ESF ANNEXES: INTRODUCTION
The Federal Government and many State governments organize much of their resources and capabilities – as well as those of certain private-sector and nongovernmental organizations – under 15 Emergency Support Functions (ESFs). ESFs align categories of resources and provide strategic objectives for their use.
During a response, ESFs are a critical mechanism to coordinate functional capabilities and resources provided by Federal departments and agencies, along with certain private-sector and nongovernmental organizations. ESFs may be selectively activated for both Stafford Act and non-Stafford Act incidents where Federal departments or agencies request DHS assistance or under other circumstances as defined in Homeland Security Presidential Directive 5 (HSPD-5). Not all incidents result in the activation of ESFs.
ESFs may be activated to support headquarters, regional, and/or field activities. The Incident Command System provides for the flexibility to assign ESF and other stakeholder resources according to their capabilities, tasking, and requirements to augment and support the other sections of the Joint Field Office (JFO)/Regional Response Coordination Center (RRCC) or National Response Coordination Center (NRCC) in order to respond to incidents in a more collaborative and cross-cutting manner.
While ESFs are typically assigned to a specific section at the NRCC or in the JFO/RRCC for management purposes, resources may be assigned anywhere within the Unified Coordination structure. Regardless of the section in which an ESF may reside, that entity works in conjunction with other JFO sections to ensure that appropriate planning and execution of missions occur. For example, if a State requests assistance with a mass evacuation, the JFO would request personnel from ESF #1 (Transportation), ESF #6 (Mass Care, Emergency Assistance, Housing, and Human Services), and ESF #8 (Public Health and Medical Services). These would then be integrated into a single branch or group within the Operations Section to ensure effective coordination of evacuation services.
ESF MEMBER ROLES AND RESPONSIBILITIES
Each ESF Annex identifies the coordinator and the primary and support agencies pertinent to the ESF. Several ESFs incorporate multiple components, with primary agencies designated for each component to ensure seamless integration of and transition between preparedness, response, and recovery activities.
ESF Coordinator. The ESF coordinator is the entity with management oversight for that particular ESF. The coordinator has ongoing responsibilities throughout the preparedness, response, and recovery phases of incident management. The role of the ESF coordinator is carried out through a "unified command" approach as agreed upon collectively by the designated primary agencies and, as appropriate, support agencies.
ESF Primary Agency(ies). An ESF primary agency is a Federal agency with significant authorities, roles, resources, or capabilities for a particular function within an ESF. ESFs may have multiple primary agencies, and the specific responsibilities of those agencies are articulated within the relevant ESF Annex. A Federal agency designated as an ESF primary agency serves as a Federal executive agent under the Federal Coordinating Officer (or Federal Resource Coordinator for non-Stafford Act incidents) to accomplish the ESF mission
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ESF Support Agencies. Support agencies are those entities with specific capabilities or resources that support the primary agency(ies) in executing the mission of the ESF.
ESF COORDINATOR, PRIMARY AND SUPPORT AGENCIES
ESF#1 - Transportation
Purpose
Emergency Support Function (ESF) #1 – Transportation Provides Support To The DHS By assisting Federal, State, Tribal, And Local Governmental Entities, Voluntary Organizations, Nongovernmental Organizations, And The Private Sector In The Management Of Transportation Systems And Infrastructure During Domestic Threats Or In Response To Incidents. ESF #1 Also Participates In Prevention, Preparedness, Response, Recovery, And Mitigation Activities. ESF #1 Carries Out The Department Of Transportation (DOT)’S Statutory Responsibilities, Including Regulation Of Transportation, Management Of The Nation’s Airspace, And Ensuring The Safety And Security Of The National Transportation System.
Members
ESF Coordinator: DOT
Primary Agency: DOT
Support Agencies:
Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Energy
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Department of Homeland Security
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Department of the Interior
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Department of Justice
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Department of State
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General Services Ad
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ESF#2 – Communication
Purpose
Emergency Support Function (ESF) #2 – Communications supports the restoration of the communications infrastructure, facilitates the recovery of systems and applications from cyber attacks, and coordinates Federal communications support to response efforts during incidents requiring a coordinated Federal response. This ESF implements the provisions of the Office of Science and Technology Policy (OSTP) National Plan for Telecommunications Support in Non-Wartime Emergencies (NPTS).
