1. DoD Support to Search and Rescue
UNCLASSIFIED
DoD Support to Search and Rescue
…And the Dual Status Commander
Patrick Merrigan
USNORTHCOM/J36
January 25, 2017

2. “Fair is fair Larry… We’re out of food, we drew straws – you lost.”
Topics of Discussion
USNORTHCOM Overview
Title 10 Support to Dual-Status Commander-led JTFs
DSC Case Study – Colorado Floods
Best Practices
Q & A
“Fair is fair Larry… We’re out of food, we drew straws – you lost.”

3. United States Northern Command

4. NORAD-NORTHCOM Mission Sets
UNCLASSIFIED
NORAD-NORTHCOM Mission Sets
NORAD Aerospace Warning Aerospace Control Maritime Warning
USNORTHCOM
Homeland Defense
Civil Support
Security Cooperation
Trusted Partnerships
are our
Center of Gravity
Here are the NORAD and USNORTHCOM assigned mission sets…which span from a traditional homeland defense role…to helping others in their time of need.
The North American Aerospace Defense Command is a bi-national command with the U.S. and Canada, and was established in The NORAD Agreement is a formal military partnership, based upon a binding international agreement. NORAD conducts aerospace warning and control and maritime warning in the defense of North America.
United States Northern Command, or “USNORTHCOM,” was established in 2002 as a result of the terrorist attacks on Sept. 11, USNORTHCOM partners to conduct homeland defense, civil support and security cooperation to defend and secure the United States and its interests.
These are complementary missions. In the homelands, the two commands’ partners are critical…in fact, they are the commands’ center of gravity. While the missions are different, teamwork, partnerships, and unity of effort are universally critical to all the missions.
TRANSITION: Due to the unique nature of the laws, policies and guidance that affect the conduct of NORAD and USNORTHCOM’s missions in the homelands, it is critical that we partner with agencies at the Federal, State, Local and Tribal level that are in the lead in response to an event, in most cases. (SLIDE)
UNCLASSIFIED

5. NC Area of Responsibility

6. …saving lives, preventing human suffering, mitigate property damage…
Our Commander’s View…
Mission: When directed, USNORTHCOM conducts Defense Support of Civil Authorities within its AOR when requested by a Primary Agency and in response to National Special Security Events, actual or potential natural or man-made disasters or catastrophic incidents or other emergencies
Commander’s Intent:
We will assure our partners that Title 10 forces are in a supporting role, and will achieve unity of effort in saving lives, preventing human suffering, and mitigating great property damage.
Objectives:
Deploy and Employ Forces
Save lives
Prevent suffering
Minimize great property damage
Establish C3 and information networks
Maintain public confidence
End State: USNORTHCOM support to federal, state, local and tribal civil partners is complete, response efforts have transitioned to primary agencies, and the force is postured to respond to future events.
GEN Lori Robinson
Commander, N-NC
…saving lives, preventing human suffering, mitigate property damage… 4

7. Title 10 Support to Dual-Status Commander-led Joint Task Forces (JTF)

8. Who is a DSC?
Dual Status Commander is a properly trained US Army or US Air Force officer-of-the-line (Colonel or General Officer) who has been given the authority to exercise command over assigned Title 10 (Active Duty) and National Guard forces
Nominated by the Governor and approved by SECDEF
Trained by USNORTHCOM and NGB
Activated by a request from the Governor

