Logistics Management Support Annex
In PDF format
|Federal Logistics Partners:
||Department of Agriculture
Department of Defense
U.S. Army Corps of Engineers
Department of the Interior
Department of Transportation
Federal Emergency Management Agency
General Services Administration
National Communications System
Updated: June 3, 1999
The purpose of this annex is to provide an overview of disaster logistics
management activities and how the Federal Emergency Management Agency
(FEMA) performs its logistics mission under the Federal Response Plan
- This annex:
- Identifies the components of the Federal disaster logistics
- Provides a concept of operations for logistics management in
support of the FRP; and
- Outlines FEMA logistics management responsibilities and how
they change as various Federal logistics providers become active
during a major disaster.
- For procedures used to execute various logistics functions, see
related FEMA or other Federal agency publications (See section VI,
- FEMA will utilize ESF #7 — Resource Support
when activated or under the interagency agreements with the General
Services Administration (GSA) to acquire medical, biohazard, or other
specialized equipment, supplies, and services as required and appropriate.
- Logistics management is the process of planning, preparing, implementing,
and evaluating all logistics functions that support an operation or
- Effective logistics management ensures that all functions are executed
in a unified manner in order to reduce costs, ensure appropriate support
actions, and decrease delivery time. Individual logistics functions
and associated subfunctions include:
- Materiel Management: requisitioning, ordering, and sourcing
(requirements processing); acquisition; asset visibility (resource
tracking); receipt; storage and handling; security; accountability;
inventory; deployment; issue and distribution; recovery; reutilization;
- Property Management (Personal Property): accountability, inventory,
disposal, and record processing;
- Facility Management: facility selection and acquisition, building
information systems, communications, fleet management, safety
and health, and physical security; and
- Transportation Management: transportation prioritizing, ordering,
sourcing, and acquisition; time-phasing plans; and movement coordination
- Logistics personnel find appropriate, time-sensitive, and cost-effective
ways to fill the requirements developed by operations personnel.
- All Federal departments and agencies acting within the scope of the
Robert T. Stafford Disaster Relief and Emergency Assistance Act will account
for personal property in accordance with the Federal Property Management
Regulations (41 CFR 4) and existing agency property management policies.
This will occur whether property is acquired from an agency’s own stock,
available Federal excess, or purchased with money from the Disaster Relief
- Prior to initiating orders for personal property (through mission assignment
or acquisition channels), stock previously acquired from the DRF must
be the first source if it can be utilized in a timely and cost-effective
- Requests by Federal agencies to procure personal (vs. real) property
in support of State tasking using the DRF will be passed to the Logistics
Section of the Regional Operations Center (ROC), Emergency Response Team
(ERT), or Emergency Support Team (EST) (during their respective activations);
or the FEMA Headquarters, Operations Support Directorate, Logistics Division
(when the ROC, ERT, or EST are not activated) for processing and sourcing.
This will ensure that requests are not duplicated and procurements are
made only when cost effective or time efficient.
- If other Federal agency property is being used for response and recovery
operations and this property is lost, damaged, stolen, or consumed, the
agency will be reimbursed for the cost of such property if the required
documentation is provided to FEMA. Required documentation is outlined
in FEMA Manual 6150.1, Personal Property Management Program. The
process for requesting reimbursement is detailed in the Financial
Management Support Annex.
- When agencies’ property costs are reimbursed from the DRF, ownership
of the property acquired during the execution of a mission assignment
passes to FEMA.
- FEMA will direct the disposition of all property that is owned by FEMA,
including items held by organizations that intend to request reimbursement
for the item from the Disaster Relief Fund. This could include transfer
to FEMA, retention by the agency, donation to State-local government,
or excess through GSA.
- Information systems and communications devices purchased through
the DRF will be retrieved and returned at the conclusion of each disaster
operation to the FEMA Disaster Information Systems Clearinghouse (DISC).
The DISC will rehabilitate and repackage items for reuse on other
- Other equipment and supplies purchased with DRF money and issued
to support responders and field facilities will be retrieved and returned
at the conclusion of each disaster operation to one of the three FEMA
Territory Logistics Centers (TLCs) serving the East, Central, and
West FEMA territories. Returned items will be coordinated with
the Agency Logistics Center (ALC) of the FEMA Headquarters Logistics
Division. The TLC will rehabilitate and repackage equipment
and supplies for reuse on other disasters as directed by the FEMA
Headquarters Logistics Division. The exceptions are:
- Equipment and supplies used by the Advance Element of the ERT
that will be stored in the FEMA Regional Offices; and
- Nonstandard TLC-stocked or non-mission capable items that will
be excessed or disposed of at the disaster site.