ESF #2 also provides communications support to Federal, State, tribal, and local governments and first responders when their systems have been impacted, and provides communications and information technology (IT) support to the JFO and JFO field teams.
With the rapid convergence of communications and IT, the National Communications System (NCS) and the National Cyber Security Division (NCSD) work closely to coordinate the ESF #2 response to cyber incidents. This convergence requires increased synchronization of effort and capabilities between the communications and IT sectors to facilitate ESF #2’s ability to respond to all types of incidents.
Members
ESF Coordinator: DHS/National Protection and Programs/Cybersecurity and Communications/National Communications System
Primary Agencies: DHS/National Protection and Programs/Cybersecurity and Communications/National Communications System, DHS/(FEMA
Support Agencies:
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Department of Agriculture/Forest Service
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Department of Commerce
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Department of Defense
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Department of Homeland Security
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Department of the Interior
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Federal Communications Commission
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General Services Ad
ESF #3 – PUBLIC WORKS AND ENGINEERING
Purpose
Emergency Support Function (ESF) #3 – Public Works and Engineering assists the DHS by coordinating and organizing the capabilities and resources of the Federal Government to facilitate the delivery of services, technical assistance, engineering expertise, construction management, and other support to prepare for, respond to, and/or recover from a disaster or an incident requiring a coordinated Federal response.
Members
ESF Coordinator: Department of Defense (DOD)/U.S. Army Corps of Engineers (USACE)
Primary Agencies: DOD, USACE, DHS FEMA
Support Agencies:
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Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Energy
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Department of Health and Human Services
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Department of Homeland Security
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Department of the Interior
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Department of Labor
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Department of State
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Department of Transportation
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Department of Veterans Affairs
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Environmental Protection Agency
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General Services Administration
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Nuclear Regulatory Commission
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Tennessee Valley Authority
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American Red Cross
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Corporation for National and Community
ESF #4 – FIREFIGHTING
Purpose
Emergency Support Function (ESF) #4 – Firefighting provides Federal support for the detection and suppression of wildland, rural, and urban fires resulting from, or occurring coincidentally with, an incident requiring a coordinated Federal response for assistance.
Members
ESF Coordinator: Department of Agriculture/Forest Service
Primary Agency: Department of Agriculture/Forest Service
Support Agencies:
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Department of Commerce
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Department of Defense
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Department of Homeland Security
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Department of the Interior
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Department of State
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Environmental Protection Agency
ESF #5 – EMERGENCY MANAGEMENT
Purpose
Emergency Support Function (ESF) #5 – Emergency Management is responsible for supporting overall activities of the Federal Government for domestic incident management. ESF #5 provides the core management and administrative functions in support of NRCC, RRCC, and JFO operations.
Members
ESF Coordinator: DHS/FEMA
Primary Agency: DHS/FEMA
Support Agencies:
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Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Education
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Department of Energy
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Department of Health and Human Services
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Department of Homeland Security
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Department of Housing and Urban Development
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Department of the Interior
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Department of Justice
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Department of Labor
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Department of State
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Department of Transportation
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Department of the Treasury
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Department of Veterans Affairs
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Environmental Protection Agency
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Federal Communications Commission
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General Services Administration
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National Aeronautics and Space Administration
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Nuclear Regulatory Commission
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Office of Personnel Management
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Small Business Administration
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Tennessee Valley Authority
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U.S. Postal Service
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American Red Cross
ESF #6 –MASS CARE, EMERGENCY ASSISTANCE, HOUSING, AND HUMAN SERVICES
Purpose
Emergency Support Function (ESF) #6 – Mass Care, Emergency Assistance, Housing, and Human Services coordinates the delivery of Federal mass care, emergency assistance, housing, and human services when local, tribal, and State response and recovery needs exceed their capabilities.