9. Why employ a DSC? Joint Action Plan for Developing Unity of Effort
(Approved by Council of Governors, Secretary of Defense and Secretary of Homeland Security on March 1, 2011)
When a State requests support from the Federal government, it is vital to acknowledge both the sovereign status of Governors in managing and directing the response to emergencies within their States…and the responsibility of the President and Secretary of Defense in ensuring legal, safe, and effective employment of Federal forces when requested
NDAA FY12 (Public Law : December 31, 2011)
When the Armed Forces and the National Guard are employed simultaneously in support of civil authorities in the United States…a dual-status commander…should be the usual and customary command and control arrangement, including for missions involving a major disaster or emergency
When a major disaster or emergency occurs…the Governor of the State affected normally will be the principle civil authority supported by the primary Federal agency and its supporting Federal entities, and the Adjutant General of the State…normally will be the principle military authority supported by the dual-status commander
USSS has the primary responsibility for security design, planning and implementation (National Special Security Events)
FBI has the primary responsibility for intelligence, counterterrorism and federal criminal investigation (Crisis Management)
FEMA has the primary responsibility for emergency response, recovery planning and coordination (Consequence Management)
DoDD (Jan 5, 2011) Enclosure 4 (Responsibilities): State Adjutant Generals “Designate a qualified officer or officers eligible to serve in dual status pursuant to section 325(a)(2) of (Title 32 US Code). When a dual status relationship is authorized, ensure dual status officers facilitate unity of effort between State and Federal military forces in accordance with guidance from both their respective Governors and the President, or their designees.
So why do we do DSC? It all started with the Council of Governors. The Joint Action Plan for developing Unity of Effort recognizes state sovereignty and the Council of Governors, SECDEF and DHS all approved this in March 2011.
Then in December 2011, it became Federal law; DSC is the Usual and Customary C2 arrangement.

10. Title 10 Mission Command Options
Parallel
DSC
President
Governor
President
Governor
SECDEF
SECDEF
TAG
NORTHCOM
NORTHCOM
TAG
T10 Forces
NG Forces
Dual Status Commander
T10 Deputy
NG Deputy
Title 10
Staff
State NG
T10 Forces
NG Forces

11. Typical DSC Staff Configuration
Command Group
Special Staff (JA, SRG, PAO, etc)
Special Staff (JA, SRG, PAO, etc)
DSC
T10 Deputy
NG Deputy
T10 COS
NG COS
JOC J3 J1 J1 J2 J2
CUOPS
FUOPS J3 J3
DSC Joint Enabling Capability
(JEC) J4
JPG/FOC J5 J4 J5 J5
JSG
J1/4/6
NG Staff C2
T10 Staff C2
Coord J6 J6
Collaborating to achieve UNITY OF EFFORT

12. NC/J36 Joint Enabling Capability (JEC)
Phase 0
Shape
Phase I Anticipate
Phase II
Respond
Phase III Operate
Phase IV Stabilize
Phase V Transition
JTFJEC
17 Personnel
1 x T10D
2 x Future Operations (FuOps) Planners
2 x Current Operations (CuOps) Planners
1 X SEARCH AND RESCUE (SAR) PLANNER
1 x Information Mgmt/Knowledge Mgmt (IM/KM) Planner
1 x Personnel Planner
1 x Intelligence Planners
2 x Logistics Planner
1 x Public Affairs Officer
1 x Medical Planner
1 x Engineer Planner
2 x Communications Planners
1 x Legal Advisor
Manning based on supported JTF’s requirements
Deploys when requested under NORTHCOM authority
Redeployment based on agreement between JFHQ-State and NORTHCOM
JEC Core
3-4 Personnel
1 x T10D
2-3 JEC Planners
-Deploys when requested under NORTHCOM authority
-Sizing/scoping DSC-JEC
JEC Core
In Phase 0,:we do training, education, exercises, build relationships, and trade business cards.
In Phase I:at the request of your DSC or TAG or J3, we send you rT-10 Deputy and a small team (think ADVON) JEC Core.
In Phases II-IV: your JEC grows to meet the DSC’s requirements and we help you manage those T-10 forces and the T-10 “isms”.
In Phase V: We figure out how to get of your way.
It’s important to note that your state NG phases will likely not mirror exactly the T-10 phases. You may send us home days or weeks before the last Guardsman de-mobs.
Title 10 Deputy responsibilities include:
Conduct familiarization visits with assigned states, coordinate training & exercises
Establish working relationships with the DCO/DCE to facilitate DSC-Led JTF operations
Support DSC by coordinating with NC/J36 for JEC support
Scale the JEC as required for the response
Inform NC/J3 and NORAD-NORTHCOM/National Guard office of state training events as they are scheduled
Identify excess T10 capacity within the JTF for re-missioning with future/amended MAs
Support, if required, the DCO in the C2 of T10 forces prior to the request for DSC activation
Coordinate Joint Airspace Command and Control Element (JACCE) support with the DSC.
Requested by the JFHQ-State through T10D
Deploys under NORTHCOM Commander’s authority
Provides T10 civil support subject matter experts to the DSC and DSC staff
Normally comprised of 1 x T10D and 16 personnel:
2 x Future Operations (FUOPS) Planners
2 x Current Operations (CUOPS) Planners
1 x Search and Rescue (SAR) Planner
1 x Information Mgmt/Knowledge Mgmt (M/KM) Planner
1 x Personnel Planner 1 x Intelligence Planners
2 x Logistics Planner 1 x Public Affairs Officer
1 x Medical Planner x Engineer Planner
2 x Communications Planners 1 x Legal Advisor
TRANSITION: The Core team that works with the T-10 Deputy to support the DSC is called the DSC-JEC Core. When a situation requires a larger response to integrate with T32 staff for a domestic response, the DSC JEC core will expand to a DSC JEC; the NC/J36 bench can support across a wide variety of skill sets, which can bring the following capabilities or skill sets for a DSC JEC. (SLIDE)
JEC POC
-Build relationships
-Conduct coordination
-Exercise

