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Joint Telecommunications Resource Board 1989
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Originally Processed With FOIA(s):
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2005-0336-F
2005-0336-F
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This is not a textual record. This is used as an
administrative marker by the George Bush Presidential
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Science and Technology Policy, Office of (OSTP)
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O'Neil, John F., Files
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Telecommunications Files
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62105
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Joint Telecommunications Resource Board 1989
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EXECUTIVE OFFICE OF THE PRESIDENT
OFFICE OF SCIENCE AND TECHNOLOGY POLICY
WASHINGTON, D.C. 20506
January 3, 1989
MEMORANDUM FOR ASSISTANT SECRETARY OF DEFENSE FOR COMMAND,
CONTROL, COMMUNICATIONS AND INTELLIGENCE
ASSISTANT SECRETARY FOR COMMUNICATIONS AND
INFORMATION, DEPARTMENT OF COMMERCE
MANAGING DIRECTOR, FEDERAL COMMUNICATIONS
COMMISSION
COMMISSIONER, INFORMATION RESOURCES MANAGEMENT
SERVICE, GENERAL SERVICES ADMINISTRATION
MANAGER, NATIONAL COMMUNICATIONS SYSTEM
ASSISTANT ASSOCIATE DIRECTOR FOR INFORMATION
RESOURCES MANAGEMENT, FEDERAL EMERGENCY
MANAGEMENT AGENCY
SUBJECT:
PROPOSED CHANGES TO JOINT TELECOMMUNICATIONS
RESOURCES BOARD STANDARD OPERATING PROCEDURES
At our February 11, 1988, meeting Lieutenant General John T.
Myers, Manager, National Communications System (NCS), agreed to
complete a review of the roles, responsibilities and purpose of
the Joint Telecommunications Resources Board (JTRB) and to
circulate the study to Board members for their consideration and
comment. A draft study, "The Evolutionary Roles and Missions of
the Joint Telecommunications Resources Board,' was forwarded to
members on March 1, 1988. Subsequently, all members commented on
the study and its conclusions. This memorandum forwards a
revised draft of the JTRB Standard Operating Procedures (SOP)
which incorporates the major recommendations included in member
responses to the study. Additions to the SOP are presented in
shaded type and deletions are shown as strikeouts.
The JTRB member responses fall into two categories: those
comments that address the study itself and suggestions for
improving it, and those recommendations concerning conclusions
reached in the study. No further action has been taken
concerning revisions to the study since its purpose was not to be
a finalized document, but rather a review of the JTRB's
background and purpose and a device for eliciting the comments
and recommendations concerning the need for any expansion of JTRB
roles and missions.
2
There were two basic recommendations for expanding the JTRB role,
specifically with respect to modifying the JTRB SOP: (1) to
include the JTRB role as the Telecommunications Functional Group
under the provisions of the National System for Emergency
Coordination, and (2) the Federal Communications Commission's
role in JTRB proceedings as one of representing the private
sector when there are competing government and private sector
requirements. These recommendations have been incorporated into
the attached revised draft.
Please review the attached draft SOP and provide your comments to
me by January 13, 1989. We will consolidate your inputs and
schedule a JTRB meeting to review your suggestions.
Also at that meeting it would be beneficial to conduct another
tabletop exercise to consider problems the JTRB could encounter
during an emergency. The OMNCS is developing issues now for this
exercise. Your input into the development of relevant issues
would enhance the utility of this exercise immeasurably. Please
provide any issues you deem appropriate for JTRB consideration in
this exercise to Mr. Bill Belford, of the Office of the Manager,
NCS, (746-1300) at your earliest convenience, but preferably not
later than January 13, 1989.
Willin RMaham
William R. Graham
Director
Attachment:
Draft SOP
INTERIM STANDARD OPERATING PROCEDURES
FOR
JOINT TELECOMMUNICATIONS RESOURCES BOARD
I.
Background
a. By Executive Order No. 12046, Relating to the Transfer
of Telecommunications Functions, March 27, 1978, the Director of
the Office of Science and Technology Policy (OSTP) was assigned
the responsibility for preparing to direct the exercise of the
President's war power functions contained in Section 606 of the
Communications Act of 1934, as amended. Existing Federal
emergency plans (e.g., Federal Emergency Plan D, Annex C-XI)
have also recognized OSTP's responsibility and designated the
Director, OSTP, as the Nation's telecommunications resource
manager under conditions of national emergency (i.e., war)
wartime emergency. Executive Order 12472, "Assignment of
National Security and Emergency Preparedness Telecommunications
Functions," April 3, 1984, reaffirmed that the Director, OSTP,
is responsible for directing the exercise of the Section 606
Presidential war powers. Under conditions of national emergency
in which the President's war emergency powers (formerly Section
606 and now Section 706) are have been invoked, there is thus a
visible single authority for telecommunications resource
management that which is clearly assigned the responsibility for
serving as the authoritative channel of emergency
telecommunications information and advice to the President.
b. There are, however, a range of non-wartime situations
that do not justify the exercise of the President's war powers
under Section 706 of the Communications Act of 1934 or the
implementation of Federal Emergency Plan D, but yet require
response by the Federal Government and, therefore, Executive
Office of the President attention and direction. Such
situations include:
(1) Presidentially-declared emergencies and major
disasters;
(2) Federal Emergency Management Agency (FEMA) -declared
extraordinary situations; and
(3) Critical situations which have the potential for
developing into emergencies/major disasters,
extraordinary situations, or national emergencies.
While FEMA has been implementing an Integrated Emergency
Management System concept to provide a consistent management
structure across the continuum of emergency situations, until
recently there has been no single clearly identified or visible
authority that the President could turn to for emergency
1
telecommunications information and advice to support
decisionmaking across this continuum.
C. Executive Order No. 12472 recognized this gap and
Section 2 (b) thereof assigned specific non-wartime emergency
telecommunication functions to the National Security Council and
the Director of the Office of Science and Technology Policy as
follows:
'(b) Non-Wartime Emergency Functions.
(1) The National Security Council shall:
a. Advise and assist the President in coordinating the
development of policy, plans, programs and standards within
the Federal Government, and by State and local governments,
private industry and volunteer organizations upon request,
to the extent practicable and otherwise consistent with law,
during those crises or emergencies in which the exercise of
the President's war power functions is not required or
permitted by law; and
b. Provide policy direction for the exercise of the
President's non-wartime emergency telecommunication
functions, should the President so instruct.
(2) The Director of the Office of Science and Technology
Policy shall provide information, advice, guidance and
assistance, as appropriate, to the President and to those
Federal departments and agencies with responsibilities for
the provision, management, or allocation of
telecommunication resources, during those crises or
emergencies in which the exercise of the President's war
power functions is not required or permitted by law;
(3) The Director of the Office of Science and Technology
Policy shall establish a Joint Telecommunications Resources
Board (JTRB) to assist him in the exercise of the functions
specified in this subsection. The Director of the Office of
Science and Technology Policy shall serve as chairman of the
JTRB; select those Federal departments, agencies, or
entities which shall be members of the JTRB; and specify the
functions it shall perform.'
d. More recently, on January 19, 1988, a White House
Memorandum announced Presidential approval of a National System
for Emergency Coordination (NSEC). Its purpose is to provide
timely, effective, and coordinated assistance to State and local
governments in extreme catastrophic technological, natural, or
other domestic emergencies of national significance. When the
NSEC is activated, the Federal Government's response to major
domestic crises will be consistent with current emergency plans,
2
and will use existing domestic and national security crisis
information and management systems.
e. The NSEC calls for functional groups to be established
at the national level to support and coordinate relief
operations, assess problems, propose solutions and facilitate
resolution of specific emergency functional needs. A
Telecommunications Functional Group is one of the interagency
functional groups which could be activated, depending on the
nature of the crisis. The NSEC assigns responsibility for the
Telecommunications Functional Group to the Office of Science and
Technology Policy/National Communications System.
II. Purpose
a. The Joint Telecommunications Resources Board is hereby
established to assist the Director, OSTP, in the exercise of
those non-wartime emergency telecommunication functions assigned
by E.O. 12472 and to support the OSTP/NCS as the Telecommunica-
tions Functional Group within the NSEC as prescribed by White
House Memorandum dated 19 January 1988. The Board will serve as
the deliberative and recommending body for the Executive Office
of the President, and ultimately the President, thereby
providing a cohesive process for ensuring the provision of
necessary telecommunications information and advice to them, and
facilitating concerted timely decisionmaking and execution of
assigned emergency responsibilities by individual Federal
entities under the overall guidance of the President and the
Director, OSTP.
b. As required, the JTRB may also be convened to act in
support of major Federal exercises or to consider non-wartime
emergency telecommunication policies and procedures.
