National US&R Response System Strategic Plan

National US&R Response System
Strategic Plan
2016-2020
National Urban Search & Rescue Response System – Strategic Plan 2016-2020
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National US&R Response System

2016-2020 Strategic Plan
Forward
On behalf of the almost 6,000 members of the National Urban Search and Rescue (US&R) Response
System (the System), the 2015 Strategic Group presents the System’s 2016 to 2020 Strategic Plan.
The National US&R Response System is a framework for structuring local emergency services
personnel into integrated Federal response resources with the partnership of the Federal Emergency
Management Agency. The 28 System Sponsoring and Participating Agencies employ the tools,
equipment, skills, techniques and personnel necessary to maintain US&R resources. FEMA’s
Operations Division can deploy these resources to assist state, tribal, territorial, and local
governments to rescue survivors of structural collapse and wide-area disaster incidents or to assist
in other search and rescue activities..
This Strategic Plan is ambitious in terms of its strategies and implementing actions; nevertheless it
provides a blueprint and markers to guide our actions from 2016 to 2020.
The strategic plan presents our vision for a number of improvements in:
• Search and rescue operations in an all-hazards environment that save lives, protect property,
and help citizens;
• Maintaining the readiness of the System;
• Exchanging information and promoting awareness of the System;
• Building strong and resilient partnerships to enhance response capabilities; and
• Instilling public confidence in the integrity of the System.
Most importantly, the National US&R System depends on cooperative partnerships among Federal,
state, tribal, territorial and local agencies. It uniquely integrates standardized search and rescue
operational concepts, training, and equipment at 28 different locations, thus ensuring a high state of
readiness. Over the last decade the System has continually been at the forefront leading search and
rescue efforts to save lives during disaster responses. Implementing this strategic plan will better
enable our personnel to carry out the System’s critical mission and serve the Nation.
Respectfully,
The 2015 Strategic Group
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2015 Strategic Group
_______________________________________________ _______________________________________________
Robert Farmer, Director Fred Endrikat, Chief
Operations Division, Response Directorate Urban Search and Rescue Branch
Office of Response & Recovery Operations Division, Response Directorate
Federal Emergency Management Agency Office of Response & Recovery
Federal Emergency Management Agency
_______________________________________________ _______________________________________________
Walter White, Chief Steve Cover, Chief
Sacramento Fire Department, CA Virginia Beach Fire Department, VA
Sponsoring Agency Chief – CA-TF7 Sponsoring Agency Chief – VA-TF2
Sponsoring Agency Chief Representative Sponsoring Agency Chief Representative
Western Division Eastern Division
_______________________________________________ _______________________________________________
Don Lombardi, Chief William Brown, Chief
West Metro Fire Protection District, CO Brownsburg Fire Territory – IN-TF1
Sponsoring Agency Chief – CO-TF1 Advisory Group Chair
Sponsoring Agency Chief Representative
Central Division
_______________________________________________
Rick Bartee, Chief
Roseville Fire Department – CA-TF7
National Task Force Representative
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Table of Contents
Forward ....................................................................................................................... ii
Introduction: ....................................................................................................................... 1
I-1: Executive Summary ....................................................................................................................... 1
I-2: Overview ....................................................................................................................................... 2
I-3: Vision............................................................................................................................................. 3
I-4: Mission .......................................................................................................................................... 4
I-5: Strategic Priorities ......................................................................................................................... 5
Strategic Priority 1: Be Survivor-Centric in Mission and Program Delivery ............. 6

Objective 1.1: External Communications ............................................................................................ 7
Objective 1.2: Internal Communications ............................................................................................. 7
Strategic Priority 2: Become an Expeditionary Organization ......................................... 9

Objective 2.1: Rapid Deployment........................................................................................................ 9
Objective 2.2: Deployment Risk Management .................................................................................... 9
Objective 2.3: Training Requirements Meet or Exceed National Standards ..................................... 11
Objective 2.4: Safety during Training, Exercises, and International Deployments ........................... 11
Objective 2.5: Adequate, Sustainable Equipment ............................................................................. 12
Objective 2.6: Evaluation of Readiness ............................................................................................. 15
Objective 2.7: Effective Integration of Partners during SAR Operations .......................................... 16
Strategic Priority 3: Posture and Build Capacity for Catastrophic Disasters .......... 17
Objective 3.1: Effective Coordination During Initial Deployment ..................................................... 17
Objective 3.2: Refinement of Structural Collapse SAR Mission ........................................................ 17
Objective 3.3: Building Response Partnerships ................................................................................. 18
Objective 3.4: Effective Integration of Partners during SAR Operations .......................................... 20
Strategic Priority 4: Enable Disaster Risk Reduction Nationally ................................. 23

Objective 4.1: Enable Disaster Risk Reduction Nationally................................................................. 23
Strategic Priority 5: Strengthen the System’s Organizational Foundation .............. 25

Objective 5.1: Build, manage, and strengthen the workforce .......................................................... 25
Appendix A: 2016-2020 Strategic Plan Implementation Timeline .............. 29

Appendix B: Abbreviations and Acronyms ........................................................... 37
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Introduction:
I-1: Executive Summary