- Property procured with funds from the DRF may be used only in support
of disaster response and recovery activities, not for day-to-day operations.
In order to accomplish a smooth transition to disaster operations, FEMA ensures
a coordinated framework for Federal logistics management activities that includes
logistics planning, preparedness, implementation, and evaluation in support
of disaster operations.
- Disaster Condition
- The unpredictable nature of some disasters requires that Federal
agencies be prepared at a moment’s notice to provide needed services,
equipment, and supplies. FEMA Headquarters Logistics Division
maintains a base logistics capability that enables a rapid response
to any disaster and is able to provide full logistics services to
limited events without activating other Federal logistics partners;
it can also provide immediate supplemental Federal support, as appropriate,
in any disaster situation.
- FEMA Logistics will:
- Ensure agency readiness to deliver critical Initial Response
Resources (IRR) and responder support goods;
- Participate in early planning and execution of disaster operations
before the activation of other Federal agencies; and
- Assume open actions and closeout responsibilities from demobilizing
Federal logistics partners.
- Planning Assumptions
- Federal logistics support will be provided principally in support
of Federal operations initiated through proper requests by the affected
State. However, Federal logistics support and assets may be
requested by the State in the form of Federal technical assistance
if the logistics assets and capabilities of the affected local communities
and State are overwhelmed.
- During disaster operations, the execution of most logistics actions
will be conducted through Emergency Support Function (ESF) and other
Federal operations, such as ESFs #1 — Transportation,
#2 — Communications, and #7
— Resource Support and the Defense Coordinating Element.
- FEMA’s logistics management capability will be established prior
to ESF activation to ensure that logistics activities are rapidly
initiated and initial logistics services are provided until ESFs set
up and begin operations. Once the ESFs and other Federal agencies
are established, FEMA logistics actions will complement ESF operations
by preparing and deploying FEMA-stored assets and handling the disposition
of commodities at the end of the operation.
- Policies and procedures for the Logistics Section of the ERT and
EST will be
- The operations element of the ROC, ERT, and EST will rapidly make
initial decisions on mobilization center support requirements and
the IRR required. They also will activate personnel and resources
in a timely manner.
- Concept of Operations
- Federal Disaster Logistics
- The delivery structure for Federal disaster logistics depends on
logistics partners that combine resources to support disaster operations.
Figure LM-1 depicts Federal disaster logistics
organizations and the respective disaster organization that they support.
Once a disaster event triggers the formation of disaster organizations,
the day-to-day organizations listed in the first column of Figure
LM-1 will staff and support the appropriate ROC, ERT, and EST
subelements listed in the second column.
- In addition to these organizations, there are numerous fixed facilities
and corresponding staffs that support the deployment of personnel
and goods. The FEMA Headquarters Logistics Division maintains
the DISC, three TLCs, and Disaster Response Support Facilities (DRSFs),
collocated with each Mobile Emergency Response Support (MERS) detachment.
Each region also supports limited storage sites.
- Concept of Logistical Response
The Federal disaster logistics community is brought together when an event,
or the threat of an event, triggers the activation of response personnel.
Logistics management is executed continuously. During the disaster
operation, logistics managers should be the first involved and the last
to leave the field. Figure
LM-2 illustrates the movement from a state of preparedness through
a Disaster Operations Cycle to a return to a state of preparedness.
It also shows how FEMA logistics activities change as other Federal logistics
providers become involved as the response requires more assets and support
than can be provided by internal FEMA assets and personnel alone.
- Operational Readiness Phase: Transition into Active Disaster
- Logistics personnel focus primarily on preparing goods for
- Logistics personnel begin to transition from day-to-day operations
into active disaster logistics management activities, such as
tracking deployments and processing requests for assets.
Federal agency logistics staff begin to:
- Anticipate initial requirements;
- Participate in decision-making meetings;
- Develop strategic logistics plans for consideration by
the Operations Section Chief and other leadership; and
- Establish communications and coordination among Federal
logistics partners to begin initial planning to transport
goods and to locate mobilization centers.
- The FEMA Headquarters Logistics Division generally performs
readiness activities and prepares to transition into ERT and EST
roles. FEMA logistics elements also may be executing activities
typically covered by ESFs #1 or #7,
since they do not have the authority to act until they receive
an activation notice and start-up funding (which usually occurs
during the next phase).