Members
ESF Coordinator: DHS/FEMA
Primary Agency: DHS/FEMA
Support Agencies:
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Department of Agriculture
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Department of Defense
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Department of Health and Human Services
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Department of Homeland Security
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Department of Housing and Urban Development
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Department of the Interior
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Department of Justice
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Department of Labor
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Department of Transportation
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Department of the Treasury
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Department of Veterans Affairs
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General Services Administration
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Small Business Administration
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Social Security Administration
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U.S. Postal Service
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American Red Cross
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Corporation for National and Community Service
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National Voluntary Organizations Active in Disaster
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Other voluntary agency and nongovernmental support organizations
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ESF #7 – LOGISTICS MANAGEMENT AND RESOURCE SUPPORT Purpose
Emergency Support Function (ESF) #7 – Logistics Management and Resource Support assists the DHS in providing a comprehensive, national disaster logistics planning, management, and sustainment capability that harnesses the resources of Federal logistics partners, key public and private stakeholders, and nongovernmental organizations (NGOs) to meet the needs of disaster victims and responders.
Members
ESF Coordinators: General Services Administration (GSA), DHS/FEMA
Primary Agencies: GSA, DHS/FEMA
Support Agencies:
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Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Energy
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Department of Health and Human Services
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Department of Homeland Security
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Department of the Interior
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Department of Labor
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Department of Transportation
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Department of Veterans Affairs
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National Aeronautics and Space Administration
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Office of Personnel Management
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ESF #8 – PUBLIC HEALTH AND MEDICAL SERVICES Purpose
Emergency Support Function (ESF) #8 – Public Health and Medical Services provides the mechanism for coordinated Federal assistance to supplement State, tribal, and local resources in response to a public health and medical disaster, potential or actual incidents requiring a coordinated Federal response, and/or during a developing potential health and medical emergency. Public Health and Medical Services include responding to medical needs associated with mental health, behavioral health, and substance abuse considerations of incident victims and response workers. Services also cover the medical needs of members of the “at risk” or “special needs” population described in the pandemic and all-hazards preparedness act and in the National Response Framework (NRF) glossary, respectively. It includes a population whose members may have medical and other functional needs before, during, and after an incident.
Members
ESF Coordinator: Department of Health and Human Services (HHS)
Primary Agency: HHS
Support Agencies:
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Department of Agriculture
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Department of Defense
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Department of Energy
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Department of Homeland Security
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Department of the Interior
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Department of Justice
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Department of Labor
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Department of State
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Department of Transportation
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Department of Veterans Affairs
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Environmental Protection Agency
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General Services Administration
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U.S. Agency for International Development
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U.S. Postal Service
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American Red Cross
ESF #9 – SEARCH AND RESCUE
Purpose
Emergency Support Function (ESF) #9 – Search and Rescue rapidly deploys components of the Federal Search and Rescue (SAR) Response System to provide specialized lifesaving assistance to State, tribal, and local authorities when activated for incidents or potential incidents requiring a coordinated Federal response
Members
ESF Coordinator: DHS/FEMA
Primary Agencies: DHS/FEMA, DHS/U.S. Coast Guard (USCG), Department of the Interior (DOI)/National Park Service (NPS), DOD
Support Agencies:
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Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Health and Human Services
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Department of Homeland Security
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Department of Justice
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Department of Labor
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National Aeronautical and Space Administration
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U.S. Agency for International Development
ESF #10 – OIL AND HAZARDOUS MATERIALS RESPONSE Purpose
Emergency Support Function (ESF) #10 – Oil and Hazardous Materials Response provides Federal support in response to an actual or potential discharge and/or uncontrolled release of oil or hazardous materials when activated. ESF #10 provides for a coordinated Federal response to actual or potential oil and hazardous materials incidents.
Members
ESF Coordinator: Environmental Protection Agency (EPA)
Primary Agencies: EPA DHS/ USCG
Support Agencies:
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Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Energy
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Department of Health and Human Services
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Department of Homeland Security
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Department of the Interior
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Department of Justice
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Department of Labor
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Department of State
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Department of Transportation
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General Services Administration
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Nuclear Regulatory Commission
ESF #11 – AGRICULTURE AND NATURAL RESOURCES
Purpose
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Emergency Support Function (ESF) #11 – Agriculture and Natural Resources supports State, tribal, and local authorities and other Federal agency efforts to:
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Provide nutrition assistance.