The National US&R Response System is comprised of 28 task forces that can rapidly deploy skilled
personnel and state-of-the-art equipment to disaster sites and building collapses. In addition to
search and rescue (SAR), task force members provide immediate medical treatment to survivors,
structural stabilization capabilities, and Hazardous Materials (Hazmat) monitoring.
This strategic plan is a product of the collaborative efforts of the System’s Strategic Planning
Development Ad Hoc Group, Advisory Group, Strategic Group, and the Federal Emergency
Management Agency’s (FEMA) US&R Branch. It has the concurrence of the Strategic Group and
supports the FEMA Strategic Plan and the FEMA Response Directorate Strategic Plan. It details the
goals of the System to maintain the System’s place as a premier US&R organization with
performance-driven capabilities, attainable and sound strategic priorities for its program, while
acknowledging the importance of an integrated, well-trained, highly-skilled membership.
This strategic plan describes the System’s mission to improve performance and its vision to continue
setting a standard of excellence. It identifies strategic priorities for fiscal years 2016 through 2020,
which address the following five areas:
• Be Survivor-Centric in Mission and Program Delivery – Exchange information, promote
awareness, and instill confidence in the integrity of the System
• Become an Expeditionary Organization – Lead the nation in structural collapse (urban)
SAR operations in an all-hazards environment that save lives, protect property, and help
citizens
• Posture and Build Capacity for Catastrophic Disasters – Assess the System and build
strong and resilient partnerships across the emergency response community to share
knowledge, build consensus, and enhance response capabilities to ensure optimal readiness
• Enable Disaster Risk Reduction Nationally – Capitalize on the System’s roles,
responsibilities, and conduct of related activities to address reduce risk to the Nation and its
citizens
• Strengthen the Organizational Foundation – Invest in and maintain the System’s
personnel, equipment, and processes, to improve performance and efficiency
For each of these five strategic priorities, this plan identifies objectives, strategies, and performance
measures that will create the framework for success.
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I-2: Overview
The National US&R Response System is a unique national partnership of approximately 6,000 local,
state, and Federal first responders, including:
• Firefighters • Canine Search Specialists
• Police Officers • Hazardous Material Specialists
• Emergency Medical Technicians • Rescue Specialists
• Paramedics • Heavy Equipment Rigging Specialists
• Doctors • Logisticians
• Engineers • Planners
The System responds to national crises after a disaster occurs, supporting local first responders. Its
core mission focuses on structural collapse SAR in an urban environment.
System members conducted operations in Los Angeles after the Northridge earthquake in 1994, in
Oklahoma City after the bombing of the Alfred P. Murrah Federal Building in 1995, at the World Trade
Center and Pentagon in 2001, in Mississippi and Louisiana after Hurricane Katrina in 2005, and in
Haiti during the 2010 earthquake—to name a few examples. Two of the System’s 28 task forces are
also certified classified as international task forces and responded to disasters in other countries
through the U.S. Agency for International Development’s Office of Foreign Disaster Assistance
(USAID/OFDA). US&R is a multi-hazard discipline requiring highly-trained, skilled personnel, as well
as canine search teams.
Initially established in 1990, the System is presently composed of 28 Sponsoring Agency-provided

task forces, three Incident Support Teams, an Advisory Organization, and the FEMA US&R Branch:
• System Task Forces are sponsored by local emergency response agencies in 19 states,
managed through Memoranda of Agreement and Readiness Cooperative Agreements. They
are activated for response as Federal resources through Response Cooperative Agreements.
• Incident Support Teams (ISTs) manage the operational and logistical needs of System
resources during deployments. ISTs link with local jurisdictions, incident commands, and
state and Federal resources to provide advice and command assistance.
• The Advisory Organization (comprised of the Strategic Group, the Advisory Group, and the
Advisory Support Group) provides recommendations to establish priorities for the System
on matters regarding policy, strategic goals, budgets, and issues that have a financial impact
on System task forces, and through subject matter experts, provides advice on US&R
procedures, training, and equipment.
• The FEMA US&R Branch establishes and administers Federal policy and System
requirements and manages the program using standardized concepts of operation,
equipment, and training.
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FEMA is the coordinating agency for the National Response Framework (NRF) Emergency Support
Function (ESF) #9 (Search and Rescue). During incidents or potential incidents requiring a unified
SAR response, Federal SAR responsibilities reside with ESF #9 Primary Agencies that provide timely
and specialized SAR capabilities. Support Agencies provide specific capabilities or resources that
support ESF #9. The NRF ESF #9 Annex identifies the following Federal SAR operational
environment responsibilities:
• Structural Collapse (Urban) Search and Rescue (US&R) – FEMA
• Maritime/Coastal/Waterborne Search and Rescue – U.S. Coast Guard
• Land Search and Rescue – Department of the Interior/National Park Service (DOI/NPS) and
Department of Defense (DoD)
SAR capabilities include: incident communications and coordination and execution of operations
including search, extrication and evacuation, and medical assistance for persons in distress.
System resources are integrated into the Federal command and control structure including FEMA
Regional Response Coordination Centers (RRCC), Incident Management Assistance Teams (IMAT),
the National Response Coordination Center (NRCC), and the Department of Homeland Security (DHS)
National Operations Center (NOC). The System prepares daily Incident Action Plans and reports
through the Federal chain of command using situation reports to provide DHS and FEMA current
situational awareness.
The System is based on foundational documents, which provide statutory, regulatory, and executive
guidance, such as the Homeland Security Act of 2002 as amended, PL 107-296; the Robert T. Stafford
Disaster Relief and Emergency Assistance Act, as amended, PL93-288; and the Code of Federal
Regulations, 44 CFR 208.
This strategic plan supports the initiatives in the current FEMA Strategic Plan, FEMA Response
Directorate Strategic Plan, and of the System
I-3: Vision
Lead the nation and collaborate with local communities, responders, and Federal partners to
build capabilities and save lives during structural collapse SAR operations.
The System is a dynamic, adaptive, agile national program ready to save lives in any disaster. To
achieve its vision, the System must be a learning organization that continually improves, innovates,
and encourages fresh perspectives. It must be the world’s best structural collapse incident response
organization, capable of performing SAR operations in any environment, while continuously refining
its equipment, technology, and operational procedures. It must intensively train and exercise
members and teams. It must assume a preeminent role leading all organizations in the Nation and
throughout the world, in responding to collapsed structure SAR operations. At the same time, the
System must proactively engage with community partners at all levels to strengthen local capacity
for SAR operations. The System will focus on responding to disasters and saving lives, while sharing
knowledge and collaborating with partners in the entire SAR community.
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I-4: Mission
To build, sustain, and improve the ability to coordinate and provide the core Federal
structural collapse (urban) SAR response capability needed to save lives and reduce suffering
in communities throughout the Nation that have been overwhelmed by the impact of an
incident.
The System saves lives during structural collapse responses using state-of-the-art strategies,
techniques, and equipment. It integrates the efforts of Sponsoring Agencies, the Federal Government,
and first responders under the NRF. System resources use the National Incident Management System
(NIMS) to work with on-scene authorities to deliver a full range of rescue functions in all-hazards
environments. The hallmark of the System is rapid response founded on careful operational and
logistics planning, state-of-the-art equipment, effective training, and exercising.
System resources are capable of a wide variety of services and are equipped and trained to conduct
different aspects of structural collapse operations:
• Reconnaissance to assess damage and needs and give feedback to officials
• Wide area search and technical search
• Extrication of entrapped survivors
• Structural and hazard evaluations of buildings
• Hazardous materials surveys and evaluations
• Operations in water-inundated areas
• Operations in known or suspected Hazardous Materials/Chemical, Biological, Radiological,
Nuclear, and Explosive (Hazmat/CBRNE) environments
• Emergency medical care for entrapped survivors, System personnel, and canines
• Evacuation of residents from hazardous settings
• Stabilization of damaged structures, including shoring and cribbing operations
Overall, the System is unique in the Federal Government. It is comprised of 28 very different local
entities. Some, such as New York City and Los Angeles, are large metropolitan centers, while others
are smaller municipalities, such as Menlo Park, CA, Beverly, MA, and towns in the Miami Valley, along
the Ohio River. The overall mission of the System is to train and equip personnel within these widely
varying localities so that, in the event of any kind of disaster, they respond effectively and efficiently
as interchangeable, interoperable units.
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I-5: Strategic Priorities