13. DSC Establishment and Early Termination (or Extension)
DSC Establishment Steering Group
DSC
JFHQ J3
T32 Deputy
(T10 Deputy)
Recommends DSC JTF and DSC
Officer to
Recommends
establishment to
Issues letter of consent to
Issues authorization memorandum
TAG
GOV
SECDEF
Notifies NC
Coordinates/ preparesT10 Orders
Notifies
NGB
Issues letter of termination / extension to
Recommends early termination / extension to
TAG
GOV
SECDEF
Issues memorandum to terminate early / extend NC
Terminates / extends T10 orders
Disestablishment Steering Group
DSC
JFHQ J3
T32 Deputy
T10 Deputy
Recommends early termination/extension to
Intermediate CDR
DSC Establishment:
1. DSC Establishment Steering Group recommends DSC establishment to the TAG.
2. TAG recommends qualified Title 32 DSC and alternate to Governor.
3. TAG provides recommendation to Chief, NGB and CDRUSNORTHCOM for vetting. Requests for DSC appointment are coordinated through the following organizations: NGB J35 Future Operations Division at NGB J35X Deliberate Planning Branch at NORAD-USNORTHCOM Command Center (N2C2) Current Operations at and USNORTHCOM/J36 at
4. Governor requests approval for DSC from POTUS (delegated to SecDef under Obama). Under unique circumstances, when time does not allow for the Governor to submit a written letter of consent, the Governor may verbally submit consent for DSC via a phone call to the SecDef; however, the required paperwork must be submitted to the SecDef via or fax the letter to Assistant Secretary of Defense Homeland Defense and Global Security (ASD-HD & GS). The ASD-HD & GS current address: and fax number:
5. Chief, NGB and CDRUSNORTHCOM, will make recommendations to SecDef via the CJCS and ASD-HD & GS.   
6. SecDef issues authorization memorandum to the Governor (as established in the MOA).
7. USNORTHCOM prepares the G-Series orders granting DSC Title 10 Command Authority and coordinates with the USNORTHCOM Service Component (Army or Air Force) for the Title 10 Active Duty Operational Support (ADOS) orders for pay; and JFHQ-State prepares and issues State orders appointing approved DSC as JTF Commander.   
DSC Termination and Extension:
There are three methods for establishing the appointment termination date of a DSC, as described below:
1. Normal Termination: The DSC will normally be terminated IAW the date set in the SecDef authorization memorandum (appointment letter).
2. Extension: Both the Governor and SecDef must mutually agree to the extension of the original appointment. The Disestablishment Steering Group will make a recommendation to extend the DSC up both chains of command. The higher Federal Headquarters (NC/JFLCC) will make a recommendation for extension to USNORTHCOM. The CDRUSNORTHCOM will then make a recommendation for extension to the SecDef, while the TAG will request extension to the Governor. The Governor will modify/revise the original letter of consent with the requested extension date, while the SecDef will modify/revise the original letter of authorization approving the requested extension date.
3. Early Termination: Either the Governor or SecDef may direct early termination IAW the associated DSC Memorandum of Agreement. The Disestablishment Steering Group will make a recommendation for early termination of the DSC (because the DSC's assigned missions have been completed or mission tasking conflicts cannot be resolved) to both chains of command. The termination can be originated by either the State or the Federal Chain of Commands.
-For State (Governor) Early Termination. The Steering group will recommend to the DSC and TAG. DSC will sent letter to TAG, who will then send letter to Governor recommending termination. T10 chain of command will be informed of this State action. Once approved, Governor will write letter to SecDef with date and time that early termination will occur.
-For Federal (T10) Early Termination. The Steering Grip will make a recommendation to the higher T10 Headquarters (NC or JFLCC) to make a recommendation for early termination to CDRUSNORTHCOM, who will then make a recommendation for early termination to the SecDef. State chain of command will be informed of this Federal action. Once approved, SecDef will write letter to Governor with date and time that early termination will occur.  
For Termination other Stakeholders Requiring Notification and/or Input
-Incident Cdrs -Affected City/County EMs
-State EMA -DCO/DCE
See notes for more detailed info