III. Authorities-References
a. Communications Act of 1934 (47 U.S.C. 151 et seq.), as
amended.
b. Executive Order 12472, Assignment of National Security
and Emergency Preparedness Telecommunications Functions, April
3, 1984 (49 Fed. Reg. 13471).
C. White House Memorandum, National System for Emergency
Coordination, 19 January 1988 (the NSEC Charter)
IV. Applicability and Scope of Responsibility
a. The provisions of this procedure are applicable to all
Federal entities with non-wartime emergency telecommunications
management responsibilities.
3
b. The JTRB's basic role is to monitor potential or actual
telecommunications emergency situations that pose significant
threats to telecommunication facilities or services, and
situations that may create the need for extraordinary
telecommunication support, and to function as the
Telecommunications Functional Group when the NSEC is activated.
Extraordinary telecommunications support is defined as being
those requirements for services or responses that are beyond the
normal procedures and/or capabilities of individual commercial
carriers or government agencies. The type of situations that
might result in activation of the JTRB a telecommunications
emergency include:
(1) telecommunications damage or congestion as a
result of major disasters (e.g., hurricanes,
tornadoes, floods, earthquakes, earth slides,
blizzards, tidal waves, etc.) or critical
situations (e.g., fires, explosions, epidemics,
civil disturbances, escaping lethal gases, power
blackouts, etc.) ;
(2) major failures or disruptions of overseas
transmission systems (ocean cables, satellites,
earth stations) or the interruption or drastic
reduction in telecommunication services to foreign
countries beset by major disasters, emergencies,
or internal problems;
(3) regional or national situations where unusual
events or reports create public concern or
confusion to the extent that abnormal
telecommunications traffic patterns or congestion
develop for an extended period;
(4) cases of known, suspected, or attempted sabotage
of major telecommunication installations or
facilities, or major industry work stoppages with
the potential to significantly affect
telecommunication operations; and
(5) significant curtailments in service on government
telecommunication networks or facilities due to
technical or operational problems, traffic
situations, etc.
(6) extreme catastrophic technological, natural, or
other domestic emergencies of national
significance in response to which the President
has activated the NSEC and the National
Coordinator has determined that the
Telecommunications Functional Group should be
activated.
4
C. In the execution of its basic role, the JTRB will be
supported by the National Communications System organizational
structure utilizing the resources of the National Communications
System (NCS)/Defense Communications Agency (DCA) Operations
Center (OC), the National Coordinating Center (NCC), the Federal
Emergency Management Agency's Emergency Information Coordinating
Center (EICC), and other Federal agency operation centers as
necessary.
d. When functioning as the NSEC Telecommunications
Functional Group, the JTRB may also be supported by Regional
Functional Groups authorized under the NSEC charter. It is
envisioned that the regional functional groups for
telecommunications will be organized and function in accordance
with the procedures established in the National Plan for
Telecommunications Support in Non-Wartime Emergencies.
V.
Functions
a. The JTRB will, as a minimum, perform the following
general functions:
(1) as requested, review information submitted to the
Chairman, JTRB, and the Crisis Management Center
(CMC), evaluate response and support requirements,
and provide recommendations to appropriate
Executive Office officials;
(2) facilitate the concerted exercise of non-wartime
emergency telecommunication authorities and
responsibilities by individual Federal entities;
(3) advise and assist in the resolution of competing
demands for telecommunication services, and any
necessary service reprioritizations resulting from
specific non-wartime emergency situations; and
(4) meet at the call of the Chairman, JTRB, during
non-emergency situations to support major Federal
exercises or to consider non-wartime emergency
telecommunication policies and procedures;
(5) as the Interagency Functional Group for
Telecommunications within the NSEC, conduct risk
assessments, identify and prioritize contingencies
for which emergency plans are needed, provide
external liaison and situation assessments, and
test Federal emergency responses structures and
plans.
b. To execute these general functions, to support the
operations of the CMC, and to provide the necessary information
5
to the president, Vice-President, National Security Council, and
Office of Science and Technology Policy, the JTRB and those
Federal entities with non-wartime emergency telecommunications
management responsibilities shall also implement the following
information exchange process:
(1) General
(a) The NCS/DCAOC, the NCC, and the FEMA EICC
will be the primary focuses for reports on any of
the continuum of telecommunications emergency
events described herein. The Manager, NCS, and
the Director, FEMA, will ensure that all
information regarding potential and/or actual
emergency situations with significant
telecommunication implications is brought to the
attention of the CMC and the Chairman, JTRB, in a
coordinated manner.
(b) The FCC will ensure that the views and
concerns of private sector telecommunication
entities are conveyed to the Director, OSTP, and
the JTRB, and will articulate private sector
interests in situations where there are competing
private sector and Government requirements.
(c) This process will permit effective monitoring
of potential and actual emergency situations by
the CMC and JTRB and facilitate the undertaking of
any Federal emergency responses needed beyond
those already being carried out by responsible
agencies as part of their established emergency
response procedures.
(2) Reporting/Notification
(a) All Federal departments and agencies
experiencing severe telecommunications network or
system events or receiving information regarding
potential or actual emergency situations with
significant telecommunication implications are to
forward this information to the NCS/DCAOC.
Primary sources of this information, in addition
to the agency telecommunications management
organizations are the NCC and the FEMA EICC.
(b) The Manager, NCS, and the Director, FEMA,
will evaluate the information received from
Federal operating elements and other sources and
determine, based on the notification criteria
described below, whether the telecommunication
implications are significant enough to warrant
6
concurrent notification of the Chairman, JTRB, and
the CMC. As appropriate, the Chairman will notify
members of the Board.
(3) Notification Criteria/Thresholds
Upon receipt of information regarding potential or
actual telecommunications emergency situations,
the Manager, NCS, and the Director, FEMA, where
appropriate in consultation with each other, the
NCC, and the FEMA EICC, will evaluate situations
in terms of whether (a) they pose significant
threats to telecommunication facilities or
services; or (b) they create a need for
extraordinary telecommunication support. Examples
of situations that could be judged to pose
significant threats to telecommunication
facilities or services or create a need for
extraordinary telecommunications support are those
enumerated in paragraph IV b. of this Procedure.
(4) Information to Support Notifications
(a) Initial Situation Report. Initial reports to
the Chairman, JTRB, and to the CMC will convey the
minimum essential information to permit assessment
of the potential or actual threat or extraordinary
telecommunication requirements posed by the
situations and to facilitate any Federal response.
It is anticipated that such minimum essential
information would include:
1. type and extent of emergency, disaster, or
extraordinary situation;
2. location or area the emergency, disaster, or
extraordinary situation is expected to cover;
3. anticipated time of emergency, disaster, or
extraordinary situation;
4. local actions being taken in the
telecommunications area; and
5. possible support required.
This information is to be transmitted either by voice,
message, or electronic media. Permanent record of such
transmissions will be maintained by the NCS/DCAOC, the
NCC or the FEMA EICC, as appropriate.
7
(b) Status Reports. Following initial notifications,
the Manager, NCS, and the Director, FEMA, will provide
brief update reports, as warranted by further
developments, to the Chairman, JTRB, and, when so
requested by the Chairman, to other members of the JTRB
or the CMC.
(c) Additional Information Requirements. Requirements
for additional information will be initiated directly
by the Chairman, JTRB, or thru the CMC, to the Manager,
NCS, and/or the Director, FEMA.
VI. Membership
a. As prescribed by Section 2 (b) (3) of E.O. 12472 and the
NSEC charter, the Director, OSTP, shall chair the JTRB and serve
as the NSEC National Coordinator if designated by the President
under NSEC provisions.
b. The Director, OSTP, has selected the following Federal
entities to serve on the JTRB, and has requested that they be
represented thereon by the noted officials;
(1) Department of Defense (DoD), by the Assistant
Secretary for Command, Control, Communications and
Intelligence;
(2) Department of Commerce (DoC), by the Assistant
Secretary for Communications and Information;
(3) General Services Administration, by the
Commissioner, Information Resources Management Service;
(4) Federal Emergency Management Agency, by the
Assistant Associate Director for Information Resources
Management;
(5) Federal Communications Commission, by the Defense
Commissioner; and
(6) National Communications System, by the Manager.