The strategic plan is organized around strategic priorities in five areas:
• Be Survivor-Centric in Mission and Program Delivery – Exchange information, promote
awareness, and instill confidence in the integrity of the System
• Become an Expeditionary Organization – Lead the nation in structural collapse (urban)
SAR operations in an all-hazards environment that save lives, protect property, and help
citizens
• Posture and Build Capacity for Catastrophic Disasters – Assess the System and build
strong and resilient partnerships across the emergency response community to share
knowledge, build consensus, and enhance response capabilities to ensure optimal readiness
• Enable Disaster Risk Reduction Nationally – Capitalize on the System’s roles,
responsibilities, and conduct of related activities to address reduce risk to the Nation and its
citizens
• Strengthen the System’s Organizational Foundation – Invest in and maintain the System’s
personnel, equipment, and processes, to improve performance and efficiency
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Strategic Priority 1: Be Survivor-Centric in Mission and Program Delivery
Objective 1.1: External Communications

In addition to traditional media, appropriate social media outlets should be utilized as information
sources related to US&R operations and interactive communication. Social media should be used as
a tool for information dissemination to both the public and the System.
Strategy 1.1.1: Implement the use of social media.
Performance Measure 1.1.1.1: Develop social media strategies regarding receiving and
transmitting information, monitoring live conversations, and developing a concept
of operations (CONOP) for actionable intelligence and situation awareness during
SAR operations.
PM 1.1.1.1 Responsibility: Senior Staff
PM 1.1.1.1 Due: End of 1st Quarter CY2017
Performance Measure 1.1.1.2: Develop and disseminate pre‐scripted messages,
public service announcements, and other information related to SAR operations.
PM 1.1.1.2 Due: End of 3rd Quarter CY2016
Performance Measure 1.1.1.3: Develop and deliver social media training, including
establishing accounts, controlling public messaging, using web tools, and developing
policy and procedures. This information should be disseminated to the System and
collaborative partners.
Performance Measure 1.1.1.4: Develop a System-wide platform or template to be used
for uniform information dissemination.
Objective 1.2: Internal Communications

During day-to-day operations, effective information dissemination ensures that the 6,000 System
members receive the latest information and changes related to US&R management and policy, as well
as SAR operational concepts, training, and equipment.
Excellent internal communications also facilitate interoperability and promote understanding among
all components of the System, improving operational performance during disaster deployments.
Strategy 1.2.1: Migrate internal information sharing to the System website

(www.responsesystem.org) to facilitate consistency and collaboration.
Performance Measure 1.2.1.1: Continuously educate members on the use of the System
website (www.responsesystem.org) and expand the use to all System members.
PM 1.2.1.1 Responsibility: US&R Branch
PM 1.2.1.1 Due: End of 1st Quarter CY2016, then ongoing
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Strategy 1.2.2: Continuously assess methods to improve and expedite communications within
the System.
Performance Measure 1.2.2.1: Publish an informal, quarterly newsletter that offers
news, event information, and glimpses of System activities, on the System website
(www.responsesystem.org).
PM 1.2.2.1 Due: End of 3rd Quarter CY2016, then quarterly
Performance Measure 1.2.2.2: Establish an IST member section on the System website
(www.responsesystem.org) to allow for information dissemination to IST members.
Strategy 1.2.3: Foster collaboration among Sponsoring Agencies, task forces, and FEMA to
maintain strong and resilient capacity and support.
Performance Measure 1.2.3.1: Continue to serve as the mechanism for the Sponsoring
Agency Chiefs to provide input to the System and provide strategic guidance
regarding decisions that affect the operation and management of the System.
PM 1.2.3.1 Responsibility: Strategic Group
Performance Measure 1.2.3.2: Conduct quarterly US&R Strategic Group meetings or
conference calls to facilitate communication across System management.
PM 1.2.3.2 Due: End of 1st Quarter CY2016, then quarterly
Performance Measure 1.2.3.3: Schedule annual meetings of FEMA executives and
Sponsoring Agency Chiefs to share information and perspectives within the System
and to review and make annual revisions to this strategic plan.
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Strategic Priority 2: Become an Expeditionary Organization
Objective 2.1: Rapid Deployment

