	DOD Continues to Take Action to Strengthen Its DSCA Strategy, Plans, and Guidance

Since 2010, DOD has taken action to address many of
DOD updated its strategy and doctrine for civil support. Based  on our recommendation that DOD should update its strategy, in  February 2013 DOD issued an updated Strategy for Homeland  Defense and Defense Support of Civil Authorities. In  September 2013, we found that DOD did not have a clear  command-and-control structure for federal military services during  complex catastrophes. We found that DOD had not identified the  roles, responsibilities, and relationships among command elements  that may be involved in responding to such incidents across multiple  states. DOD established the dual-status  commander structure—active-duty military or National Guard officers  who command state and federal responses to civil-support incidents  and events—and has used this structure for certain events. In October 2012, we reported that DOD had not developed guidance  for the use of dual-status commanders for incidents affecting multiple  states and territories. For example, DOD had not developed specific  criteria and conditions for when and how state governors and the  Secretary of Defense would mutually appoint a commander. DOD Has Taken Action to Strengthen Interagency Coordination for Support of Civil Authorities

DOD has and continues to take action to address our prior  recommendations to strengthen the department’s interagency  coordination for support of civil authorities. We found  that DOD’s series of civil-support policies and guidance, such as a  1997 DOD directive on military assistance to civil authorities, were  outdated and did not reflect changes that occurred subsequent to their  issuance. Similarly, we found that roles and  responsibilities for support to law enforcement—including Joint Task  Force-North, which provides defense support of civilian law  enforcement agencies along U.S. borders—were unclear as were the  roles and responsibilities between the Assistant Secretary of Defense  for Health Affairs and the Assistant Secretary of Defense for  Homeland Defense. DOD has issued an interagency partner guide. DOD concurred with our recommendation and, in  November 2011, issued its Defense Support of Civil Authorities  Interagency Partner Guide. DOD has taken action to implement key practices for managing  some liaisons the department exchanges with its federal  partners. For example, DOD did not  have complete situational awareness of all the liaisons detailed to its  interagency partners. DOD Has Taken Action to Identify Needs and Address Capability Gaps Regarding Its Support of Civil Authorities

In response to our prior recommendations, DOD has taken action to  identify needs and address capability gaps for its DSCA mission. In the  2014 Quadrennial Defense Review, DOD notes that the key pillar of  protecting the homeland includes sustaining capabilities to assist U.S.  civil authorities in protecting U.S. airspace, shores, and borders, and in  responding effectively to domestic man-made and natural disasters. By  updating this guidance, DOD addressed our recommendation and DOD is  in a better position to address remaining capability gaps. We recommended that the commanders work through the  defense coordinating officers to develop an interim set of specific  capabilities that could be provided to prepare for and respond to complex  catastrophes while FEMA completes its plans. DOD concurred with our  recommendation and, in May 2014, according to DOD officials, Northern  Command and Pacific Command had updated their plans to incorporate  complex catastrophes, including identifying capabilities that would be  available to the lead federal agency during such an event. Under the National Response Framework, the U.S. Army Corps of  Engineers serves as the coordinator for the ‘Public Works and  Engineering’ emergency support function—1 of 14 emergency support  functions that serve as the federal government’s primary coordinating  structure for building, sustaining, and delivering response capabilities.The U.S. Army Corps of Engineers, in its emergency support function  coordinator role, is responsible for engaging in appropriate planning and  preparedness activities, which could include establishing capability  requirements, cataloguing current capabilities, and conducting capability  gap analyses that might be needed if the federal government is asked to  support local, state, tribal, territorial, and insular area government  response operations during a disaster. In conclusion, threats to the homeland and major disasters and  emergencies, such as cyber attacks and earthquakes, frequently are  unpredictable or occur with little or no notice. DOD has made significant  progress in improving strategy, plans, and guidance; interagency  coordination; and capabilities needed for DSCA. Civil Support: Actions Are Needed to Improve DOD’s Planning for a  Complex Catastrophe. Homeland Defense: DOD Can Enhance Efforts to Identify Capabilities to  Support Civil Authorities During Disasters.
Why GAO Did This Study

