ESF#1 - Transportation
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||Department of Transportation
||Department of Agriculture
||Department of Defense
||Department of State
||Department of the Treasury
||Federal Emergency Management Agency
||General Services Administration
||Tennessee Valley Authority
||U.S. Postal Service
Updated: June 3, 1999
Emergency Support Function (ESF) #1 — Transportation assists Federal agencies,
State and local governmental entities, and voluntary organizations requiring
transportation capacity to perform response missions following a major disaster
or emergency. ESF #1 also serves as a coordination point between response
operations and restoration of the transportation infrastructure.
Federal transportation assistance provided by ESF #1 includes, but is not
- Processing and overall coordination of requests for Federal and civil
transportation support received from organizations eligible under the
Federal Response Plan (FRP), including requests for military transportation;
- Operating national and field Movement Coordination
Centers (MCCs), as required, to obtain transportation services and provide
visibility of transportation assets into and out of the disaster area;
- Assessing the damage to the transportation infrastructure, analyzing
the effects of the disaster on the regional and national transportation
system, monitoring the accessibility of transportation capacity and congestion
in the transportation system, and implementing management controls as
- Assisting in the design and implementation of alternate transportation
services, such as mass transit systems, to temporarily replace system
capacity lost to disaster damage;
- Coordinating the clearing and restoration of the transportation infrastructure;
- Coordinating activities conducted under the direct authority of Department
of Transportation (DOT) elements, such as air and marine traffic control
and search and rescue; and
- Providing DOT-owned aircraft for transportation of personnel and cargo,
to the extent these assets are not required for internal priority DOT
- Federal transportation planning will consider utilizing
civil transportation capacity, as well as capacity owned or operated by
- Federal transportation planning will recognize State transportation policies
and plans used to control the movement of relief personnel, equipment, and
supplies, as well as State-established priorities for determining precedence
- DOT Headquarters will facilitate coordination between DOT regions in
the event of multiregion ESF #1 operations.
- Initial movements of Federal personnel, equipment,
and supplies will be managed using a Time-Phased Force and Deployment List
(TPFDL). TPFDLs for various scenarios will be developed and maintained
through an interagency process led by the Federal Emergency Management Agency
(FEMA) prior to a disaster to facilitate the prompt deployment of resources
when disaster strikes. Each ESF is responsible for compiling, submitting,
and updating information for inclusion in the TPFDL.
- All users of transportation should use established shipper-carrier relationships
to move materials into a disaster area and, if possible, include transportation
as part of each contract for acquisition of goods. The establishment
of pre-disaster contracts and arrangements for transportation is encouraged.
Requests for ESF #1 assistance should be considered only after such arrangements
are no longer available or not feasible. However, it is essential
to the orderly flow of resources for ESFs to advise ESF #1 of all transportation
movements arranged directly.
- Military transportation will be provided in accordance with the Military
Support section of the FRP Basic Plan (page 13).
- Disaster Condition
A major disaster will severely damage the civil transportation system throughout
the impacted area. Most local transportation activities will be hampered
by damaged facilities, equipment, and infrastructure, as well as disrupted
communications. At the same time, the disaster will create significant
demands for national, regional, and local transportation of resources to
provide for relief and recovery. Federal assistance may be required
to meet these demands for movement of essential resources, as well as for
clearing and restoration of the transportation system.
- Planning Assumptions
- The area/regional civil transportation infrastructure will sustain
damage, limiting access to the disaster area. Access will improve
as routes are cleared and repaired or as detours are built.
- The requirements for transportation capacity will exceed State and/or
locally controlled or accessible assets, demanding assistance from the
- Infrastructure damage and communications disruptions will inhibit efficient
coordination of transportation support during the immediate postdisaster
- Gradual clearing of access routes and improved communications will
permit an increased flow of emergency relief, although localized distribution
patterns might remain unusable for a significant period.
- The movement of relief supplies may create congestion in the transportation
network both nationally and regionally, requiring imposition of controls.
- ESF #1 can assist in the procurement of adequate transportation services
and restoration of the system.
- Local distribution of resources from a mobilization center to individual
victims will normally be the responsibility of mission-assigned Federal
agencies, as well as the affected State and local authorities, although
ESF #1 can assist in the procurement of vehicles and supporting equipment
for such operations.
- Concept of Operations
- The Disaster Transportation Management System (DTMS)
provides a structure for managing the acquisition of transportation services
and the deployment of relief and recovery resources from around the Nation
into the disaster area. The DTMS includes two components:
- TPFDLs, which are planned, prioritized lists of the most critical
Federal assets to be deployed rapidly to the disaster site; and
- Movement Coordination Center(s) to assist in the procurement of transportation
assets and track the movement of resources to the disaster area.