During disaster situations, the number of lives saved directly correlates to the amount of time
required to arrive at the disaster scene and conduct SAR operations. Rapid deployment of the
appropriate System resources depends upon a coordinated response by the US&R Branch, the IST,
activated task forces, and Federal partners. In the past, rapid air deployments have been delayed due
to the inability to ensure timely air transportation arraignments—for a variety of reasons. Goals have
been established by the System for task forces to deploy by ground within four hours and by air
within six after receiving an Activation Order. These goals are for no‐notice events such as an
earthquake as well as for notice events, such as a hurricane.
Strategy 2.1.1: Continuously exercise, measure, and train to improve deployment times.
Performance Measure 2.1.1.1: Establish, and validate through mobilization exercises, a
standard departure timeframe for both ground and air transportation deployments
(currently estimated to be four hours ground, six hours air) to ensure that a System
resource arrives at the incident area within 16 hours of notification after receiving an
official request. Deployment timelines should be continually evaluated and revised
as necessary to improve timing.
PM 2.1.1.1 Due: End of 4th Quarter CY2018
Performance Measure 2.1.1.2: Continually review personnel availability, and reporting
and arrival times at the incident area, and continually revise processes to improve
initial IST operational readiness.
Performance Measure 2.1.1.3: Train, exercise, and continuously revise processes and
plans to facilitate improved response.
Performance Measure 2.1.1.4: Coordinate with Federal and military agencies, providing
air support, to address improving the response times of transportation resources in
order to reduce the time interval between task force and aircraft arrival at aerial ports
of embarkation.
Objective 2.2: Deployment Risk Management

SAR operations are inherently dangerous, particularly during catastrophic incidents. A risk
assessment must be made prior to any deployment and continuously updated throughout SAR
operations, particularly if there is a change in mission or environment. System personnel must be
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afforded adequate safety and security in terms of accountability, force‐protection, site security,
personal protective equipment, hazard(s) assessments, and decontamination.
Strategy 2.2.1: Pre‐Deployment Risk Management – Develop strategies for addressing potential
operational risks during an incident.
Performance Measure 2.2.1.1: Update Mobilization Plans to specifically include
potential risks and mitigation strategies during incidents.
Performance Measure 2.2.1.2: Review and update the Operations Manual 12-001 and
its Annexes, on a triennial (once every three years) basis at a minimum.
Performance Measure 2.2.1.3: Work with the Department of Justice to define
requirements and procedures for requesting Federal law enforcement support, and
update System documents.
Strategy 2.2.2: Ensure System members’ health and safety prior to, during, and after disaster
deployments through comprehensive hazard assessments, accountability, personal
protective equipment (PPE), and decontamination policies and procedures.
Performance Measure 2.2.2.1: Review and update health and safety protocols for
System members including pre-deployment, post-deployment, and retiree medical
screening, on a triennial basis at a minimum.
Performance Measure 2.2.2.2: Review and update protocols for System members
related to response accountability policies and procedures, on a triennial basis at a
minimum.
PM 2.2.2.2 Due: On-going triennial updates
System members related to PPE, on a triennial basis at a minimum.
System members related to decontamination policies and procedures, on a triennial
basis at a minimum.
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System members related to behavioral health consideration policies and procedures,
on a triennial basis at a minimum.
Objective 2.3: Training Requirements Meet or Exceed National Standards

In order to ensure the safety of its members and that its capability stays at the forefront of US&R
operations, the System’s training requirements need to meet or exceed National standards.
Strategy 2.3.1: Ensure System training curriculum meets current and projected training needs.
Performance Measure 2.3.1.1: Review, and update as required, existing System
curriculum as approved by the Advisory Organization and US&R Branch, on a
triennial basis at a minimum.
Performance Measure 2.3.1.2: Continue to improve System curriculum as approved by
the Advisory Organization and US&R Branch.
PM 2.3.1.2 Due: On-going quarterly updates
Performance Measure 2.3.1.3: Continue to provide and maintain a current System
curriculum library or repository, to include delivery and site requirements.
Strategy 2.3.2: Continue to improve standardized processes for planning, building, and
conducting performance-based training exercises.
Performance Measure 2.3.2.1: Assess the type and frequency of training exercises
conducted at the national, regional and local levels, and foster opportunities for
increased participation of the System.
PM 2.3.2.1 Due: On-going quarterly updates
Performance Measure 2.3.2.2: Identify methodologies to conduct multi-task force
exercises, to include funding mechanisms to support these activities, through both
System and non-System sources such as the FEMA National Exercise Division.
PM 2.3.2.2 Due: End of 4th Quarter CY2016, then ongoing
Objective 2.4: Safety during Training, Exercises, and International Deployments

Federal employees are provided compensation and other coverage in the event of an injury related to
their Federal duties under the Federal Employees’ Compensation Act and liability protection from
lawsuits under the Federal Tort Claims Act. When responding to Stafford Act deployments as
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Temporary Excepted Federal Volunteers, System members are generally covered by these two acts.
However, coverage is uncertain in other situations (e.g., training, exercises, and international
deployments), such as the Haiti response in 2010, during which System resources supported the US
Agency for International Development/Office of Foreign Disaster Assistance response. This
information requires updating and clarification.
Strategy 2.4.1: Clarify information for System members and Sponsoring Agencies regarding
short-term and long-term health, safety, and financial responsibility during training,
exercises, and international responses.
Performance Measure 2.4.1.1: Obtain updated legal policy guidance regarding System-
member health, safety, and financial responsibility during training, exercises and
international responses.
Performance Measure 2.4.1.2: Work with the Department of Justice and Department of
Labor and issue updated policy guidance and a procedure for tracking member
claims.
Objective 2.5: Adequate, Sustainable Equipment

