View source for United States federal government continuity of operations

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'''Continuity of Operations''' ('''COOP''') is a [[Federal government of the United States|United States federal government]] initiative, required by U.S. [[Presidential Policy Directive]] 40 (PPD-40), to ensure that agencies are able to continue performance of essential functions under a broad range of circumstances. PPD-40 specifies certain requirements for continuity plan development, including the requirement that all federal executive branch departments and agencies develop an integrated, overlapping continuity capability, that supports the eight National Essential Functions described in the document.
The [[Federal Emergency Management Agency]] provides guidance to the private sector for [[business continuity planning]] purposes.<ref name="ready.gov">{{Cite web|url=https://www.ready.gov/business/implementation/continuity|title=Business Continuity Plan |website=[[Ready.gov]]}}</ref> A continuity plan is essential to help identify critical functions and develop preventative measures to continue important functions should disruption occur.<ref name="ready.gov"/><ref>{{Cite web|url=https://drii.org/resources/professionalpractices/EN|title=Professional Practices &#124; DRI International|website=drii.org}}</ref>
== History ==
A Continuity of Operations Plan (or [[Continuity of Government]] Plan) has been a part of U.S. government operations since President [[Dwight D. Eisenhower]] provided (via [[executive order]]) various measures designed to ensure that the [[government of the United States]] would be able to continue operating after a [[nuclear war]].<ref name=graff>{{cite book |title=Raven Rock: The Story of the U.S. Government's Secret Plan to Save Itself |publisher=Simon & Schuster  |author=Garrett M. Graff |year=2017 |author-link=Garrett M. Graff }}
</ref>
These measures included construction of underground facilities such as "[[Mount Weather]]", a putatively [[nuclear-weapon]]-proof facility in a hollowed-out mountain in northeastern [[Virginia]]; and [[Raven Rock Mountain Complex]] near Camp David in Maryland. The public can now tour [[Project Greek Island|one such facility]], intended to house the entire [[United States Congress]], on the grounds of the [[Greenbrier Resort]] in [[White Sulphur Springs, West Virginia|White Sulphur Springs]], [[West Virginia]]. Other provisions of the plans included executive orders designating certain government officials to assume [[United States Cabinet|Cabinet]] and other executive-branch positions and carry out the responsibilities of the position if the primary officeholders are killed.<ref name=graff/>
There has been a formal [[United States presidential line of succession|line of succession]] to the [[President of the United States|presidency]] since 1792 (currently found in the [[Presidential Succession Act]] of 1947, {{USC|3|19}}). This runs from the [[Vice President of the United States|Vice President]] to the [[Speaker of the United States House of Representatives|Speaker of the House of Representatives]], [[President pro tempore of the United States Senate|President ''pro tempore'' of the Senate]], and then through the Cabinet secretaries in a sequence specified by Congress.
Continuity of government plans are not limited to the federal government.  The majority of states have constitutional provisions that provide for the succession of government in the event of an "enemy attack".<ref>Eric R. Daleo, [http://heinonline.org/HOL/LandingPage?collection=journals&handle=hein.journals/deplr58&div=42&id=&page= State Constitutions and Legislative Continuity in a 9/11 World:  Surviving an Enemy Attack], 58 DePaul L. Rev. 919 (2009). Accessed May 23, 2011.</ref>
== Continuity of Operations plan activated ==
The [[Presidency of George W. Bush|George W. Bush administration]] put the Continuity of Operations plan into effect for the first time directly following the [[September 11 attacks]]. Their implementation involved a rotating staff of 75 to 150 senior officials and other government workers from every [[United States federal executive departments|federal executive department]] and other parts of the executive branch in two secure bunkers on the [[East Coast of the United States|East Coast]]. Friends, family, and co-workers were able to reach them only through a toll-free number and personal extensions. The Bush administration did not acknowledge the implementation of the COG plan until March 1, 2002.<ref>{{cite news| url=https://pqasb.pqarchiver.com/washingtonpost/109965333.html?did=109965333&FMT=ABS&FMTS=FT&date=Mar+1%2C+2002&author=Barton+Gellman+and+Susan+Schmidt&pub=The+Washington+Post&desc=Shadow+Government+Is+at+Work+in+Secret%3B+After+Attacks%2C+Bush+Ordered+100+Officials+to+Bunkers+Away+From+Capital+to+Ensure+Federal+Survival | archive-url=https://archive.today/20120714143851/http://pqasb.pqarchiver.com/washingtonpost/109965333.html?did=109965333&FMT=ABS&FMTS=FT&date=Mar+1,+2002&author=Barton+Gellman+and+Susan+Schmidt&pub=The+Washington+Post&desc=Shadow+Government+Is+at+Work+in+Secret;+After+Attacks,+Bush+Ordered+100+Officials+to+Bunkers+Away+From+Capital+to+Ensure+Federal+Survival | url-status=dead | archive-date=July 14, 2012 | first1=Barton | last1=Gellman | first2=Susan | last2=Schmidt | title=Shadow Government Is at Work in Secret; After Attacks, Bush Ordered 100 Officials to Bunkers Away From Capital to Ensure Federal Survival | date=March 1, 2002}}</ref><ref>{{cite news| url=https://www.cbsnews.com/news/the-shadow-government/ | work=CBS News | title=The Shadow Government | date=March 2, 2002}}</ref>
In 2007, [[Larry Sabato]], a professor at the [[University of Virginia]], criticized the incomplete nature of the plan in his book ''[[A More Perfect Constitution]]''. In particular, he objected to the fact that there is no constitutional procedure for replacing [[U.S. House]] members in the case of a large-scale disaster that could potentially kill a large number of representatives. In regard to the Continuity of Operations Plan, Sabato said it "failed outright" during the September 11 attacks.