8
NATIONAL COMMUNICATIONS SYSTEM
NATIONAL
OFFICE OF THE MANAGER
WASHINGTON, D.C. 20305 2010
"
IN REPLY
REFERTO:
NCS-EP-0
January 12, 1989
Dr. William R. Graham
Director
Office of Science and Technology Policy
Executive Office of the President
Washington, D. C. 20506
Dear Dr. Graham:
This letter is in response to your memorandum of
January 3, 1989, requesting our comments on the proposed
changes to the Joint Telecommunications Resources Board
Standard Operating Procedures.
The National Communications System concurs with the proposed
changes to the Joint Telecommunications Resources Board
Standard Operating Procedures.
Sincerely,
JOHN T. MYERS
Lieutenant General, USA
Manager
EXECUTIVE OFFICE OF THE PRESIDENT
OFFICE OF SCIENCE AND TECHNOLOGY POLICY
WASHINGTON. D.C. 20506
PRIORITY
DATE: January 18, 1989
TO:
Mr. Bill Belford
NCS
ADDRESS:
TELPHONE NUMBER:
746-1261
FAX NUMBER:
557-5012 or 557-1090
FROM:
John F. O'Neil
TELEPHONE NUMBER:
395-3272
FAX NUMBER:
(202) 395-3462
NUMBER OF PAGES, INCLUDING COVER SHEET: 15
SPECIAL INSTRUCTION:
TRANSMISSION REPORT
THIS DOCUMENT (REDUCED SAMPLE ABOVE)
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UNITED STATES DEPARTMENT OF COMMERCE
of SEAL AMERICA
National Telecommunications and
Information Administration
Washington, D.C. 20230
January 13, 1989
MEMORANDUM TO:
William R. Graham
Director
Office of Science and Technology Policy
FROM:
cas
Charles G. Schott III
Deputy Assistant Secretary
SUBJECT:
Proposed Changes to Joint
Telecommunications Resources Board (JTRB)
Standard Operating Procedures
This responds to your memo of January 3, 1989, requesting
comments. As you note, the significant changes involve the
specific inclusion of the Telecommunications Functional Group,
provisions for which are set forth in the charter of the
National System for Emergency Coordination (NSEC).
The proposed new paragraph IV. b. (6) could create some
misunderstanding regarding the conditions under which the JTRB
would be activated in its own right or under conditions that
call for the activation of the NSEC. This could be clarified
if subparagraph (6) was modified to read " ... a situation in
which the President has activated the NSEC and the National
Coordinator has determined that the Telecommunications
Functional Group should be activated. " Without this change the
reader could have a difficulty differentiating between "extreme
catastrophic technological, natural, or other domestic
emergencies of national significance" and those items listed in
(1) to (5) of subparagraph IV. b. The proposed change
eliminates a point of confusion but a basic inconsistency may
still be present -- conditions for activation of the JTRB in
its own right and under the NSEC scenario. This is a point for
discussion at the forthcoming JTRB meeting.
The proposed addition of subparagraph V. a. (5) suggests
certain JTRB duties that may be difficult to achieve.
Conducting risk assessments, identifying and prioritizing
contingencies, external liaison activities, etc. are currently
performed by NCS and others, and can be resource intensive.
Practically, the JTRB could evaluate and make judgments and
decisions based on information provided to the Board.
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- 2 -
The expanded role of the JTRB as suggested in the proposed
changes would be impractical because, simply expressed, the JTRB
has no assets of its own and is basically a high level decision
making group. It must depend on the resources of its members or
information provided to it for success. In summary, the JTRB
duties under the NSEC scenario don't appear practical and should
be cast in an advisory, decision making role where information is
provided by the Regional Functional Groups and others for
evaluation and decision. This could be accomplished by changing
subparagraph V.a. (5) as follows:
(5) as the Interagency Functional Group for Telecommunica-
tions within the NSEC, evaluate and make recommendations
regarding risk assessments, contingency and emergency
planning priorities, external liaison and situation
assessments, information needs and required actions.
John Mid ? WRL
?
FEDERAL COMMUNICATIONS COMMISSION
any problem r with Jul this
13
WASHINGTON, D.C. 20554
JAN 13 1989
lo the efem Diractor
Defense Director
the conset level ?
Dr. William R. Graham
form
Director
Office of Science and Technology Policy
you'r
-15
New Executive Office Building
Washington, D.C. 20506
Dear Dr. Graham:
Thank you for the opportunity to review the latest draft JTRB SOP.
I was pleased to see the new language in Section V. pertaining to
the FCC's role in representing the private sector. This language
also reflects the JTRB's role in dealing with competing private
sector and Government requirements. However, I believe it would
still be appropriate to highlight this key role in Section V.a. (3)
as we suggested in our previous comments.
Also, the FCC may receive reports on potential or actual
emergencies which should be brought to your attention. Therefore,
I believe Section V.b. (1) should be modified as we proposed.
It would also appear appropriate for the FCC to be directly
involved in the initial decision to notify you of a potential
emergency situation. This is consistent with our role to ensure
that the private sector's interests are fully reflected in any
recommendation to you. Therefore, I suggest modifying Sections
V.b. (2) (b) and V.b. (3) as shown in the enclosure.
Finally, I would appreciate one edit to Section VI. All of our
suggested changes to the current draft SOP are included in the
enclosure.
I appreciate your consideration of our suggested changes and I
look forward to discussing them at our next JTRB meeting.
Sincerely,
alam R. Mekie
Edward J. Minkel
67 Defense Director
Enclosure
Enclosure
RECOMMENDED ADDITIONS TO THE DRAFT JTRB SOP
January 10, 1989
V.a.
(3) advise and assist in the resolution of competing demands for
telecommunications services, and any necessary service
reprioritizations resulting from specific non-wartime emergency
situations, including competing government and private sector
requirements; and
V.b. (1)
(a) The NCS/DCAOC, NCC, the FCC and the FEMA EICC will be the
primary focuses for reports on any of the continuum of
telecommunication emergency events described herein. The Manager,
NCS, the Defense Director, FCC, and the Director, FEMA, will
ensure that all information regarding potential and/or actual
...
V.b. (2)
(b) The Manager, NCS, the Defense Director, FCC, and the
Director, FEMA, will evaluate the information received from
Federal operating elements and other sources and determine,
...
V.b. (3)
Upon receipt of information regarding potential or actual
telecommunications emergency situations, the Manager, NCS, the
Defense Director, FCC, and the Director, FEMA, where appropriate
in consultation with each other, the NCC, and the FEMA EICC,
...
VI.b.
(5) Federal Communications Commission, by the Defense Director;
and
EXECUTIVE OFFICE OF THE PRESIDENT
OFFICE OF SCIENCE AND TECHNOLOGY POLICY
WASHINGTON, D.C. 20506
January 17, 1989
MEMORANDUM FOR WILLIAM R. GRAHAM
THROUGH:
MICHELLE K. VAN CLEAVE
new
FROM:
JOHN F. O'NEIL ITC
SUBJECT:
JTRB Meeting (INFORMATION MEMORANDUM)
This package is to assist you in chairing the JTRB meeting to be
held at 3:00 p.m. on January 18, 1989, in Room 208, OEOB.
Attachments:
TAB A - Suggested Opening Remarks
TAB B - Suggested Closing Remarks
TAB C - Agenda
TAB D - Attendees/Seating Chart
TAB E - Briefing Slides (DRAFT)
TAB F - Minutes from Last Meeting
TAB G - JTRB SOP
TAB H - National System for Emergency
Coordination
CC: Dr. Tom Rona
Michelle K. Van Cleave
Chairman's Talking Points
for
Joint Telecommunications Resources Board Meeting
Wednesday, January 18, 1989, 3:00 p.m.
Opening Remarks:
-
Welcome to fifth meeting of the JTRB - probably the last of
this membership composition.
-
This is the first meeting in almost one year during which
the OMNCS has been working on the SOP.
-
Thank OMNCS for their hard work on the SOP.
-
First purpose of meeting is to discuss proposed changes to
SOP and to approve it.
-
Second purpose is to discuss the next JTRB exercise,
solicit your assistance and recommendations.