A standardized cache list of equipment for task forces and ISTs provides inherent advantages in terms
of training, interoperability, resource sharing, and mission readiness. The System equipment cache is
rugged and well-suited for use in austere environments. These caches are transported and supported
by a variety of fleet resources—rolling stock (tractor-trailers, box trucks), support vehicles (sports
utility vehicles, pick-up trucks), and command vehicles.
Task forces currently have two caches. An original cache (also called the first cache or old cache) was
accumulated between 1990 and 2005 and is comprised of rescue, technical, communications,
planning, medical, and logistics equipment. After 9/11, additional SAR specialty caches were added
for operations involving Hazmat/CBRNE and water safety. During 2005-2007 an additional cache
(also known as the 2nd cache or new cache) acquired with Federal funds was provided to each task
force and was intended to replicate the original cache but excluded medical, Hazmat/CBRNE, and
water safety equipment. The equipment cache has been developed to support up to 80 personnel
(including 10 support personnel) and is designed to perform SAR operations in structural collapse of
reinforced concrete and steel. This cache can be reconfigured to support various other SAR missions.
Historically, task forces have been permitted to utilize Readiness Cooperative Agreement funds to
purchase and maintain transportation resources. However, in 2004-2005 each task force was
provided Federal funding specifically to acquire a more standardized transportation fleet, including
prime movers, trailers, box trucks, and support/command vehicles sufficient to transport a Type I
equipment cache and associated personnel. As requirements change over time, the need exists to
examine the convoy plan for necessary updates.
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Ownership of equipment and transportation assets is divided between task force Sponsoring Agencies
and the Federal government.
Strategy 2.5.1: Develop CONOP for employing any additional equipment and clear direction
regarding the sustainment of the original cache.
Performance Measure 2.5.1.1: Determine the current use of equipment and coordinate
the development of a practical CONOP for additional equipment.
Performance Measure 2.5.1.2: Analyze and determine equipment impacts through a
mission gap analysis when potential CONOPs are proposed.
Performance Measure 2.5.1.3: Review and update the current equipment cache and
System convoy plan, on a triennial basis at a minimum.
PM 2.5.1.3 Due: Continual review, quarterly reports to Strategic Group
Performance Measure 2.5.1.4: Analyze any newly developed response models and
determine equipment cache impacts.
PM 2.5.1.4 Due: End of 2nd Quarter CY2016, then ongoing
Performance Measure 2.5.1.5: Continually review equipment needs with the goal of
reducing duplication and overall cache size.
Performance Measure 2.5.1.6: Maintain an effective task force property management
system for the two caches.
Performance Measure 2.5.1.7: Research the feasibility of establishing one uniform
property management system for the two caches.
Strategy 2.5.2: Create a strategy to finance replacement of capital assets in the cache and
transportation fleet.
Performance Measure 2.5.2.1: Conduct a replacement life cycle analysis (unit cost,
expected life) of the current task force and IST cache equipment capital assets.
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Performance Measure 2.5.2.2: Determine strategies to finance replacement of capital

assets.
PM 2.5.2.2 Due: End of the 4th Quarter CY2017
Performance Measure 2.5.2.3: Implement strategies developed in Performance
Measure 2.5.2.2 to finance replacement of fleet components.
Performance Measure 2.5.2.4: Conduct a replacement life cycle analysis of fleet
components.
Performance Measure 2.5.2.5: Determine strategies to finance replacement of fleet
components.
PM 2.5.2.5 Due: End of the 4th Quarter CY2017
Performance Measure 2.5.2.6: Implement strategies developed in Performance
Measure 2.5.2.5 to finance replacement of fleet components.
Performance Measure 2.5.2.7: Continually evaluate Readiness Cooperative Agreement
policies for budgeting and periods of performance to enable task forces to plan large
replacement expenditures for capital items and related items.
Strategy 2.5.3: Preposition equipment and resources to increase readiness by facilitating a more
rapid response to incident areas.
Performance Measure 2.5.3.1: Analyze task force, IST, Hazardous Materials Equipment
Push Package (HEPP), and any other specialized equipment caches to determine
which assets are most suited for prepositioning, on a triennial basis at a minimum.
Performance Measure 2.5.3.2: Analyze which FEMA and/or task force locations would
be most suitable for pre-positioning specific items.
Performance Measure 2.5.3.3: Coordinate the development of a method to oversee
testing, maintaining, transporting, and inventorying items at prepositioned locations
and consider contracting for these functions.
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Performance Measure 2.5.3.4: Ensure IST caches are maintained in air-deployable

international shipping units to facilitate rapid response.
Performance Measure 2.5.3.5: Develop and implement a CONOP for prepositioning
System resources to decrease response times.
Performance Measure 2.5.3.6: Continually evaluate the established budget line item for
IST, HEPP, and any other specialized equipment caches to be updated, consolidated,
and modernized, to ensure the amount identified is appropriate.
Strategy 2.5.4: Investigate opportunities to reduce costs and improve warehouse operations.
Performance Measure 2.5.4.1: Continue to coordinate with General Services
Administration (GSA) to obtain national lists of excess/underutilized resources.
Performance Measure 2.5.4.2: Continually evaluate the FEMA US&R warehouse
requirements to ensure cost-effective, suitable warehouse space.
Performance Measure 2.5.4.3: Continually evaluate task force warehouse
requirements to ensure cost-effective, suitable warehouse space.
Objective 2.6: Evaluation of Readiness

The Readiness Assessment Program (RAP) is employed to establish standards and assess task force
operations, logistics, and management readiness. The first phase of the RAP requires all 28 System
task forces to complete an annual self-evaluation of their own readiness. In the second phase, the goal
is for each task force to receive one on-site Administrative Readiness Evaluation (ARE) over a three-
year cycle, to validate task force self-evaluations. The third phase of the RAP requires each System
task force to complete each of the five modules of the Operational Readiness Exercise Evaluation
Program (OREEP) triennially, either all at once during a Deployment, Full Scale Exercise or
individually during Modular Exercises as funding permits. This practice has resulted in an established,
standardized process to measure readiness throughout the System.
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Strategy 2.6.1 – Continually evaluate and refine the Readiness Assessment Program.
Performance Measure 2.6.1.1: Annually submit task force self-evaluations.
Performance Measure 2.6.1.2: Triennially conduct one ARE of each System task force.
Performance Measure 2.6.1.3: Triennially, as funding permits, each System task force
shall complete all five OREEP modules.
Performance Measure 2.6.1.4: Implement a formal exercise evaluation program to
validate standards and improve and exercise SAR performance.
Performance Measure 2.6.1.5: Analyze task force self-evaluations/AREs/OREEs, and
disseminate an annual analysis, including best practices.
Objective 2.7: Effective Integration of Partners during SAR Operations