The MCC team is led by DOT and includes representatives from the Department
of Defense (DOD), FEMA, General Services Administration (GSA), and Forest
Service. All FRP agencies must notify the MCC when transportation
arrangements are made, so that resources can be tracked and reception
- When a disaster occurs, the Secretary of Transportation
will appoint a DOT Crisis Coordinator to manage the overall DOT/ESF #1
response, usually the Administrator of the Research and Special Programs
Administration (RSPA). The Crisis Coordinator will provide policy
direction over all national and regional ESF #1 response operations.
The Director, Office of Emergency Transportation (OET), in RSPA will provide
principal support to the Crisis Coordinator and manage ESF #1 operations
at Headquarters. OET is also responsible for ESF #1 planning.
- In the disaster area, direction of the ESF #1 mission
is provided by the DOT Regional Emergency Transportation Coordinator (RETCO).
The RETCO is the Secretary of Transportation’s representative for emergency
preparedness and response matters and is the senior regional ESF #1 official
for both planning and execution.
- Regional ESF #1 organization, notification, deployment, and support
operations will be conducted in accordance with the respective ESF #1
annexes to the regional FRP supplements.
- Communications will be established and maintained with
ESF #5 — Information and Planning to report and receive assessments
and status information.
- All requests for Federal assistance and mission assignments for transportation
support will be submitted to ESF #1 for coordination, validation, and/or
action in accordance with this annex.
- National-Level Response Structure
- National-level policy direction and management will be provided by
the DOT Crisis Coordinator. Principal ESF #1 operations will be
conducted at the DOT Headquarters Crisis Management Center (CMC).
The DOT Crisis Coordinator will provide guidance and direction to ESF
#1 representatives assigned to the Emergency Support Team (EST) at FEMA
Headquarters, as well as to the support agencies and regional response
- The DOT Crisis Coordinator will represent the Department in deliberations
of the Catastrophic Disaster Response Group (CDRG) during disasters.
- The OET Director will activate the headquarters ESF #1 organization
and the DOT CMC. The CMC will operate from Room 8336, DOT Headquarters
Building, 400 Seventh Street SW., Washington, DC. The CMC is staffed
by representatives of DOT operating administrations and selected ESF
#1 support agencies, and serves to coordinate and support ESF #1 activities
and internal departmental functions.
- The MCC will be established at FEMA Headquarters by the DOT Crisis
Coordinator at the request of the EST Director.
- Regional-Level Response Structure
- The RETCO is responsible for coordinating Federal transportation
response activities within the assigned jurisdiction.
- The RETCO will activate those elements of the regional ESF #1 response
organization required to meet the demands of the disaster, including
ESF representatives to the Regional Operations Center (ROC), Emergency
Response Team (ERT), and field MCC.
- Response Actions
- Initial Actions
Immediately upon notification of an imminent or actual disaster, priority
attention will be directed toward:
- Establishing necessary emergency operating facilities, such as
the CMC, and incident reporting systems;
- Establishing communications with the Office of the Secretary, the
impacted RETCO, DOT elements, and appropriate ESF #1 support agencies;
- Establishing communications with FEMA and other appropriate agencies
to obtain the location of possible damage areas, degree of damage,
and other available information, including aerial imagery;
- Providing appropriate representation to the CDRG and staff to the
EST (including the MCC if required);
- Implementing plans internal to DOT to ensure adequate staff and
administrative support; and
- Providing assistance to regional ESF #1 operations.
The RETCO will give priority attention to:
- Establishing necessary emergency reporting systems and operating
- Establishing communications with the Federal Coordinating Officer
(FCO), the State Coordinating Officer, DOT operating administrations,
and ESF #1 support agencies; and
- Establishing communications with the DOT CMC.
- Continuing Actions
- All ESFs will make maximum use of GSA standing schedules to secure
transportation support resources and services, generally as part of
a contract for acquisition of goods. ESF #1 will acquire transportation
services when normal channels of procurement are unable to provide the
service. In all cases, the MCC must be advised of all transportation
movements arranged directly by the ESFs or other team elements (e.g.,
- Through the MCC, ESF #1 will maintain surveillance over the availability
of both Federal and civil transportation capacity. Shortages will
be reported immediately to the DOT CMC, which will assist in identifying
sources and may consider imposing priorities and allocations if the
Defense Production Act has been implemented.
- The RETCO will coordinate with appropriate State and local agencies
to facilitate the movement of people and goods to, from, and within
the disaster area.
- The RETCO will be responsible for the administrative support of individuals
involved in regional emergency transportation operations and for managing
all financial transactions undertaken through mission assignments issued
- The RETCO will coordinate with appropriate DOT regional operating
administrations on the implementation of specific DOT statutory authorities
providing immediate assistance, such as air traffic control, search
and rescue, long-term recovery of the transportation infrastructure,
and mitigation efforts to lessen the effects of future disasters.