-
I am sure you will not hesitate to raise questions/issues
as we proceed.
-
First briefing.
Chairman's Talking Points
for
Joint Telecommunications Resources Board Meeting
Wednesday, January 18, 1989, 3:00 p.m.
Closing Remarks:
-
Next meeting will be
for a JTRB Tabletop
exercise.
-
It will come at a crucial time--a time to initiate the JTRB
of the Bush Administration.
-
Please pass other agenda items to John O'Neil.
-
We will be in touch with your points of contact regarding
exercise planning.
-
Thanks to Bill Belford, Colonel Sparks, Ben Morriss (and
LTG Myers) for the work they've done in support of the
JTRB.
-
Thank you all for attending. I appreciate all your support
during my tenure as Chairman of the JTRB.
-
Meeting adjourned.
Joint Telecommunications Resources Board Meeting
Room 208, Old Executive Office Building
Wednesday, January 18, 1989, 3:00 p.m.
AGENDA
Opening Remarks
Chairman
JTRB SOP Recommended Changes/Approval
Col Sparks
JTRB Tabletop Exercise Concept
Bill Belford
Exercise Discussion
Closing Remarks
Chairman
Joint Telecommunications Resources Board Meeting
Room 208, Old Executive Office Building
Wednesday, January 18, 1989 - 3:00 p.m.
List of Attendees
Office of Science and Technology Policy (OSTP)
Dr. William R. Graham
Dr. Thomas P. Rona
Ms. Michelle K. Van Cleave
LtCol John F. O'Neil
Department of Defense (DoD)
Dr. Thomas P. Quinn
John Robert Anderson
Department of Commerce (DoC)
Charles G. Schott
Richard Parlow
General Services Administration (GSA)
Michael Corrigan
George Flynn
Jordan (Jerry) Brilliant
Federal Emergency Management Agency (FEMA)
Bruce J. Campbell
Lawrence Berenson
Federal Communications Commission (FCC)
Edward Minkel
National Security Council (NSC)
John Grimes
National Communications System (NCS)
Ben Morriss
Col Robert Sparks
William Belford
Joint Telecommunications Resources Board Meeting
Room 208, Old Executive Office Building
Wednesday, January 18, 1989, 3:00 p.m.
Seating Chart
George Flynn
Richard Parlow
GSA
DoC
Lawrence Berenson
Michelle Van Cleave
FEMA
OSTP
John Grimes
Dr. Thomas Quinn
NSC
OSD
Bruce Campbell
Ed Minkel
FEMA
FCC
Charles Schott
Michael Corrigan
DoC
GSA
Ben Morriss
Dr. Tom Rona
NCS
OSTP
Dr. Graham
Chairman
PRE
SIDENT
IL
EXEC STATES LIVE UNITED PEOLICY OFFICE
AGENDA
PART I
Discuss proposed revisions to the Interim Standard
Operating Procedures (SOP) for the Joint
Telecommunications Resources Board (JTRB)
PART II
Introduce the next exercise planned for JTRB
participation
10.123-04
MEETING OBJECTIVES
The two objectives of today's meeting are:
-- Discuss member comments on the SOP
and reach agreement on its approval
-- Discuss ideas on ways to enhance the
-- exercise, and reach agreeement on the
development approach and schedule
PART I
INTERIM SOP FOR THE
JTRB
10.123.04
PART II
NEXT JTRB EXERCISE
10.123-04
Withdrawal/Redaction Sheet
(George Bush Library)
Document No.
Subject/Title of Document
Date
Restriction
Class.
and Type
01. Presnetation
JTRB Exercise (5 pp.)
(b)(2)
Collection:
Record Group:
Bush Presidential Records
Office:
Science and Technology Policy, Office of (OSTP)
Series:
O'Neil, John F., Files
Subseries:
Telecommunications Files
WHORM Cat.:
File Location:
Joint Telecommunications Resource Board 1989
Date Closed:
6/2/2010
OA/ID Number:
62105-005
FOIA/SYS Case #:
2005-0336-F
Appeal Case #:
Re-review Case #:
Appeal Disposition:
P-2/P-5 Review Case #:
Disposition Date:
AR Case #:
MR Case #:
AR Disposition:
MR Disposition:
AR Disposition Date:
MR Disposition Date:
RESTRICTION CODES
Presidential Records Act - [44 U.S.C. 2204(a)]
Freedom of Information Act - [5 U.S.C. 552(b)]
P-1 National Security Classified Information [(a)(1) of the PRA]
(b)(1) National security classified information [(b)(1) of the FOIA]
P-2 Relating to the appointment to Federal office [(a)(2) of the PRA]
(b)(2) Release would disclose internal personnel rules and practices of an
P-3 Release would violate a Federal statute [(a)(3) of the PRA]
agency [(b)(2) of the FOIA]
P-4 Release would disclose trade secrets or confidential commercial or
(b)(3) Release would violate a Federal statute [(b)(3) of the FOIA]
financial information [(a)(4) of the PRA]
(b)(4) Release would disclose trade secrets or confidential or financial
P-5 Release would disclose confidential advice between the President
information [(b)(4) of the FOIA]
and his advisors, or between such advisors [a)(5) of the PRA]
(b)(6) Release would constitute a clearly unwarranted invasion of
P-6 Release would constitute a clearly unwarranted invasion of
personal privacy [(b)(6) of the FOIA]
personal privacy [(a)(6) of the PRA]
(b)(7) Release would disclose information compiled for law enforcement
purposes [(b)(7) of the FOIA]
C. Closed in accordance with restrictions contained in donor's deed of
(b)(8) Release would disclose information concerning the regulation of
gift.
financial institutions [(b)(8) of the FOIA]
(b)(9) Release would disclose geological or geophysical information
PRM. Removed as a personal record misfile.
INTERIM STANDARD OPERATING PROCEDURES
FOR
JOINT TELECOMMUNICATIONS RESOURCES BOARD
I.
Background
a. By Executive Order No. 12046, Relating to the Transfer
of Telecommunications Functions, March 27, 1978, the Director of
the Office of Science and Technology Policy (OSTP) was assigned
the responsibility for preparing to direct the exercise of the
President's war power functions contained in Section 606 of the
Communications Act of 1934, as amended. Existing Federal
emergency plans (e.g., Federal Emergency Plan D, Annex C-XI)
have also recognized OSTP's responsibility and designated the
Director, OSTP, as the Nation's telecommunications resource
manager under conditions of national emergency (i.e., war)
wartime emergency. Executive Order 12472, "Assignment of
National Security and Emergency Preparedness Telecommunications
Functions," April 3, 1984, reaffirmed that the Director, OSTP,
is responsible for directing the exercise of the Section 606
Presidential war powers. Under conditions of national emergency
in which the President's war emergency powers (formerly Section
606 and now Section 706) are have been invoked, there is thus a
visible single authority for telecommunications resource
management that which is clearly assigned the responsibility for
serving as the authoritative channel of emergency
telecommunications information and advice to the President.
b. There are, however, a range of non-wartime situations
that do not justify the exercise of the President's war powers
under Section 706 of the Communications Act of 1934 or the
implementation of Federal Emergency Plan D, but yet require
response by the Federal Government and, therefore, Executive
Office of the President attention and direction. Such
situations include:
(1) Presidentially-declared emergencies and major
disasters;
(2) Federal Emergency Management Agency (FEMA) -declared
extraordinary situations; and
(3) Critical situations which have the potential for
developing into emergencies/major disasters,
extraordinary situations, or national emergencies.
While FEMA has been implementing an Integrated Emergency
Management System concept to provide a consistent management
structure across the continuum of emergency situations, until
recently there has been no single clearly identified or visible
authority that the President could turn to for emergency
1
telecommunications information and advice to support
decisionmaking across this continuum.
C. Executive Order No. 12472 recognized this gap and
Section 2 (b) thereof assigned specific non-wartime emergency
telecommunication functions to the National Security Council and
the Director of the Office of Science and Technology Policy as
follows:
" (b) Non-Wartime Emergency Functions.
(1) The National Security Council shall:
a. Advise and assist the President in coordinating the
development of policy, plans, programs and standards within
the Federal Government, and by State and local governments,
private industry and volunteer organizations upon request,
to the extent practicable and otherwise consistent with law,
during those crises or emergencies in which the exercise of
the President's war power functions is not required or
permitted by law; and
b. Provide policy direction for the exercise of the
President's non-wartime emergency telecommunication
functions, should the President so instruct.