The effective integration of response partners contributes significantly to successful SAR operations.
One of the most effective ways to facilitate this integration is the sharing of information, both before
and during responses. A Common Operating Picture (COP) provides intelligence information and
facilitates collaborative planning and decision making. Recent technological advancements have
provided tools that facilitate the development of an on-scene common picture of a disaster by
integrating imagery, geospatial awareness, mapping, infrastructure elements, communications
(including social networks), and other elements, such as news reporting. The development of
situational awareness systems, leveraging technology to gather and analyze data, and the sharing of
any sharing system developed will help ensure the effective integration of all response partners.
Strategy 2.7.1: Continue to develop a COP incorporating relevant information to support shared
situational awareness among all SAR resources and partners.
Performance Measure 2.7.1.1: Continue to utilize the Advisory Organization to develop
and leverage technology tools and improvements that can be synthesized into a COP
to continuously improve SAR operations.
Performance Measure 2.7.1.2: Facilitate access to the FEMA situational awareness
sharing system (currently WebEOC) for SAR partners.
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Strategic Priority 3: Posture and Build Capacity for Catastrophic Disasters
Objective 3.1: Effective Coordination During Initial Deployment

The success of the System depends upon effective coordination among all elements. FEMA must
activate the IST, task forces, and coordinate with appropriate Federal ESF #9 partners in a timely
manner. Additional coordination may be required with other partners such as an Incident
Management Assistance Team ( I MAT), Mobile Emergency Response System (MERS), and other
incident contractors.
Strategy 3.1.1: Deploy and support response resources effectively and efficiently.
Performance Measure 3.1.1.1: Adopt more formal procedures for coordination with
FEMA’s IMAT and MERS during initial deployment.
Performance Measure 3.1.1.2: Evaluate current IST staffing to ensure sufficiency,
considering increased coordination requirements.
Performance Measure 3.1.1.3: Establish an efficient and cost-effective method for task
force vehicle tracking, task force/IST alerting and reporting.
Performance Measure 3.1.1.4: Exercise a wide variety of SAR-related problems—and
conduct these exercises with multiple agency participation. Exercise evaluations
should include detailed collection, analysis, dissemination, and documentation of
exercise performance information including operational gaps in training or
equipment, which may require priority investment by the System.
Objective 3.2: Refinement of Structural Collapse SAR Mission

While the fundamental System mission continues to be structural collapse SAR, disasters can
occur in environments that require different deployment models with varying CONOPs, training,
and equipment.
Strategy 3.2.1: Continue to evaluate current deployment models to verify operational
capabilities.
Performance Measure 3.2.1.1: Update and refine current CONOPs and associated
training and equipment for the core structural collapse response mission, including
modular deployments of specific task force elements, on a triennial basis at a
minimum.
17
Strategy 3.2.2: Develop, review, and update deployment CONOPs and assess potential
secondary missions.
Performance Measure 3.2.2.1: Continue to review, update, and refine CONOPs for
structural collapse situations involving contaminated environments, wi th focus on
capability gaps and associated training, equipment, and funding needs, on a triennial
basis at a minimum.
Performance Measure 3.2.2.2: Continue to review, update, and refine CONOP to safely
conduct US&R operations in water environments, with focus on capability gaps and
associated training, equipment, and funding needs, on a triennial basis at a minimum.
Performance Measure 3.2.2.3: Evaluate the effectiveness and economic feasibility of the
System’s Canine Search Teams – Human Remains Detection (CST-HRD).
Performance Measure 3.2.2.4: Evaluate the current various modular response
capabilities (e.g., CST-HRD, Swift Water, and Structural Engineers) of System task
forces.
Strategy 3.2.3: Continue to reassess resource personnel sharing in accordance to USR PD 2012-
012 Personnel Resource Sharing Process.
Performance Measure 3.2.3.1: Continue to reassess the System’s personnel resource
sharing process, on a triennial basis at a minimum.
Performance Measure 3.2.3.2: Review current task force resource allocation policies
including compensation, legal policies, liability, and Worker’s Compensation
protection, on a triennial basis at a minimum.
Objective 3.3: Building Response Partnerships