Threats to the homeland and major disasters and emergencies, such as hurricanes and wildfires, are frequently unpredictable or occur with little or no notice. DOD is often expected to play a prominent role supporting civil authorities and must be prepared to provide rapid response when called upon during disasters and declared emergencies (both natural and man-made). DOD also must provide support for restoring public health and services and civil order; support for national special security events; and periodic planned support. DOD provides this support to the American people through its defense support of civil authorities mission.
In this statement, GAO describes progress DOD has made in implementing recommendations to strengthen (1) DOD's strategy, plans, and guidance; (2) interagency coordination; and, (3) capabilities to support civil authorities. This testimony is primarily based on GAO products issued from March 2010 through December 2014 that examined DOD's support of civil authorities mission. In June 2015 GAO obtained selected updates about DOD's support of civil authorities mission.

What GAO Found

The Department of Defense (DOD) has taken action to address GAO's prior recommendations to strengthen its strategy, plans and guidance for support of civil authorities. As GAO has reported, clear, current, and complete strategies, plans, and guidance are important for reflecting the direction of the department's leadership, defining DOD policies and responsibilities, and sharing practices that could facilitate effective support of civil authorities. In October 2012, GAO found DOD had not developed guidance for the use of dual-status commanders (active-duty military or National Guard officers who were authorized to command both state and federal personnel) for incidents affecting multiple states and territories. For example, DOD had no specific criteria and conditions for when and how state governors and the Secretary of Defense would mutually appoint a commander. In September 2013, GAO found that DOD did not have a clear command-and-control structure for managing complex catastrophes across multiple states because DOD had not identified roles, responsibilities, and relationships among command elements. GAO recommended in both reports that DOD update and implement better guidance. DOD has partially addressed GAO's recommendations by updating its strategy and guidance, and the department is drafting an instruction on dual-status commanders.
DOD also has taken action to address GAO's prior recommendations to strengthen the department's interagency coordination. It is critical that DOD proactively and regularly engage with a broad range of interagency partners it may need to support, such as the Federal Emergency Management Agency (FEMA) and Customs and Border Protection. Previously, GAO has reported on three areas DOD can focus on to enhance interagency coordination: clearly defining roles and responsibilities, communicating DOD's approach toward interagency partners, and implementing key practices for managing liaisons with partners. GAO found that roles and responsibilities for support to law enforcement—including Joint Task Force-North, which provides civil support along U.S. borders—were unclear. GAO also found that DOD did not have complete situational awareness of 110 liaisons detailed to the Department of Homeland Security headquarters. To improve interagency coordination, GAO recommended that DOD issue and update civil-support guidance. Subsequently, DOD addressed GAO's recommendations by issuing a series of guidance and other documents, such as the 2011 Interagency Partner Guide.
Additionally, DOD has taken action to address GAO's prior recommendations to improve its identification of capabilities for support of civil authorities. In the 2014 Quadrennial Defense Review , DOD notes that the key pillar of protecting the homeland includes sustaining capabilities to assist U.S. civil authorities. In 2013, GAO found two combatant commands had not identified civil-support capabilities because they were waiting until FEMA completed planning efforts in 2018. GAO recommended that DOD develop an interim set of specific capabilities that could be provided to prepare for and respond to complex catastrophes. DOD concurred with GAO's recommendation and DOD officials reported in June 2015 that Northern Command and Pacific Command had updated their plans to incorporate complex catastrophes, including identifying capabilities that would be available to the lead federal agency during such an event.

What GAO Recommends

GAO previously made recommendations to help DOD address management challenges or gaps in guidance regarding support of civil authorities. In response, the agency has taken some steps and plans to do more.