(2) The Director of the Office of Science and Technology
Policy shall provide information, advice, guidance and
assistance, as appropriate, to the President and to those
Federal departments and agencies with responsibilities for
the provision, management, or allocation of
telecommunication resources, during those crises or
emergencies in which the exercise of the President's war
power functions is not required or permitted by law;
(3) The Director of the Office of Science and Technology
Policy shall establish a Joint Telecommunications Resources
Board (JTRB) to assist him in the exercise of the functions
specified in this subsection. The Director of the Office of
Science and Technology Policy shall serve as chairman of the
JTRB; select those Federal departments, agencies, or
entities which shall be members of the JTRB; and specify the
functions it shall perform."
d. More recently, on January 19, 1988, a White House
Memorandum announced Presidential approval of a National System
for Emergency Coordination (NSEC). Its purpose is to provide
timely, effective, and coordinated assistance to State and local
governments in extreme catastrophic technological, natural, or
other domestic emergencies of national significance. When the
NSEC is activated, the Federal Government's response to major
domestic crises will be consistent with current emergency plans,
2
and will use existing domestic and national security crisis
information and management systems.
e. The NSEC calls for functional groups to be established
at the national level to support and coordinate relief
operations, assess problems, propose solutions and facilitate
resolution of specific emergency functional needs. A
Telecommunications Functional Group is one of the interagency
functional groups which could be activated, depending on the
nature of the crisis. The NSEC assigns responsibility for the
Telecommunications Functional Group to the Office of Science and
Technology Policy/National Communications System.
II. Purpose
a. The Joint Telecommunications Resources Board is hereby
established to assist the Director, OSTP, in the exercise of
those non-wartime emergency telecommunication functions assigned
by E.O. 12472 and to support the OSTP/NCS as the Telecommunica-
tions Functional Group within the NSEC as prescribed by White
House Memorandum dated 19 January 1988. The Board will serve as
the deliberative and recommending body for the Executive Office
of the President, and ultimately the President, thereby
providing a cohesive process for ensuring the provision of
necessary telecommunications information and advice to them, and
facilitating concerted timely decisionmaking and execution of
assigned emergency responsibilities by individual Federal
entities under the overall guidance of the President and the
Director, OSTP.
b. As required, the JTRB may also be convened to act in
support of major Federal exercises or to consider non-wartime
emergency telecommunication policies and procedures.
III. Authorities-References
a. Communications Act of 1934 (47 U.S.C. 151 et seq.), as
amended.
b. Executive Order 12472, Assignment of National Security
and Emergency Preparedness Telecommunications Functions, April
3, 1984 (49 Fed. Reg. 13471).
C. White House Memorandum, National System for Emergency
Coordination, 19 January 1988 (the NSEC Charter).
IV. Applicability and Scope of Responsibility
a. The provisions of this procedure are applicable to all
Federal entities with non-wartime emergency telecommunications
management responsibilities.
3
b. The JTRB's basic role is to monitor potential or actual
telecommunications emergency situations that pose significant
threats to telecommunication facilities or services, and
situations that may create the need for extraordinary
telecommunication support, and to function as the
Telecommunications Functional Group when the NSEC is activated.
Extraordinary telecommunications support is defined as being
those requirements for services or responses that are beyond the
normal procedures and/or capabilities of individual commercial
carriers or government agencies. The type of situations that
might result in activation of the JTRB a telecommunications
emergency include:
(1) telecommunications damage or congestion as a
result of major disasters (e.g., hurricanes,
tornadoes, floods, earthquakes, earth slides,
blizzards, tidal waves, etc.) or critical
situations (e.g., fires, explosions, epidemics,
civil disturbances, escaping lethal gases, power
blackouts, etc.) ;
(2) major failures or disruptions of overseas
transmission systems (ocean cables, satellites,
earth stations) or the interruption or drastic
reduction in telecommunication services to foreign
countries beset by major disasters, emergencies,
or internal problems;
(3) regional or national situations where unusual
events or reports create public concern or
confusion to the extent that abnormal
telecommunications traffic patterns or congestion
develop for an extended period;
(4) cases of known, suspected, or attempted sabotage
of major telecommunication installations or
facilities, or major industry work stoppages with
the potential to significantly affect
telecommunication operations; and
(5) significant curtailments in service on government
telecommunication networks or facilities due to
technical or operational problems, traffic
situations, etc.
(6) extreme catastrophic technological, natural, or
other domestic emergencies of national
significance in response to which the President
has activated the NSEC and the National
Coordinator has determined that the
Telecommunications Functional Group should be
activated.
4
C. In the execution of its basic role, the JTRB will be
supported by the National Communications System organizational
structure utilizing the resources of the National Communications
System (NCS)/Defense Communications Agency (DCA) Operations
Center (OC), the National Coordinating Center (NCC), the Federal
Emergency Management Agency's Emergency Information Coordinating
Center (EICC), and other Federal agency operation centers as
necessary.
d. When functioning as the NSEC Telecommunications
Functional Group, the JTRB may also be supported by Regional
Functional Groups authorized under the NSEC charter. It is
envisioned that the regional functional groups for
telecommunications will be organized and function in accordance
with the procedures established in the National Plan for
Telecommunications Support in Non-Wartime Emergencies.
V.
Functions
a. The JTRB will, as a minimum, perform the following
general functions:
(1) as requested, review information submitted to the
Chairman, JTRB, and the Crisis Management Center
(CMC), evaluate response and support requirements,
and provide recommendations to appropriate
Executive Office officials;
(2) facilitate the concerted exercise of non-wartime
emergency telecommunication authorities and
responsibilities by individual Federal entities;
(3) advise and assist in the resolution of competing
demands for telecommunication services, and any
necessary service reprioritizations resulting from
specific non-wartime emergency situations; and
(4) meet at the call of the Chairman, JTRB, during
non-emergency situations to support major Federal
exercises or to consider non-wartime emergency
telecommunication policies and procedures;
(5) as the Interagency Functional Group for
Telecommunications within the NSEC, conduct risk
assessments, identify and prioritize contingencies
for which emergency plans are needed, provide
external liaison and situation assessments, and
test Federal emergency responses structures and
plans.
b. To execute these general functions, to support the
operations of the CMC, and to provide the necessary information
5
to the president, Vice-President, National Security Council, and
Office of Science and Technology Policy, the JTRB and those
Federal entities with non-wartime emergency telecommunications
management responsibilities shall also implement the following
information exchange process:
(1) General
(a) The NCS/DCAOC, the NCC, and the FEMA EICC
will be the primary focuses for reports on any of
the continuum of telecommunications emergency
events described herein. The Manager, NCS, and
the Director, FEMA, will ensure that all
information regarding potential and/or actual
emergency situations with significant
telecommunication implications is brought to the
attention of the CMC and the Chairman, JTRB, in a
coordinated manner.
(b) The FCC will ensure that the views and
concerns of private sector telecommunication
entities are conveyed to the Director, OSTP, and
the JTRB, and will articulate private sector
interests in situations where there are competing
private sector and Government requirements.
(c) This process will permit effective monitoring
of potential and actual emergency situations by
the CMC and JTRB and facilitate the undertaking of
any Federal emergency responses needed beyond
those already being carried out by responsible
agencies as part of their established emergency
response procedures.
(2) Reporting/Notification
(a) All Federal departments and agencies
experiencing severe telecommunications network or
system events or receiving information regarding
potential or actual emergency situations with
significant telecommunication implications are to
forward this information to the NCS/DCAOC.
Primary sources of this information, in addition
to the agency telecommunications management
organizations are the NCC and the FEMA EICC.
(b) The Manager, NCS, and the Director, FEMA,
will evaluate the information received from
Federal operating elements and other sources and
determine, based on the notification criteria
described below, whether the telecommunication
implications are significant enough to warrant
6
concurrent notification of the Chairman, JTRB, and
the CMC. As appropriate, the Chairman will notify
members of the Board.
(3) Notification Criteria/Thresholds
Upon receipt of information regarding potential or
actual telecommunications emergency situations,
the Manager, NCS, and the Director, FEMA, where
appropriate in consultation with each other, the
NCC, and the FEMA EICC, will evaluate situations
in terms of whether (a) they pose significant
threats to telecommunication facilities or
services; or (b) they create a need for
extraordinary telecommunication support. Examples
of situations that could be judged to pose
significant threats to telecommunication
facilities or services or create a need for
extraordinary telecommunications support are those
enumerated in paragraph IV b. of this Procedure.