The levels of collaboration in SAR and support operations continue to evolve as synergistic capabilities
are recognized, developed, and expanded at all levels throughout the entire emergency response
community.
SAR capabilities among state and local entities vary significantly depending on personnel (e.g.,
number, training, specialization, level of sustained operations), and equipment (e.g., rescue, medical,
communications). FEMA’s NIMS 508-8 catalogues the different types of resources needed to perform
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US&R operations and enables emergency managers to define capabilities needed during a disaster to
respond safely, efficiently, and effectively.
Currently, state and local SAR resources report varying capabilities for SAR and structural collapse
operations, but there is no standard credentialing system to validate these capabilities. Additionally,
the most widely-used way to activate a state or local resources for a disaster outside the home state
is by use of the Emergency Management Assistance Compact. In the event of a catastrophic incident
involving multiple states requiring a large-scale response, the available mechanisms may be neither
timely nor sufficient.
System CONOPs need to identify the use of non-System SAR resources, such as local responders, State
Urban Search and Rescue Alliance task forces, National Guard personnel, Department of Defense
(DoD) personnel, and international resources as potential force-multipliers during SAR operations
whereby skilled resources could assist in search and extraction tasks, such as rope rescue or confined
space operations, and general-purpose resources could assist in wide area search operations.
The ESF #9 partners recently established the Federal Search and Rescue Coordination Group
(FSARCG), staffed by one representative from each of the four ESF #9 primary agency partners. The
FSARCG is intended to deploy and assist with regional SAR activities to include planning and
coordination during disaster incidents. The FSARCG could expand its role during disasters by
assisting the IST with tactical and strategic decision making.
Strategy 3.3.1: Determine unity of doctrine, training, operations, and equipment interoperability
of non-System SAR resources with the System.
Performance Measure 3.3.1.1: Review the current NIMS US&R Resource Typing, on a
triennial basis at a minimum.
Performance Measure 3.3.1.2: Continue to develop a strategy (which includes funding)
for an acceptable third party verification and validation of the readiness capability of
US&R resources in the nation, using an established readiness assessment system.
Performance Measure 3.3.1.3: Assist in the development of efficient means to request
and/or activate state, local, and international teams for catastrophic incidents.
Performance Measure 3.3.1.4: Refine and expand joint SAR CONOPs (e.g., refine
command and control processes and use interoperable communications equipment).
Performance Measure 3.3.1.5: Add a factor to the RAP that evaluates the ability of a
System task force to interact with non-System resources.
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Strategy 3.3.2: Expand existing relationships with local, state, and other Federal agencies to
strengthen integration of response doctrine, and on-scene coordination during disasters.
Performance Measure 3.3.2.1: Continue to develop, train, and exercise on CONOPs to
improve coordination, command, and control of SAR resources and operations.
Performance Measure 3.3.2.2: Continue to expand the use of light SAR training for
resources such as first responders and volunteer Community Emergency Response
Teams and incorporate basic structural triage with light SAR in all first responder
training.
Performance Measure 3.3.2.3: Expand the use of non-System volunteer civil engineers
to ensure that community buildings are safe in the wake of a disaster through pre-
response training or just-in-time training during a response.
Performance Measure 3.3.2.4: Engage with community partners at all levels (public
and private agencies, organizations, voluntary associations, trade groups, and
professional associations) to strengthen local capacity for SAR operations through
attendance at System meetings.
Performance Measure 3.3.2.5: System members should stay abreast of and be
supported in, membership on System-related technical committee standards (e.g.,
National Fire Protection Association 1006, 1670, and 1951; and NIMS typing).
Performance Measure 3.3.3.6: Update the current FEMA list of Federal ESF #9 Primary
and Support Agency Pre-Scripted Mission Assignments.
Performance Measure 3.3.2.7: Emphasize continuing education for IST members to
include training on mission assignments, ordering of resources, and using available
support contracts.
Objective 3.4: Effective Integration of Partners during SAR Operations

The IST engages with local, regional, and state authorities to determine the mission and scope of
operations. The IST also assigns SAR partners to support operations, which can include non-System
20
resources such as local, state, international, National Guard, or DoD. Specific roles are assigned to
agencies such as the National Geospatial Intelligence Agency and Customs and Border Patrol.
Command and control is established along with interoperable communications, and effective working
relationships are established with non-governmental organizations. An overall objective is to rapidly
gain and maintain situational awareness by establishing a COP to effectively integrate SAR operations
and enable timely situation reporting. Integration of partners is especially vital during a catastrophic
incident.
Historically, the System has had difficulty obtaining timely airlift of personnel and equipment, due to
higher national priority needs and DoD’s coordination cycle to obtain Secretary of Defense approval.
Improved coordination has resulted in task force movement data being loaded into DoD’s Joint
Operation Planning and Execution System. However, a more coordinated airlift decision-making
process is required, particularly since US&R deployment location decisions can vary depending on
airlift capabilities at aerial ports of debarkation. Moreover, it may be feasible to adopt a “go or no go”
mission response timeframe for airlift requests, so that US&R can plan alternate courses of action.
A key factor in selecting deployment locations is proximity to SAR operational areas. In the past, the
System has relied on commercial support near population centers for lodging. However, during a
disaster, commercial facilities may not be available due to a non-functioning infrastructure. Military
installations can offer significant advantages (e.g., a secure facility, available runways, open space,
establishment of a Base of Operations) and are generally located near populated areas where SAR
operations take place. Past decisions have been made on an ad hoc basis with no systematic advanced
planning to use military facilities. Since military personnel could likely be used for augmentation in
future SAR operations, joint use of military installations becomes more feasible.
Strategy 3.4.1: Continue to integrate non-System resources into SAR Operations to include airlift
capabilities, personnel force multipliers, and facilities.
Performance Measure 3.4.1.1: Continue to coordinate airlift planning factors so that
improved deployment decisions can be made.
Performance Measure 3.4.1.2: Develop, review, and/or revised as needed standard
equipment cache load configurations for various military and commercial aircraft to
facilitate effective and efficient response.
Performance Measure 3.4.1.3: Develop, review, and/or revise as needed CONOPs to
include the integration of non-System resources to support SAR operations.
Performance Measure 3.4.1.4: Develop a pre-scripted plan for use of military
installations to support SAR operations.
21
22
Strategic Priority 4: Enable Disaster Risk Reduction Nationally
Objective 4.1: Enable Disaster Risk Reduction Nationally