- FRP Activation Phase: Federal Logistics Partners Transition
to ESF Operations
- Logistics providers are formally activated. Operations
personnel form requirements, and logistics staff deploys teams
as well as IRR and responder support goods. The field infrastructure
for receiving personnel and goods is being developed, with mobilization
centers being established and property management personnel arriving.
- An interagency logistics team forms to ensure the rapid location,
acquisition, and setup of key field facilities (including the
DFO and mobilization centers); operation of the field Movement
Coordination Center (MCC); and initiation of resource acquisition
operations. At a minimum, this team would include representatives
from the Department of Transportation (DOT), U.S. Army Corps of
Engineers (USACE), GSA, Department of Agriculture/Forest Service
(USDA/FS), and FEMA Logistics.
- As the core for the ROC, ERT, and EST operations support, logistics
personnel perform the following functions:
- Track the movement of assets;
- Set up the Disaster Field Office (DFO) and other field
- Support the deployment and receipt of response assets,
including IRR items;
- Coordinate deployments through the MCC to the mobilization
- Translate operations-generated requirements into specifications;
- Analyze requisitions to determine cost-effective and timely
means to meet requirements.
- Except for managing and deploying FEMA-held assets, FEMA logistics
elements transition all other hands-on execution activities, as
required, to the other Federal logistics providers. FEMA regional
and national logistics personnel then assume a broader logistics
management role through the ROC, ERT, and EST Logistics Sections.
- Operations Phase: Delivery of Assistance
- Activated Federal logistics providers have the ability, authority,
and funding to execute tasks including:
- DOT manages the acquisition of transportation as the primary
agency for ESF #1, administers
the MCC to track shipments and deploying teams, and furnishes
Federal Aviation Administration and U.S. Coast Guard aircraft
- After coordinating with internal Federal sources, GSA procures
resources needed by the responders and victims, locates and
rents field facilities (e.g., DFO, mobilization centers),
and arranges contracts for transportation in support of ESF
- USDA/FS establishes receiving and distribution operations
at the mobilization centers and supports a FEMA property management
team by executing property accountability on items stored
at these locations.
- The Department of Defense (DOD) supports DOT and GSA as
- The ERT, ROC, and EST logistics activities focus on providing
and coordinating delivery of required resources to sustain operations.
(Materiel management, property management, facility management,
and transportation management constitute the majority of all logistics
operations.) FEMA’s role in hands-on execution diminishes
during this phase.
- Stand-Down Phase: Transfer of Responsibilities to FEMA Logistics
- As response operations begin to diminish, the Federal Coordinating
Officer (FCO), ROC Director, and EST Director demobilize the other
Federal agencies from their respective operations.
- The ERT, ROC, and EST Logistics Sections assume the responsibility
for and closeout of any logistics activities left unaccomplished
by the other Federal agencies. (For example, as the FS demobilizes
staff from the mobilization centers, the ERT and EST Logistics
Sections work jointly to ensure that all assets are disposed of
in the disaster area, or are retrieved, refurbished, and returned
to one of FEMA’s TLCs or other designated storage sites.)
- The EST Logistics Section, the key link to the TLCs, remains
active for several days following demobilization of the other
Federal partners from the EST. It eventually transitions
personnel and work to the FEMA Headquarters Logistics Division.
Once this is accomplished, the FEMA Headquarters Logistics Division
closes out disaster activities by:
- Coordinating with the ERT Logistics Section, Regional Operations
Support Division Director, and TLC managers on the disposal
or retrieval, refurbishment, and retrograde of FEMA assets;
- Maintaining proper property accountability processes; and
- Conducting internal after-action meetings while participating
in ERT, ROC, and EST after-action meetings.
- Logistics personnel revise documents, collect and file paperwork,
and develop and assign tasks to improve activities for the next
event. The FEMA Headquarters Logistics Division may meet
with other Federal logistics providers to develop a corrective
action plan to improve overall cost-effectiveness and efficiency.
- Organization of the Logistics
The ERT Logistics Section and EST Logistics Section have been standardized
in accordance with FEMA policy and guidance. Both structures emphasize
support to disaster operations, including the setup and operation of disaster-specific
- ERT Logistics Section
The ERT Logistics Section has overall responsibility for planning, organizing,
and directing logistics operations. The organization, shown in Figure
LM-3, comprises various Section-specific management and staff functions,
as well as five branches — Coordination and Planning, Resource Management,
Supply, Support Services, and Information Services.
- EST Logistics Section
The EST Logistics Section plans, organizes, and supports logistics operations.