(4) Information to Support Notifications
(a) Initial Situation Report. Initial reports to
the Chairman, JTRB, and to the CMC will convey the
minimum essential information to permit assessment
of the potential or actual threat or extraordinary
telecommunication requirements posed by the
situations and to facilitate any Federal response.
It is anticipated that such minimum essential
information would include:
1. type and extent of emergency, disaster, or
extraordinary situation;
2. location or area the emergency, disaster, or
extraordinary situation is expected to cover;
3. anticipated time of emergency, disaster, or
extraordinary situation;
4. local actions being taken in the
telecommunications area; and
5. possible support required.
This information is to be transmitted either by voice,
message, or electronic media. Permanent record of such
transmissions will be maintained by the NCS/DCAOC, the
NCC or the FEMA EICC, as appropriate.
7
(b) Status Reports. Following initial notifications,
the Manager, NCS, and the Director, FEMA, will provide
brief update reports, as warranted by further
developments, to the Chairman, JTRB, and, when so
requested by the Chairman, to other members of the JTRB
or the CMC.
(c) Additional Information Requirements. Requirements
for additional information will be initiated directly
by the Chairman, JTRB, or thru the CMC, to the Manager,
NCS, and/or the Director, FEMA.
VI. Membership
a. As prescribed by Section 2 (b) (3) of E.O. 12472 and the
NSEC charter, the Director, OSTP, shall chair the JTRB and serve
as the NSEC National Coordinator if designated by the President
under NSEC provisions.
b. The Director, OSTP, has selected the following Federal
entities to serve on the JTRB, and has requested that they be
represented thereon by the noted officials;
(1) Department of Defense (DoD), by the Assistant
Secretary for Command, Control, Communications and
Intelligence;
(2) Department of Commerce (DoC), by the Assistant
Secretary for Communications and Information;
(3) General Services Administration, by the
Commissioner, Information Resources Management Service;
(4) Federal Emergency Management Agency, by the
Assistant Associate Director for Information Resources
Management;
(5) Federal Communications Commission, by the Defense
Commissioner; and
(6) National Communications System, by the Manager.
8
Withdrawal/Redaction Sheet
(George Bush Library)
Document No.
Subject/Title of Document
Date
Restriction
Class.
and Type
02. Minutes
JTRB Meeting minutes (3 pp.)
2/11/88
(b)(2)
Collection:
Record Group:
Bush Presidential Records
Office:
Science and Technology Policy, Office of (OSTP)
Series:
O'Neil, John F., Files
Subseries:
Telecommunications Files
WHORM Cat.:
File Location:
Joint Telecommunications Resource Board 1989
Date Closed:
6/2/2010
OA/ID Number:
62105-005
FOIA/SYS Case #:
2005-0336-F
Appeal Case #:
Re-review Case #:
Appeal Disposition:
P-2/P-5 Review Case #:
Disposition Date:
AR Case #:
MR Case #:
AR Disposition:
MR Disposition:
AR Disposition Date:
MR Disposition Date:
RESTRICTION CODES
Presidential Records Act - [44 U.S.C. 2204(a)]
Freedom of Information Act - [5 U.S.C. 552(b)]
P-1 National Security Classified Information [(a)(1) of the PRA]
(b)(1) National security classified information [(b)(1) of the FOIA]
P-2 Relating to the appointment to Federal office [(a)(2) of the PRA]
(b)(2) Release would disclose internal personnel rules and practices of an
P-3 Release would violate a Federal statute [(a)(3) of the PRA]
agency [(b)(2) of the FOIA]
P-4 Release would disclose trade secrets or confidential commercial or
(b)(3) Release would violate a Federal statute [(b)(3) of the FOIA]
financial information [(a)(4) of the PRA]
(b)(4) Release would disclose trade secrets or confidential or financial
P-5 Release would disclose confidential advice between the President
information [(b)(4) of the FOIA]
and his advisors, or between such advisors [a)(5) of the PRA]
(b)(6) Release would constitute a clearly unwarranted invasion of
P-6 Release would constitute a clearly unwarranted invasion of
personal privacy [(b)(6) of the FOIA]
personal privacy [(a)(6) of the PRA]
(b)(7) Release would disclose information compiled for law enforcement
purposes [(b)(7) of the FOIA]
C. Closed in accordance with restrictions contained in donor's deed of
(b)(8) Release would disclose information concerning the regulation of
gift.
financial institutions [(b)(8) of the FOIA]
(b)(9) Release would disclose geological or geophysical information
PRM. Removed as a personal record misfile.
Joint Telecommunications Resources Board Meeting
Room 248, Old Executive Office Building
Thursday, February 11, 1988, 10:00 - 11:00 a.m.
AGENDA
Opening Remarks
Chairman
JTRB Exercise Review and Recommendations
Mr. Belford
(20 min.)
JTRB and the National System for Emergency
COL Wood
Coordination (15 min.)
JTRB Response and Coordination Procedures
Mr. Belford
(10 min.)
Open Discussion (10 min.)
Closing Remarks
Chairman
Joint Telecommunications Resources Board Meeting
Room 248, Old Executive Office Building
Thursday, February 11, 1988, 10:00 - 11:00 a.m.
Attendees
Office of Science and Technology Policy
Dr. William R. Graham, Chairman
Dr. Thomas P. Rona
Ms. Michelle K. Van Cleave
COL Jack B. Wood
Department of Defense
Thomas P. Quinn, Acting Asst. Secy. of Defense (c³I)
Ms. Diane Fountaine, Ofc of the Asst. Secy. of Defense (c³I)
Department of Commerce
Charles Schott, Deputy Asst. Secy for Comm. and Info.
Richard Parlow, Asst. Deputy Secy. for Comm. and Info.
Federal Communications Commission
Edward J. Minkel, Managing Director
National Security Council
John G. Grimes, Dir., National Security Telecommunications
General Services Administration
Frank C. Carr, Comm. Info. Resources Mgt. Services
National Communications System
LTG John T. Myers, Director
Ben Morriss, Deputy Manager
COL Lawrence Gordon, Assistant Deputy Manager
Col Robert Sparks, Assistant Manager and Manager, NCC
William Belford, Deputy Manager, NCC
Federal Emergency Management Agency
Bruce Campbell, Asst. Assoc. Dir. for Info Resources Mgt.
Lawrence K. Berenson, Dep. Asst. Assoc. Dir. Info Resources
INTERIM STANDARD OPERATING PROCEDURES
FOR
JOINT TELECOMMUNICATIONS RESOURCES BOARD
I. Background
a. By Executive Order No. 12046, Relating to the Transfer
of Telecommunications Functions, March 27, 1978, the Director of
the Office of Science and Technology Policy (OSTP) was assigned
the responsibility for preparing to direct the exercise of the
President's war power functions contained in Section 606 of the
Communications Act of 1934, as amended. Existing Federal
emergency plans (e.g., Federal Emergency Plan D, Annex C-XI)
have also recognized OSTP's responsibility and designated the
Director, OSTP, as the Nation's telecommunications resource
manager under conditions of national emergency (i.e., war)
wartime emergency. Executive Order 12472, "Assignment of
National Security and Emergency Preparedness Telecommunications
Functions," April 3, 1984, reaffirmed that the Director, OSTP,
is responsible for directing the exercise of the Section 606
Presidential war powers. Under conditions of national emergency
in which the President's war emergency powers (formerly Section
606 and now Section 706) are have been invoked, there is thus a
visible single authority for telecommunications resource
management that which is clearly assigned the responsibility for
serving as the authoritative channel of emergency
telecommunications information and advice to the President.
b. There are, however, a range of non-wartime situations
that do not justify the exercise of the President's war powers
under Section 706 of the Communications Act of 1934 or the
implementation of Federal Emergency Plan D, but yet require
response by the Federal Government and, therefore, Executive
Office of the President attention and direction. Such
situations include:
(1) Presidentially-declared emergencies and major
disasters;
(2) Federal Emergency Management Agency (FEMA) -declared
extraordinary situations; and
(3) Critical situations which have the potential for
developing into emergencies/major disasters,
extraordinary situations, or national emergencies.