14. DSC Activity last 24 MonthsME WA
Evergreen Tremor
Cascadia Rising
JSTC ND
Visit
JSTC MN
Visit ID MT NY VT
JSTC
Visit OR
JFO NH
Visit
JFO WI
Cascadia Rising MI SD
JSTC
Miles Paratus
Visit
Visit MA
Visit
Cascadia Rising
Sturgis Rally
Northern Exposure CT
Visit RI WY PA
Visit IA
Visit
JSTC
Rg 1
Visit
WMoF
DNC NJ
Super Bowl NE OH
JFOx2
Visit NV IL
Visit
Visit
JSTC
Visit
IND CPX IN
RNC UT
Visit
JFO MD CA DE
JSTC
Prairie Assurance
Visit WV
Visit
Visit
Rg 9 CO
JSTC
CUSEC
CAP SHIELD
WFF Conf
Visit KS MO
Visit DC
Papal Visit
JSTC
Vibrant Response
JSTC
Visit VA KY
JSTC NC
JSTC
Visit
T10 Dep Visit/Trng (68)
Visit
Ardent Sentry AZ NM OK AR TN
JSTC SC
Visit GA
Cascadia Rising MS AL
Visit
JSTCs (78)
Super Bowl
Visit
JSTC
Visit
Visit
JFOs (8)
Slide OPR: Mr. Day TX
Senior Leader TTX
JSTC
Visit
DSC Exe (17)
Visit AK
Visit
VGs (9)
JFO
Visit LA FL
NSSE/SEARs (7)
Visit
CUSEC HI
WFFs (0)
Visit
Hurricane (3)
JSTC
Flood (1)
Tide Breaker IV GU
As of 1 Jan 2017 PR
USVI
Visit
Visit

15. 2013 Colorado Flooding A DSC “Classic” Operation

16. Situation Overview
Heavy Rainfall began 11 Sept 2013 causing catastrophic flooding
17 of 64 Colorado counties affected – Boulder County among hardest-hit communities
T10 Aviation request / response for SAR under Immediate Response Authority (IRA) from Fort Carson, CO
CONG Joint Task Force - Centennial activated (JTF-C)
DSC requested and approved
Title 10 Deputy and full JEC integrates into JTF-C
State and Federal Disaster Declarations
2 x IMTs (ESF#4 Type 2)
FEMA ESF#9 US&R IST (White)
5 x US&R TF (CO-1, NE-1, UT-1 / MO-1, NV-1)

20. A view of an are damaged by flooding in northern Colorado 14 Sep 2013.

22. JTF-Centennial Mission Command Diagram
President
Governor
SECDEF
TAG
CO OEM
USNORTHCOM
NGB
JFHQ-CO
JFLCC IC
IMT2BLX
IMT2LRX IC IC
Joint Field Office
Incident Commander
Incident Commander
FCO
SCO
DCO
JTF-C
Brig Gen Byrne
JTF-C Staff (Integrated)
Size ~770 PAX
T32 ~643
T10 ~127
TF JRSOI
TF GSAR
TF Security
TF- Aviation
T-10
T-32
T-10/32
NG Aviation
4 CAB/4ID
Command
Coord
Support