- Primary Agency: Department of
- Coordinate the provision of Federal and civil transportation capacity
in support of Federal agencies, State and local governmental entities,
and voluntary organizations, including contracting for such resources
- Provide staffing to and manage the MCC(s);
- Manage the financial aspects of the ESF #1 response, including the
funding of mission assignments and the process for reimbursement from
- Supervise the assessment of damage to the transportation infrastructure
and the analysis of the impact of the disaster on transportation operations,
regionally and nationally;
- Coordinate and implement, as required, emergency-related response and
recovery functions performed under DOT statutory authorities, including
the prioritization and/or allocation of civil transportation capacity,
air and marine traffic control, search and rescue, emergency highway funding
for federally owned highways and highways on the Federal Aid System, hazardous
material containment response, and damage assessment;
- Provide technical assistance to Federal, State, and local governmental
entities in determining the most viable transportation networks to, from,
and within the disaster area, as well as alternate means to move people
and goods within the area affected by the disaster; and
- Identify resource requirements for transportation and coordinate their
- Support Agencies
- Department of Agriculture, Forest Service
- Manage mobilization centers for ESF #7 — Resource
Support to receive goods shipped in support of the disaster; and
- Provide staffing to the MCC(s).
- Department of Defense
- Provide support in the emergency operation of inland waterways, ports,
and harbors under the supervision of the U.S. Army Corps of Engineers,
including dredging operations;
- Assist in restoring the transportation infrastructure;
- Provide organic military transportation capacity from the U.S. Transportation
Command (USTRANSCOM) to move essential resources and assist in the contracting
for civilian airlift. USTRANSCOM also will provide staff to the
- Assist in the development and support the execution of TPFDLs for
high-priority response resources.
- Department of State
Coordinate requests for and offers of transportation assistance from foreign
- Department of the Treasury, U.S. Customs Service
Provide airlift and marine transportation capability.
- Federal Emergency Management Agency
- Coordinate the acquisition, movement, and distribution of FEMA-owned
relief goods into the disaster area, in accordance with the Logistics
Management Support Annex;
- Initiate transportation actions prior to MCC activation, keep DOT
informed of early transportation actions, and assume responsibility
for closeout of actions after the headquarters and field MCCs deactivate;
- Supervise the development of the TPFDLs; and
- Provide staffing to the MCC(s).
- General Services Administration
- Assist in identifying sources for and contracting transportation
- Provide staffing to the MCC(s).
- Tennessee Valley Authority
- Participate in the coordination of transportation and navigation
on Tennessee Valley Authority-managed waterways during a disaster; and
- Assist in damage assessment.
- U.S. Postal Service
Provide U.S. Postal Service vehicles not immediately required for mail delivery
for transportation of relief resources, particularly for distribution in
the disaster area.
- Terms and Definitions
- Civil Transportation Capacity
The total quantity of privately owned transportation services, equipment,
facilities, and systems from all transport modes nationally or in a prescribed
area or region.
- Disaster Transportation Management
A system for managing the acquisition of transportation assets and organizing
the movement of resources into the disaster area. The DTMS includes
the TPFDL and MCC.
- DOT Crisis Coordinator
A senior-level official appointed by the Secretary of Transportation to manage
the Department’s emergency response operations during a situation having significant
impact upon civil transportation capacity or the transportation infrastructure.
For disasters, the Administrator, Research and Special Programs Administration,
will normally serve as Crisis Coordinator.
- Federally Arranged Transportation
The identification of available civil transportation capacity, and assistance
in procuring such capacity, in support of Federal agencies, State and local
governmental entities, and voluntary organizations unable to obtain required
services through normal procurement channels.
- Movement Coordination Center (MCC)
An ESF #1 element within the EST in Washington, DC, and in the field.
When established, the MCC coordinates acquisition of transportation capacity
and maintains visibility over validated transportation requests for assistance
from inception through delivery to a mobilization center.
- Regional Emergency Transportation
A senior-level executive from a DOT operating administration who is designated
by DOT Order to serve as the regional representative of the Secretary of
Transportation for emergency transportation preparedness and response.
- Time-Phased Force and Deployment
A tool to manage the rapid, early movement of Federal personnel, equipment,
and critical relief supplies in response to an impending or actual disaster.
TPFDLs improve efficiency of air and ground support, contributing to the effective
functioning of personnel, logistics, and transportation management processes.
Typical resources deployed and tracked include special units such as Urban
Search and Rescue task forces and Disaster Medical Assistance Teams, as well
as generators, plastic sheeting, and Meals-Ready-to-Eat. Detailed information
is included about the cargo (quantity, dimensions, weight, points of departure/arrival,
required delivery date, etc.) and passengers. Collectively, this information
is known as the Time-Phased Force and Deployment Data (TPFDD).