While FEMA has been implementing an Integrated Emergency
Management System concept to provide a consistent management
structure across the continuum of emergency situations, until
recently there has been no single clearly identified or visible
authority that the President could turn to for emergency
1
telecommunications information and advice to support
decisionmaking across this continuum.
C. Executive Order No. 12472 recognized this gap and
Section 2 (b) thereof assigned specific non-wartime emergency
telecommunication functions to the National Security Council and
the Director of the Office of Science and Technology Policy as
follows:
"(b) Non-Wartime Emergency Functions.
(1) The National Security Council shall:
a. Advise and assist the President in coordinating the
development of policy, plans, programs and standards within
the Federal Government, and by State and local governments,
private industry and volunteer organizations upon request,
to the extent practicable and otherwise consistent with law,
during those crises or emergencies in which the exercise of
the President's war power functions is not required or
permitted by law; and
b. Provide policy direction for the exercise of the
President's non-wartime emergency telecommunication
functions, should the President so instruct.
(2) The Director of the Office of Science and Technology
Policy shall provide information, advice, guidance and
assistance, as appropriate, to the President and to those
Federal departments and agencies with responsibilities for
the provision, management, or allocation of
telecommunication resources, during those crises or
emergencies in which the exercise of the President's war
power functions is not required or permitted by law;
(3) The Director of the Office of Science and Technology
Policy shall establish a Joint Telecommunications Resources
Board (JTRB) to assist him in the exercise of the functions
specified in this subsection. The Director of the Office of
Science and Technology Policy shall serve as chairman of the
JTRB; select those Federal departments, agencies, or
entities which shall be members of the JTRB; and specify the
functions it shall perform."
d. More recently, on January 19, 1988, a White House
Memorandum announced Presidential approval of a National System
for Emergency Coordination (NSEC). Its purpose is to provide
timely, effective, and coordinated assistance to State and local
governments in extreme catastrophic technological, natural, or
other domestic emergencies of national significance. When the
NSEC is activated, the Federal Government's response to major
domestic crises will be consistent with current emergency plans,
2
and will use existing domestic and national security crisis
information and management systems.
e. The NSEC calls for functional groups to be established
at the national level to support and coordinate relief
operations, assess problems, propose solutions and facilitate
resolution of specific emergency functional needs. A
Telecommunications Functional Group is one of the interagency
functional groups which could be activated, depending on the
nature of the crisis. The NSEC assigns responsibility for the
Telecommunications Functional Group to the Office of Science and
Technology Policy/National Communications System.
II. Purpose
a. The Joint Telecommunications Resources Board is hereby
established to assist the Director, OSTP, in the exercise of
those non-wartime emergency telecommunication functions assigned
by E.O. 12472 and to support the OSTP/NCS as the Telecommunica:
tions Functional Group within the NSEC as prescribed by White
House Memorandum dated 19 January 1988. The Board will serve as
the deliberative and recommending body for the Executive Office
of the President, and ultimately the President, thereby
providing a cohesive process for ensuring the provision of
necessary telecommunications information and advice to them, and
facilitating concerted timely decisionmaking and execution of
assigned emergency responsibilities by individual Federal
entities under the overall guidance of the President and the
Director, OSTP.
b. As required, the JTRB may also be convened to act in
support of major Federal exercises or to consider non-wartime
emergency telecommunication policies and procedures.
III. Authorities References
a. Communications Act of 1934 (47 U.S.C. 151 et seq.), as
amended.
b. Executive Order 12472, Assignment of National Security
and Emergency Preparedness Telecommunications Functions, April
3, 1984 (49 Fed. Reg. 13471).
C. White House Memorandum, National System for Emergency
Coordination, 19 January 1988 (the NSEC Charter).
IV. Applicability and Scope of Responsibility
a. The provisions of this procedure are applicable to all
Federal entities with non-wartime emergency telecommunications
management responsibilities.
3
b. The JTRB's basic role is to monitor potential or actual
telecommunications emergency situations that pose significant
threats to telecommunication facilities or services, and
situations that may create the need for extraordinary
telecommunication support, and to function as the
Telecommunications Functional Group when the NSEC is activated.
Extraordinary telecommunications support is defined as being
those requirements for services or responses that are beyond the
normal procedures and/or capabilities of individual commercial
carriers or government agencies. The type of situations that
might result in activation of the JTRB a telecommunications
emergency include:
(1) telecommunications damage or congestion as a
result of major disasters (e.g., hurricanes,
tornadoes, floods, earthquakes, earth slides,
blizzards, tidal waves, etc.) or critical
situations (e.g., fires, explosions, epidemics,
civil disturbances, escaping lethal gases, power
blackouts, etc.) ;
(2) major failures or disruptions of overseas
transmission systems (ocean cables, satellites,
earth stations) or the interruption or drastic
reduction in telecommunication services to foreign
countries beset by major disasters, emergencies,
or internal problems;
(3) regional or national situations where unusual
events or reports create public concern or
confusion to the extent that abnormal
telecommunications traffic patterns or congestion
develop for an extended period;
(4) cases of known, suspected, or attempted sabotage
of major telecommunication installations or
facilities, or major industry work stoppages with
the potential to significantly affect
telecommunication operations; and
(5) significant curtailments in service on government
telecommunication networks or facilities due to
technical or operational problems, traffic
situations, etc.
(6) extreme catastrophic technological, natural, or
other domestic emergencies of national
significance in response to which the President
has activated the NSEC and the National
Coordinator has determined that the
Telecommunications Functional Group should be
activated.
4
C. In the execution of its basic role, the JTRB will be
supported by the National Communications System organizational
structure utilizing the resources of the National Communications
System (NCS)/Defense Communications Agency (DCA) Operations
Center (OC), the National Coordinating Center (NCC), the Federal
Emergency Management Agency's Emergency Information Coordinating
Center (EICC), and other Federal agency operation centers as
necessary.
d. When functioning as the NSEC Telecommunications
Functional Group, the JTRB may also be supported by Regional
Functional Groups authorized under the NSEC charter. It is
envisioned that the regional functional groups for
telecommunications will be organized and function in accordance
with the procedures established in the National Plan for
Telecommunications Support in Non-Wartime Emergencies.
V. Functions
a. The JTRB will, as a minimum, perform the following
general functions:
(1) as requested, review information submitted to the
Chairman, JTRB, and the Crisis Management Center
(CMC), evaluate response and support requirements,
and provide recommendations to appropriate
Executive Office officials;
(2) facilitate the concerted exercise of non-wartime
emergency telecommunication authorities and
responsibilities by individual Federal entities;
(3) advise and assist in the resolution of competing
demands for telecommunication services, and any
necessary service reprioritizations resulting from
specific non-wartime emergency situations; and
(4) meet at the call of the Chairman, JTRB, during
non-emergency situations to support major Federal
exercises or to consider non-wartime emergency
telecommunication policies and procedures;
(5) as the Interagency Functional Group for
Telecommunications within the NSEC, conduct risk
assessments, identify and prioritize contingencies
for which emergency plans are needed, provide
external liaison and situation assessments, and
test Federal emergency responses structures and
plans.
b. To execute these general functions, to support the
operations of the CMC, and to provide the necessary information
5
to the president, Vice-President, National Security Council, and
Office of Science and Technology Policy, the JTRB and those
Federal entities with non-wartime emergency telecommunications
management responsibilities shall also implement the following
information exchange process:
(1) General
(a) The NCS/DCAOC, the NCC, and the FEMA EICC
will be the primary focuses for reports on any of
the continuum of telecommunications emergency
events described herein. The Manager, NCS, and
the Director, FEMA, will ensure that all
information regarding potential and/or actual
emergency situations with significant
telecommunication implications is brought to the
attention of the CMC and the Chairman, JTRB, in a
coordinated manner.
(b) The FCC will ensure that the views and
concerns of private sector telecommunication
entities are conveyed to the Director, OSTP, and
the JTRB, and will articulate private sector
interests in situations where there are competing
private sector and Government requirements.
(c) This process will permit effective monitoring
of potential and actual emergency situations by
the CMC and JTRB and facilitate the undertaking of
any Federal emergency responses needed beyond
those already being carried out by responsible
agencies as part of their established emergency
response procedures.
(2) Reporting/Notification
(a) All Federal departments and agencies
experiencing severe telecommunications network or
system events or receiving information regarding
potential or actual emergency situations with
significant telecommunication implications are to
forward this information to the NCS/DCAOC.