23. DSC JTF-C SAR Ops – CO Floods
ICP Larimer
Christman Field
SEOC CO
JFHQ
IMT
(IC/SMC)
CONG
H60/CH47/H72
DSC
County
Line
JTF-C
ICP Boulder
Boulder Muni Airport
IMT
(IC/SMC)
T10 4ID
H60/CH47
Fort
Carson

24. Traditional Incident Management
Incident Response
Incident Response
Incident
Mgmt Team
Incident
Spt Team
ESF #4
ESF #9

25. Integrated Incident Command (Boulder, CO)
Integrated Response
Incident Response
RMA
Team B
DoD
CONG
Local
FAA
IST
White
UT TF-1
NE TF-1
CO TF-1

26. Rocky Mtn Area Integrated IMT B, Boulder, CO

27. Integrated Execution (CO TF-1 and DSC SAR)

30. Integrated Incident Cmd – Colorado Floods
Interagency collaboration among / across all Federal, State and local participating organizations
Promoted strong Comms and Coordination
De-conflicted and consolidated overlapping objectives and demobilization standards and criteria
Leveraged organizational skill sets - enhanced capabilities and assets of other agencies and teams
Streamlined response of operation
Efficient management of all incident resources

31. Summary - DSC JTF and Key Areas of Coordination (SAR)

32. Summary – DSC JTF
DSC JTFs have continued to be a success story (Presidential Summits, RNC, DNC, NSJ, Hurricane Sandy, Colorado Floods, etc.)
Co-located T-10 / NG staff enables collaborated planning; leverage of individual skills, experience and organizational resources toward common objectives. ** Unity of Effort **
Facilitates T-10 collaborative planning with State ESFs
Enables timely, “one-stop shopping” for military capabilities / resources
Enable TF / mission CDRs to work directly w/ civilian authorities
Direct Support to ICs
LNOs/SMEs:
Key toward achieving most efficient and effective use of JTF resources
Since 2004 there have been over a dozen DSCs most being Title 32 NG Dual Status Commanders (USC 325) and 1 Active Component Dual Status Commander (USC 315) which was Brig Gen Nolan, from NC/SJFHQ for the 2010 National Boy Scout Jamboree at Ft. AP Hill (federal instillation) and mostly federal troops. In this case a Active Duty Cdr made sense. In all cases the commanders and leaders indicate that is a great way to command forces with a DSC
Tying in DSC, there are many model for a Title 10 staff and Title 32 staff to support the commander. One is the Title 10 staff and the Title 32 staff operate separately and “do their own thing” with their forces. The best model is the “synchronized or consolidated” staff. That is where we create one HQ and we share the burden of staffing the HQ. For example, we have one JOC that is manned mostly by the NG with augmentation by Title 10 in key slots like a Title 10 Ops officer or as in many cased the Title 10 runs the KM. Reports can be synchronized to facilitate sharing of info—we’ll talk more about that in a minute. Blended Staffs work well together and nothing but complements from all the previous JTFs. (Every GO who has served as a Real World DSC agrees this is the way to do business.)
The more coordination and development of JTF systems the better the JTF is when it forms. This is specially critical for a No-notice/limited notice event where time is of the essence. You’ve all heard the mantra…the more you sweat in training the less you bleed in war—same concept. The more we figure this out now, the better we all support our citizens.
As for your JEC early to begin integration. There is no obligation since it is a “Free Chicken” program and Gen Jacoby will sent it if at all possible. Somewhat tied with this is ask for the JFO-State where the JEC comes and provides tailored training to the JTF staff.
For an incident, there are many issues that develop early. Military forces rely on civilians to generate a requirement so we can support them. Assessments of what is needed takes time and many times the civilians may also be affected. Of note, for most civilian agencies at the local, state and even federal level, planning is a part time job to their main job. So obtaining the rigor on requirements takes time. 32