The organization, shown in Figure
LM-4, performs six principal activities:
- Supports the mobilization, deployment, initial operations, retrieval,
and storage of FEMA-owned national assets, including those dispatched
as part of an initial response resources plan, until the ERT Logistics
Section becomes fully operational;
- Supports the mobilization, deployment, and retrograde of teams;
- Supports the ERT Logistics Section;
- Tracks deploying resources;
- Aids in requisition processing, sourcing, ordering, and allocation
as necessary; and
- Coordinates information systems support to the EST.
Refer to FEMA publication 9380.1-PR, Logistics Management Operations Manual,
for a detailed list of responsibilities.
Additional information on FEMA’s logistics management system may be found
in a number of publications. The following include the most relevant:
- Logistics Management Overview, FEMA Manual 9380.1-VW, December 1997
- Logistics Management Operations Manual, FEMA Manual 9380.1-PR, December
- Personal Property Management Program, FEMA Manual 6150.1, July 1996.
- DISC Operating Procedures, February 1996.
- EST Logistics Section Operations and SOP Manual (unnumbered), July
1995 (under revision).
- ERT Logistics Section Operations and SOP Manual (unnumbered), May 1994.
- Motor Vehicle Management and Operations Manual, FEMA Manual 6250.2.
- Terms and Definitions
- Accountable Property
Property that (a) has an acquisition cost of $15,000 or more; (b) has
a unique, identifiable serial number (e.g., computer or telecommunications
equipment); or (c) is considered “sensitive” (i.e., easily pilfered),
such as cellular phones, pagers, and laptop computers.
- Agency Logistics Center (ALC)
An organization that provides centralized control, transportation, deployment,
and accountability of all disaster support goods within the TLC network.
The ALC was developed to enhance readiness and response, improve accountability
of disaster assets, and reduce overall disaster costs.
- Asset Visibility
Monitoring of the inventory levels of all goods that can be used for disaster
operations that are in storage sites and of their movements to designated
locations. Resource tracking is a subcomponent of asset visibility
since it views only a subset of the overall inventory and tracks assets
as they are applied to a specific disaster.
- Disaster Information Systems
An organization that provides centralized control, deployment, and accountability
of disaster information systems. The DISC is located at FEMA’s Mount
Weather Emergency Assistance Center in Bluemont, VA.
- Disaster Response Support Facility
A storage facility located near each FEMA MERS detachment, which houses
MERS vehicles and associated disaster support materiel.
Equipment and supplies.
- Initial Response Resources
Critical goods provided to victims and all levels of government responders
immediately after a disaster occurs. IRR goods are used to augment
State and local capabilities. FEMA’s Logistics Division is responsible
for storing and maintaining a limited quantity of critical IRR goods,
initiating the acquisition of nonstocked items through Federal logistics
partners, and pre-positioning equipment and supplies when required.
IRR goods include equipment (e.g., emergency generators and refrigerated
vans) and supplies (e.g., food, water, and personal hygiene items).
- Logistics Information Management
FEMA’s official automated personal property management system.
- Mobilization Center
The designated location at which response personnel and resources are
received from the Point of Arrival and pre-positioned for deployment to
a local staging area or directly to an incident site as required.
A mobilization center also provides temporary support services, such as
food and billeting, for response personnel prior to their deployment.
- Personal Property
Any property other than real property, which includes land, buildings,
and other structures owned or leased by the Federal Government.
In this annex, personal property is used interchangeably with goods, equipment,
- Requirements Processing
Analysis of requests for goods or technical services, translating these
requests into meaningful specifications, completing requisite paperwork
(e.g., Request for Federal Assistance form or FEMA Form 40-1), and entering
the request into the resource tracking system. Alternately known
as the resource ordering process.
- Resource Tracking
Monitoring the processing of requirements, source selection, movement,
receipt, distribution, utilization, and recovery of goods, tactical teams,
and technical service personnel for a specific operation. The resource
tracking function is a subcomponent of FEMA’s overall asset visibility
system since it focuses only on the movement of a small group of items,
teams, and personnel from the Federal Government’s resources.
All personnel and major goods available, or potentially available, for
assignment to operations. Resources are described by kind and type.
- Territory Logistics Centers
FEMA’s strategically located logistics centers that support disaster operations
through a variety of preparedness and response measures. These centers
serve as storage sites for strategic disaster supplies and equipment,
including initial supplies of certain IRR goods and prepackaged kits to
support disaster field facilities. Skilled logistics personnel may
be supplied from these centers to support disaster operations. Three
geographically dispersed TLCs are located at Fort Gillem, GA; Fort Worth,
TX; and Moffett Field, CA.