What makes the response to a terrorist incident different from the response to a natural disaster is that a terrorist event is a criminal activity. Not only do first responders need to protect the health and safety of the pubic; they also must be concerned with finding and preserving evidence. For law enforcement, this is a day-to-day operation and is part of their response. For fire and medical services, who are in support roles, this becomes a more complicated issue that can, and is, resolved through thorough and adequate training.
During a criminal investigation, local law enforcement is in the lead. During a terrorist incident the federal government is in the lead since terrorism is a federal crime. This division of authority becomes clouded when one tries to determine if the event was commonplace criminal activity or an act of terrorism. In most cases, when a weapon of mass destruction (MWD) is used, the event is considered a terrorist incident.
Terrorism is defined by the Federal Bureau of Investigation (FBI) as:
"The unlawful use of force or violence committed by a group or individual against
persons or property to intimidate or coerce a government, the civilian population, or
any segment thereof, in furtherance of political or social objectives."
Further, Weapons of Mass Destruction (WMD) are defined by Title 18 USC, Section 2332a as:
"(A)...any explosive, incendiary, or poison gas, bomb, grenade, rocket having a
propellant charge of more than four ounces, missile having an explosive or incendiary
charge of more than one-quarter ounce, mine or device similar to the above;
(B) poison gas;
(C) any weapon involving a disease organism; or
(D) any weapon that is designed to release radiation or radioactivity at a level
dangerous to human life."
Response to terrorist incidents is somewhat different than response to other types of disasters. Local law enforcement will establish their command post because they will be first on scene, just like they are for any other type of criminal activity. Their evaluation of the incident will determine whether or not the FBI is called in to take over command. If there is a warning to the incident, again decisions have to be made as to whether or not the potential incident is terrorism. If the determination is terrorism, the FBI is notified and takes command.
Unlike other types of disasters, a terrorist incident incorporates two basic concepts: 1) Crisis Management; and 2) Consequence Management. During most other types of disasters, local government is in the lead with county, state, and federal governments providing support. This is not the case in a terrorist event where both aspects must be addressed. The federal government is in the lead for Crisis Management, and local government is in the lead for Consequence Management.
Crisis Management is defined as: "Identifying, acquiring, and using resources to anticipate, prevent, and resolve a threat or act of terrorism." The lead agency is the Federal Bureau of Investigation (FBI). Support to the FBI is provided by local (city and county) and state law enforcement.
Consequence Management is defined as: "Protection of public health and safety, restoring governmental services, providing emergency relief to governments, individuals, and businesses affected by terrorist acts." The lead remains with local government supported by county, state and federal agencies. The Federal Emergency Management Agency (FEMA) is the lead federal agency with responsibility for supporting local and state government (analogous to FEMA's role in natural disasters).
Terrorism response requires specialized equipment and training, the organization of specialized resources, and planning efforts to prepare terrorism annexes for state and local government emergency operations plans to be accompanied by various exercises. To assist states in their preparedness efforts, the United States Department of Justice/Office of Justice Programs--Office of State and Local Domestic Preparedness Support has equipment, training, and planning grants available. States are eligible for these grants once they have developed a Three-Year Strategic Plan for Domestic Preparedness and secured the approval of their legislature.
One of the most important goals of the strategic plan is to implement a comprehensive assessment of the state's risk, vulnerabilities, needs, and capabilities. This assessment, also required by the Department of Justice, provides the basis for purchasing equipment, implementing training, and adequately defining what needs to be covered in plans and exercises.
Like all disaster events, terrorism requires that all agencies (first responders and support) be able to easily communicate with management and their counterparts. Additionally, a command and control element must exist to coordinate all activities. Those states that have not done so already, are looking at taking this opportunity to develop a statewide Incident Command System (ICS) tailored to the needs of the state and requiring that all agencies implement the system. This becomes an ideal opportunity to secure the support and commitment from all levels of elected officials for the development and implementation of a sound consequence management program and a statewide ICS structure.
GEM staff are available to assist you in the complete development of a sound consequence management program. We begin the process by developing a general needs and capability assessment. This assessment is provided in questionnaire form to the key stakeholders at all levels of governement as well as key "players" from the private sector. The results of the assessment are used as background for a "Stakeholders Forum" wherein the basis of the three-year strategic plan are developed. Taking the results of the Stakeholders Forum, GEM develops the strategic plan for submission to and adoption by your state legislature.
Once the plan is adopted, the real work of developing an effective consequence mangement program begins, and GEM is there every step of the way providing support, planning, and training services.
For additional information on support from the National Domestic Preparedness Office and the Office for State and Local Domestic Preparedness Support, use the links below to find the appropriate phone numbers.