33. Key Areas of Coordination (SAR)
Integrated Ops / IM
Collaborative planning
Coordinated execution
Leveraged resources
CONOPS
De-Centralized support
Communications
ICS 205 / Comms Plan
Delivery of Survivors
Lily Pads / CCPs
Hospitals
Geo-referencing
Standard / Guidance
Air Management Plan
Over-arcing State Plan
Airspace Deconfliction
Airfields/Fuel Availability
FAA LNO
Animals
Be prepared / Plan
Special Instructions
Safe, timely FOC / Op tempo
Key to EMAC and OoA resources
Updated daily

34. Unified Federal SAR iso of State (DSC JTF)
FCO
(DCO)
JPRC
AFRCC
FEMA HQ ESF #9
State EOC - ESF#9
ESF #9 Coord
DCO
JFO
JTF-SAR
JTF-CS
TACON
INCIDENT
FEMA
IST
FEMARRCC
DSC
FSARCG
IC / SMC
IC /SMC

35. FIN

36. BACK UP

37. Integrated Planning / Response Coordination
FEMA
DOD
NPS
USFWS
USCG
State
SAR
Integrated
Planning
CBP
CAP NG
FAA
FEMA
IMT/IC
SAR
ACTION
PLAN
WATERBOUR
Assets
AIR
Assets
LAND
Assets
I n t e r o p e r a b l e E x e c u t i o n

38. Interoperable Execution… add us&r
USCG, T32 and T10 Med & Heavy R/W DOI USFWS AirBoat USCG SPC AirBoat
CBP MQ-9 Civ Air Patrol

40. Compatible Comms Plan

41. Geo-Referencing Problems during Catastrophic Incidents
1. How do SAR Responders navigate when landmarks (e.g., street signs) are destroyed?
2. How do SAR Responders communicate position in a common language?
3. How do numerous SAR responders deconflict in a common operating area.

42. Geo-Referencing

43. Delivery of Survivors
Places of Safety
Lily Pads
Out of Area Transport

44. Hospital, Lily pad, Airfield/Fuel Status

45. Animals

46. Initial Damage Estimated $2 Billion in damages
7 confirmed fatalities, 218 injuries
3,120 lives saved
18,147 residents evacuated
Destroyed: 18,882 homes 200 commercial buildings
Damaged: 16,063 homes, 1,509 commercial
Over 20,000 oil wells affected
Sporadic power/gas outages continue throughout the affected area
Several water treatment plants compromised; boil water orders in effect for numerous counties
200 miles of road damages and over 50 bridges, over 100 road closures reported by Colorado DOT

47. Day to Day SAR within NC SRR
State
SAR AHJ
AFRCC
911
Reporting Source

48. DOD Support to Civil SAR
DODI September 26, 2011
Establishes policy and assigns responsibilities for DOD civil search and rescue (SAR) activities.
Support domestic civil authorities providing civil SAR service to the fullest extend practicable on a not to interfere basis with primary duties and iaw applicable directives, plans, guidelines, and agreements.
COCOMs and local CDRs encouraged to develop SAR Agreements with State/local SAR authorities
Support foreign civil SAR ops in territory and international waters beyond US recognized SRRs.
Civil Standards, procedures, and SAR terms and terminology (NSP, IAMSAR, NSS) shall be followed to the maximum extend possible.

49. Ways to get Federal/DoD support
Civil Authority - Direct to a DoD Official
May respond under Commander’s Immediate Response Authority
When assets are available and timeliness is key
Civil Authority - to Rescue Coordination Center (RCC)
For SAR or SAR enabling resources (Air, Land, Waterborne)
AFRCC/AKRCC for State Inland response
USCG Regional RCC for Waterborne
RCC will coordinate SAR services IAW Nat’l SAR Coordinator (SC) responsibilities (CDR USNORTHCOM is SC for lower 48 States)
Under National SAR Plan - No MA required
Civil Authority - Submit written request with commitment to reimburse IAW DoDD
Normally after federal ESFs are activated
Normally associated with Declaration, Stafford Act, Economy Act
We know as a federal Mission Assignment (MA)

50. Military Mission Command