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Control and eradicate, as appropriate, any outbreak of a highly contagious or economically devastating animal/zoonotic (i.e., transmitted between animals and people) disease or any outbreak of an economically devastating plant pest or disease.
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Ensure the safety and security of the commercial food supply.
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Protect natural and cultural resources and historic properties (NCH) resources.
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Provide for the safety and well-being of household pets during an emergency response or evacuation situation.
Members
ESF Coordinator: Department of Agriculture (USDA)
Primary Agencies: USDA, DOI
Support Agencies:
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Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Energy
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Department of Health and Human Services
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Department of Homeland Security
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Department of the Interior
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Department of Justice
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Department of Labor
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Department of State
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Department of Transportation
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Environmental Protection Agency
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General Services Administration
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National Archives and Records Administration
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U.S. Postal Service
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Advisory Council on Historic Preservation
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American Red Cross
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Heritage Emergency National Task Force
ESF #12 – ENERGY
Purpose
Emergency Support Function (ESF) #12 – Energy is intended to facilitate the restoration of damaged energy systems and components when activated by the Secretary of Homeland Security for incidents requiring a coordinated Federal response. Under Department of Energy (DOE) leadership, ESF #12 is an integral part of the larger DOE responsibility of maintaining continuous and reliable energy supplies for the United States through preventive measures and restoration and recovery actions.
The term “energy” includes producing, refining, transporting, generating, transmitting, conserving, building, distributing, maintaining, and controlling energy systems and system components. All energy systems are considered critical infrastructure.
Members
ESF Coordinator: DOE
Primary Agency: DOE
Support Agencies:
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Department of Agriculture
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Department of Commerce
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Department of Defense
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Department of Homeland Security
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Department of the Interior
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Department of Labor
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Department of State
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Department of Transportation
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Environmental Protection Agency
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Nuclear Regulatory Commission
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Tennessee Valley Authority
ESF #13 – PUBLIC SAFETY AND SECURITY
Purpose
Emergency Support Function (ESF) #13 – Public Safety and Security integrates Federal public safety and security capabilities and resources to support the full range of incident management activities associated with potential or actual incidents requiring a coordinated Federal response.
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Members
ESF Coordinator: Department of Justice (DOJ)
Primary Agency: DOJ
Support Agencies: All Executive Branch departments and agencies possessing a public safety and security capability
ESF #14 – LONG-TERM COMMUNITY RECOVERY
Purpose
Emergency Support Function (ESF) #14 – Long-Term Community Recovery provides a mechanism for coordinating Federal support to State, tribal, regional, and local governments, nongovernmental organizations (NGOs), and the private sector to enable community recovery from the long-term consequences of extraordinary disasters.
ESF #14 accomplishes this by identifying and facilitating availability and use of sources of recovery funding, and providing technical assistance (such as impact analyses) for community recovery and recovery planning support.
Members
ESF Coordinator: DHS/FEMA
Primary Agencies:
USDA, DHS), Department of Housing and Urban Development (HUD), Small Business Administration (SBA)
Support Agencies:
Department of Commerce
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Department of Defense
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Department of Energy
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Department of Health and Human Services
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Department of the Interior
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Department of Labor
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Department of Transportation
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Department of the Treasury
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Environmental Protection Agency
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Corporation for National and Community Service
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Delta Regional Authority
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American Red Cross
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National Voluntary Organizations Active in Disaster
ESF #15 – EXTERNAL AFFAIRS
Purpose
Emergency Support Function (ESF) #15 – External Affairs ensures that sufficient Federal assets are deployed to the field during incidents requiring a coordinated Federal response to provide accurate, coordinated, timely and accessible information to affected audiences, including governments, media, the private sector, and the local populace, including the special needs population.
Members
ESF Coordinator: DHS
Primary Agency: DHS/FEMA
Support Agencies: All
To see the complete annex, as well as other pertinent information, refer to the NRF Resource Center.