Primary sources of this information, in addition
to the agency telecommunications management
organizations are the NCC and the FEMA EICC.
(b) The Manager, NCS, and the Director, FEMA,
will evaluate the information received from
Federal operating elements and other sources and
determine, based on the notification criteria
described below, whether the telecommunication
implications are significant enough to warrant
6
concurrent notification of the Chairman, JTRB, and
the CMC. As appropriate, the Chairman will notify
members of the Board.
(3) Notification Criteria/Thresholds
Upon receipt of information regarding potential or
actual telecommunications emergency situations,
the Manager, NCS, and the Director, FEMA, where
appropriate in consultation with each other, the
NCC, and the FEMA EICC, will evaluate situations
in terms of whether (a) they pose significant
threats to telecommunication facilities or
services; or (b) they create a need for
extraordinary telecommunication support. Examples
of situations that could be judged to pose
significant threats to telecommunication
facilities or services or create a need for
extraordinary telecommunications support are those
enumerated in paragraph IV b. of this Procedure.
(4) Information to Support Notifications
(a) Initial Situation Report. Initial reports to
the Chairman, JTRB, and to the CMC will convey the
minimum essential information to permit assessment
of the potential or actual threat or extraordinary
telecommunication requirements posed by the
situations and to facilitate any Federal response.
It is anticipated that such minimum essential
information would include:
1. type and extent of emergency, disaster, or
extraordinary situation;
2. location or area the emergency, disaster, or
extraordinary situation is expected to cover;
3. anticipated time of emergency, disaster, or
extraordinary situation;
4. local actions being taken in the
telecommunications area; and
5. possible support required.
This information is to be transmitted either by voice,
message, or electronic media. Permanent record of such
transmissions will be maintained by the NCS/DCAOC, the
NCC or the FEMA EICC, as appropriate.
7
(b) Status Reports. Following initial notifications,
the Manager, NCS, and the Director, FEMA, will provide
brief update reports, as warranted by further
developments, to the Chairman, JTRB, and, when so
requested by the Chairman, to other members of the JTRB
or the CMC.
(c) Additional Information Requirements. Requirements
for additional information will be initiated directly
by the Chairman, JTRB, or thru the CMC, to the Manager,
NCS, and/or the Director, FEMA.
VI. Membership
a. As prescribed by Section 2 (b) (3) of E.O. 12472 and the
NSEC charter, the Director, OSTP, shall chair the JTRB and serve
as the NSEC National Coordinator if designated by the President
under NSEC provisions.
b. The Director, OSTP, has selected the following Federal
entities to serve on the JTRB, and has requested that they be
represented thereon by the noted officials;
(1) Department of Defense (DoD), by the Assistant
Secretary for Command, Control, Communications and
Intelligence;
(2) Department of Commerce (DoC), by the Assistant
Secretary for Communications and Information;
(3) General Services Administration, by the
Commissioner, Information Resources Management Service;
(4) Federal Emergency Management Agency, by the
Assistant Associate Director for Information Resources
Management;
(5) Federal Communications Commission, by the Defense
Commissioner; and
(6) National Communications System, by the Manager.
8
DEC 15'88 11:23
NAT COMM SYS-NCC
P. 2/6
THe WHITE HOUSE
MASHINGTON
19 January 1988
MEMORANDUM FOR THE DOMESTIC POLICY COUNCIL
SUBJECT:
National System for Emergency Coordination
Pursuant to Domestic Policy Council meetings on this subject, the
President has approved a National System for Emergency
Coordination. The system's purpose, principles, activation and
operational responsibilities are outlined in the attachment to
this memorandum. Department and agency heads are encouraged to
ensure that organizations and staff members are prepared to carry
out their respective operational responsibilities.
Eurnmeese I
Edwin Meese III
Chairman Pro Tempore
NATIONAL SYSTEM FOR EMERGENCY COORDINATION
Purpose: The National System for Emergency Coordination is a
mechanism for ensuring that the Federal Government provides
timely, effective, and coordinated assistance to States and local
governments in extreme catastrophic technological, natural or
other domestic disasters of national significance. Responsibili-
ties currently assigned to Federal departments and agencies by
statute or other authority, and existing emergency management
systems and capabilities are an integral part of this response
system and will be used when possible.
Principles:
(a) The primary responsibility for public health and safety
in the event of a domestic emergency resides with the States.
For certain extreme emergencies (i.e., those requiring
coordinated action by a number of agencies or immediate relief to
a widespread area) Federal responses are mandated by statute, or
may otherwise be appropriate.
(b) The Federal Government may provide support in life
saving and life protecting operations when requested by State or
local governments, or when otherwise appropriate. Assistance may
be provided directly to a local government in cooperation with
the State government.
(c) Federal assistance will ordinarily be provided by
Federal regional offices and field elements, such as disaster
field offices, located nearest to the crisis site.
(d) The Federal Government's response to major domestic
crises will be consistent with current emergency plans, and
existing domestic and national security crisis information and
management systems will be used.
System Activation: When an extreme emergency occurs, the
Executive Office of the President (EOP) official responsible for
Cabinet affairs will consult with the National Security Council
and appropriate Executive Branch departments and agencies to
develop specific action plans for consideration by the President,
the Cabinet and other officials as necessary. Only the President
may activate the system. If he does, the Cabinet Affairs Office
will be responsible for apprising the President of developments
and decisions that may be needed.
Operational Responsibilities:
(a) Federal departments and agencies shall respond to
potential crises in their respective areas of cognizance.
(b) Federal interagency functional groups.
(1) Federal interagency functional groups will be
established to support and coordinate relief operations in
extreme emergencies, consistent with those currently called for
in existing emergency plans such as the Plan for Federal Response
to a Catastrophic Earthquake. These groups will assess problems,
propose solutions, and facilitate resolution of specific
emergency functional needs.
(2) Lead agencies have been designated for each
functional group on the basis of recognized leadership roles,
resources, inherent authorities, and/or relevant expertise.
(3) To the extent possible under existing authorities,
interagency functional groups will also, in their respective
areas of cognizance: conduct risk assessments; identify and
prioritize contingencies for which emergency plans are needed;
provide external liaison and situation assessments; and test
Federal emergency response structures and plans.
(4) Interagency functional groups will be established to
facilitate communications, economic affairs, energy, human
services, legal and law enforcement, transportation and other
functions needed to mitigate the crisis. Leadership and
membership are to be based on statutes, Executive Orders,
responsibilities. interagency agreements, and logical extensions of normal
(c) The Federal Emergency Management Agency (FEMA) will be
prepared to consult with and assist Federal departments and
agencies in planning for and responding to all types of
emergencies, as listed below.
(d) National Coordinator.
(1) The President may designate a National Coordinator
during extreme emergencies.
as his representative to coordinate Federal support operations
(2) The National Coordinator would ordinarily be a
senior official of a department or agency having assigned
responsibilities for the following specified types of
emergencies:
Natural disasters
FEMA
Health or medical
DHHS
Terrorism
DOJ
(less airborne hijacking)
Energy
DOE
Nuclear weapon, reactor,
facility accident
DOE or DOD ("owner")
Accident at licensed nuclear
power plant
NRC
Environmental
EPA
(less some water related incidents but
including chemical plant accidents)
Transportation
DOT
(including airborne hijacking and
some water related environmental
incidents)
Economic disruption
TREAS
Telecommunications
OSTP/NCS
(3) Based on the nature of the crisis, the National
Coordinator would determine which interagency functional groups
should be activated.
(e) Federal Coordinating Officer.
(1) One or more Federal Coordinating Officers (FCO) may
be appointed as the President's on-scene representative (s) when
necessary. The FCO would ordinarily be a senior field official
of the same Federal department or agency as the National
Coordinator, and would be responsible for coordinating the
Federal response at the emergency site (s).
(2) FCOs would report to the National Coordinator.
(3) Based on the nature of the crisis, the FCO (s) would
determine appropriate regional functional groups to be activated.
(f) State Coordination.
(1) If the President activates the system, the Director
of the Federal Emergency Management Agency will notify the
Governors of affected States and territories about the Federal
Government's plan of action.
(2) The National Coordinator or an FCO may ask the
Governor of a State requesting Federal assistance to appoint a
State Coordinating Officer to coordinate State and local
government response efforts with those of the Federal Government.
(3) States would be expected to interact with FCOs to
indicate their need for Federal assistance, and to coordinate the
use of Federal assistance.