System task forces provide a coordinated Federal, all-hazards capability for locating, extricating, and
stabilizing survivors of structural collapse, including the ability to operate in a contaminated
environment. ISTs are pre-existing elements that serve as the management cells for System
resources and act as the conduit between System resources, the AHJ, and other SAR partners.
Additionally, FEMA is responsible for the overall coordination of Federal ESF #9 (Search and Rescue)
response.
Among its many activities, the System is responsible for strategic roles (ESF #9 coordination,
interaction with Sponsoring Agencies and the US&R Advisory Organization), management roles
(managing cooperative agreements with the task forces, providing budget, training and exercises),
and field operations roles (cadre management, cache management, ESF #9 Advisories, Alert /
Activation / Demobilization Orders, deployments, and reporting).
An effective after action review process benefits the System by identifying potential areas of
improvement and developing corrective actions to address those areas. An After Action Report
(AAR) should be completed for each significant System operational activity, such as a deployment or
exercise, followed by an assessment of that AAR and the development of a corrective action plan as
necessary. The resulting improvements will better enable the System to conduct strategic and
budget planning, and adhere to its core mission.
The System’s roles, responsibilities, and conduct of related activities inherently address risk
reduction to the Nation and its citizens.
Strategy 4.1.1: Utilize credible and actionable data and analytic tools to support risk-informed
decision-making for System resources.
Performance Measure 4.1.1.1: Develop System resource deployment plans/models
based upon actionable data. Evaluate existing data and analytic tools for use in
planning the appropriate resources to be deployed for various response scenarios.
Performance Measure 4.1.1.2: Evaluate the viability and effectiveness of evolving
technologies in US&R operations to reduce risk to System members, primarily by
reducing exposure.
Strategy 4.1.2: Analyze AARs to determine the effectiveness of SAR integration during
operations to inherently address risk reduction.
Performance Measure 4.1.2.1: Assess how to best receive AAR input from external
partners.
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Performance Measure 4.1.2.2: Gather AAR input prepared by task forces, the IST, and
partners, and generate one System AAR for that response.
PM 4.1.2.2 Due: End of 4th Quarter CY2017 and post deployments
Performance Measure 4.1.2.3: Review each System AAR, and if required, develop a
corrective action plan.
PM 4.1.2.3 Due: Continual post deployment requirement
Performance Measure 4.1.2.4: Analyze the success of deployment plans/models
following any deployment to refine and improve effectiveness and accuracy.
Performance Measure 4.1.2.5: Ensure that analyses of operational shortcomings and
gaps are fully considered for integration into annual strategic planning and budgeting
cycles.
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Strategic Priority 5: Strengthen the System’s Organizational Foundation
Objective 5.1: Build, manage, and strengthen the workforce

The success of the System depends on the strength of its personnel at all levels. System members
perform in a number of roles, from the newest recruit to leadership, during incidents as well as in
day-to day operations. These roles include members of ISTs who provide command and control of
task forces during incidents, as well as instructor cadres who teach System and local training. Other
System members perform vital national roles as peers on AREs or serve as Advisory Organization
members. Having a workforce focused program consisting of recruitment, retention, and leadership
training will ensure that the System maintains a continuous pipeline of high-quality, well-trained
personnel ready to serve in a wide variety of roles.
Strategy 5.1.1: Recruit qualified task force personnel.

Performance Measure 5.1.1.1: Analyze annual self-evaluations for trends in recruiting
personnel.
PM 5.1.1.1 Due: Annually
Performance Measure 5.1.1.2: Implement successful strategies and best practices for
recruiting and sustaining personnel.
Performance Measure 5.1.1.3: Implement successful strategies and best practices for
recruiting and sustaining canines.
Strategy 5.1.2: Recruit qualified System personnel to serve as members of Incident Support
Teams, Advisory Organization, and as instructors.
Performance Measure 5.1.2.1: Develop, implement or identify a leadership training
program for IST members.
Performance Measure 5.1.2.2: Develop, implement or identify a training program for
System instructors.
Performance Measure 5.1.2.3: Provide successful techniques and best practices to
develop personnel for membership on ISTs, the Advisory Organization, and as
instructors.
25
Performance Measure 5.1.2.4: Retain System members serving on an IST, the Advisory
Organization, and as instructors by providing appropriate support.
Performance Measure 5.1.2.5: Develop and implement a mentorship/trainee program
in which Command and General Staff positions on both task forces and ISTs carry a
trainee position.
Strategy 5.1.3: Develop and implement a leadership training program to assist qualified
personnel with advancement into leadership positions, and conduct succession planning.
Performance Measure 5.1.3.1: Develop and implement a leadership training program
for System members.
Performance Measure 5.1.3.2: Provide successful techniques and best practices to
develop personnel as leaders and specialists for subsequent dissemination
throughout the System.
Performance Measure 5.1.3.3: Provide examples of succession plans for subsequent
dissemination throughout the System.
Objective 5.2: Streamline and strengthen business processes and systems for
managing System funding and verifying expenditures
The System’s effective employment of the five established business systems (property, travel,
accounting, procurement and personnel) is critical to ensuring the proper use and execution of
Cooperative Agreement funds. Methods to provide greater oversight and validation in the usage of
these funds will further strengthen the System’s operational capability.
Strategy 5.2.1: Implement efficient processes and systems to manage human resources,
Government property, purchasing of supplies and services, and accounting for financial
operations.
Performance Measure 5.2.1.1: Develop a system to supplement audit coverage to
provide program specific audits for System task forces that do not receive audits.
26
Strategy 5.3.2: Cooperative Agreement Expenditure – Cooperative Agreement funds shall be

properly expended within the specified period of performance (with exceptions as
coordinated with the US&R Branch).
Performance Measure 5.3.2.1: Develop a systemic method to continuously monitor the
timing and level of expenditures by Sponsoring Agencies and address deficiencies
using Payment and Reporting System data as well as task force financial reports.
Performance Measure 5.2.2.2: Establish standards to improve the management of
Sponsoring Agency expenditures.
Performance Measure 5.2.2.3: Finalize and utilize the task force non-compliance
process when task forces are unable to, or do not, manage Cooperative Agreement
expenditures appropriately.
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Appendix A: 2016-2020 Strategic Plan Implementation Timeline
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Appendix B: Abbreviations and Acronyms
AAR After-Action Report

ARE Administrative Readiness Evaluation
CBRNE Chemical-Biological-Radiological-Nuclear-Explosive
CERT Community Emergency Response Teams
CONOP Concept of Operations
COP Common Operating Picture
DoD Department of Defense
EMAC Emergency Management Assistance Compact
ESF Emergency Support Function
FEMA Federal Emergency Management Agency
FSARCG Federal Search and Rescue Coordinating Group
GSA General Services Administration
Hazmat Hazardous Material
HEPP Hazardous Material Equipment Push Packages
IMAT Incident Management Assistance Team
IST Incident Support Team
MERS Mobile Emergency Response System
NIMS National Incident Management System
OREE Operational Readiness Exercise Evaluation
OREEP Operational Readiness Exercise Evaluation Program
PPE Personal Protective Equipment
SAR Search and Rescue
SUSAR State Urban Search and Rescue
US&R Urban Search and Rescue
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National US&R Response System Strategic Plan

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