Mississippi Tornado Response

Mississippi Army National Guardsmen with the 1st Squadron, 98th Cavalry Regiment and firemen with the Smithville, Miss.,
Volunteer Fire Department talk April 29, 2011, while searching for survivors of a deadly tornado that struck the town April 27, 2011.
(U.S. Army photo by Sgt. Charles Brice/Released). Date Shot: 4/29/2011. Date Posted: 5/5/2011; VIRIN: 110429-A-RU785-442.

EDITORS’ NOTE

The Domestic Operational Law (DOPLAW) Handbook for judge advocates is a product of the
Center for Law and Military Operations (CLAMO). Its content is derived from statutes, Executive
Orders and Directives, national policy, DoD Directives, joint publications, service regulations, field
manuals, and 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 incidents such as the 2010 Deepwater Horizon oil
spill and Hurricane Sandy of 2012.
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. 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/. CLAMO also provides lessons learned from domestic operations
and other resources on its Domestic Operations portal on the CLAMO website. 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 2013

TABLE OF CONTENTS

CHAPTER 1: OVERVIEW OF DOMESTIC SUPPORT OPERATIONS ......................................................................................... 1

A. BACKGROUND ..................................................................................................................................................... 1

B. PURPOSE OF THIS HANDBOOK ............................................................................................................................. 2

C. DOD’S ROLE IN CIVIL SUPPORT .......................................................................................................................... 3

D. DEFENSE SUPPORT OF CIVIL AUTHORITIES (DSCA) ........................................................................................... 4

E. HANDBOOK ORGANIZATION ............................................................................................................................... 5

CHAPTER 2: NATIONAL FRAMEWORK FOR INCIDENT MANAGEMENT ............................................................................... 7

A. THE FEDERAL RESPONSE STRUCTURE .................................................................................................................. 8

1. E.O. 12656................................................................................................................................................... 8

2. THE HOMELAND SECURITY ACT .................................................................................................................. 9

3. HOMELAND SECURITY PRESIDENTIAL DIRECTIVE 5 (MANAGEMENT OF DOMESTIC INCIDENTS) ............... 10

4. PRESIDENTIAL POLICY DIRECTIVE 8 .......................................................................................................... 12

5. PPD-8 AND THE NATIONAL PREPAREDNESS SYSTEM (NPS) ...................................................................... 12

6. NATIONAL RESPONSE FRAMEWORK .......................................................................................................... 13

7. NATIONAL PREVENTION FRAMEWORK....................................................................................................... 22

8. NATIONAL MITIGATION FRAMEWORK ....................................................................................................... 23

9. NATIONAL DISASTER RECOVERY FRAMEWORK ......................................................................................... 24

10. NATIONAL INCIDENT MANAGEMENT SYSTEM (NIMS) .............................................................................. 25

11. OTHER SIGNIFICANT RESPONSE PLANS AND AUTHORITIES RELATED TO NPS ........................................... 26

B. THE STAFFORD ACT .......................................................................................................................................... 29

1. REQUESTS FOR EMERGENCY OR MAJOR DISASTER DECLARATIONS .......................................................... 31

2. LIABILITY UNDER THE STAFFORD ACT ...................................................................................................... 34

3. INTERPLAY BETWEEN THE STAFFORD ACT AND NPS ................................................................................ 34

C. IMMEDIATE RESPONSE AUTHORITY .................................................................................................................. 35

1. FEDERAL MILITARY COMMANDERS ........................................................................................................... 35

2. STATE GOVERNORS ................................................................................................................................... 36

D. CONCLUSION ..................................................................................................................................................... 36

CHAPTER 3: STATUS AND RELATIONSHIPS BETWEEN COMPONENTS RESPONDING TO DOMESTIC INCIDENTS .................. 39

A. INTRODUCTION ................................................................................................................................................. 39

B. RESERVE COMPONENT ...................................................................................................................................... 40

1. U.S. ARMY RESERVE (USAR) ................................................................................................................... 40

2. U.S. AIR FORCE RESERVE (USAFR) ......................................................................................................... 40

3. U.S. NAVAL RESERVE (USNR) ................................................................................................................. 41

4. U.S. MARINE CORPS RESERVE (USMCR) ................................................................................................ 41

5. U.S. COAST GUARD RESERVE (USCGR) ................................................................................................... 41

6. NATIONAL GUARD OF THE UNITED STATES (NGUS) ................................................................................. 42

C. RESERVE COMPONENT CATEGORIES ................................................................................................................. 46

1. READY RESERVE ........................................................................................................................................ 46

2. STANDBY RESERVE .................................................................................................................................... 47

3. RETIRED RESERVE ..................................................................................................................................... 48

D. RESERVE COMPONENT TRAINING AND SUPPORT .............................................................................................. 48

1. TRAINING ................................................................................................................................................... 48

2. SUPPORT .................................................................................................................................................... 49

3. MILITARY TECHNICIANS (DUAL STATUS) (MT) ........................................................................................ 50

E. MOBILIZATION/ACTIVATION OF RESERVE COMPONENT AND CALLING UP THE MILITIA .................................. 50

1. FULL MOBILIZATION (10 U.S.C.A. § 12301(A)) ........................................................................................ 51

2. PARTIAL MOBILIZATION (10 U.S.C.A. § 12302(A)) ................................................................................... 51

3. PRESIDENTIAL RESERVE CALL-UP (PRC) (10 U.S.C.A. § 12304) .............................................................. 52

Table of Contents