== Lack of congressional oversight ==
{{section update|date=February 2016}}
On July 18, 2007, Rep. [[Peter DeFazio]] (D-OR), a member of the [[United States House Appropriations Subcommittee on Homeland Security|U.S. House Committee on Homeland Security]] at that time, requested the classified and more detailed version of the government's continuity-of-operations plan in a letter signed by him and the chairperson of the House Homeland Security Committee, which is supposed to have access to confidential government information.
The president, to the surprise of the congressional committee, refused to provide the information.<ref>{{cite web | url = http://www.oregonlive.com/news/oregonian/index.ssf?/base/news/118489654058910.xml&coll=7 | title = DeFazio asks, but he's denied access | access-date = 2011-01-15 | last = Kosseff | first = Jeff | date = July 20, 2007 | work = The Oregonian | archive-url = https://web.archive.org/web/20070810100224/http://www.oregonlive.com/news/oregonian/index.ssf?%2Fbase%2Fnews%2F118489654058910.xml&coll=7 | archive-date = 2007-08-10 | url-status = dead }}</ref><ref>AMERICA NEEDS A PLAN TO PROVIDE FOR CONTINUITY OF GOVERNMENT, ''Congressional Record'': August 2, 2007, Page H9548.</ref> {{As of|2007|8}}, efforts by the committee to secure a copy of the plan continued.<ref>"[http://www.currycountyreporter.com/news/results.cfm?story_no=2834]", ''Curry County Reporter''. Accessed September 7. 2007.</ref><ref>''The Oregonian'', 2007 July 27, "DeFazio Demands Access to Classified Information," http://blog.oregonlive.com/politics/2007/07/defazio_demands_access_to_clas.html</ref>
== Documents ==
{{Update section|date=August 2017}}
A document named in italics supersedes a previously published document.
The Federal Continuity Directive 1 (FCD 1) is a 2017 directive, released by the Department of Homeland Security (DHS), that provides doctrine and guidance to all federal organizations for developing continuity program plans and capabilities. FCD 1 also serves as guidance to state, local, and tribal governments.
The Federal Continuity Directive 2 (FCD 2) of June 2017 is a directive to assist federal Executive Branch organizations in identifying their Mission Essential Functions (MEFs) and candidate Primary Mission Essential Functions (PMEFs).<ref>Federal Continuity Directives and Continuity of Operations documents collection https://www.fema.gov/media-library/assets/documents/86284.</ref>
The DHS together with the [[Federal Emergency Management Agency]] (FEMA), and in coordination with other non-federal partners in July 2013, developed the Continuity Guidance Circular 1 (CGC 1) and CGC 2.
The preamble of the CGC 1 states that its function is to provide "direction to the non-Federal Governments (NFGs) for developing continuity plans and programs. Continuity planning facilitates the performance of essential functions during all-hazards emergencies or other situations that may disrupt normal operations. By continuing the performance of essential functions through a catastrophic emergency, the State, territorial, tribal, and local governments, and the private sector support the ability of the Federal Government to perform National Essential Functions (NEFs)."
CGC 1 parallels the information in FCD 1 closely, but is geared to states, territories, tribal and local governments, and private-sector organizations.
The purpose of Continuity Guidance Circular 2 (CGC 2) is to provide "non-Federal Governments (NFGs) with guidance on how to implement CGC 1, Annex D: ESSENTIAL FUNCTIONS. It provides them with guidance, a methodology, and checklists to identify, assess, and validate their essential functions. This CGC includes guidance for conducting a continuity Business Process Analysis (BPA), [[Business Impact Analysis]] (BIA), and a [[risk assessment]] that will identify essential function relationships, interdependencies, time sensitivities, threats and vulnerabilities, and mitigation strategies."
<ref>Continuity Guidance Circular 1 PDF download http://www.fema.gov/media-library-data/1386609058803-b084a7230663249ab1d6da4b6472e691/CGC-1-Signed-July-2013.pdf.</ref>
<ref>Continuity Guidance Circular 2 PDF download http://www.fema.gov/media-library-data/1386609058826-b084a7230663249ab1d6da4b6472e691/Continuity-Guidance-Circular2.pdf.</ref>
===Truman administration===
* [[National Security Act of 1947]], July 26, 1947
===Eisenhower administration===
* [[Eisenhower Ten]], March 6, 1958
===Carter administration===
* [[Executive Order 12148]], "Federal Emergency Management", July 20, 1979
===Reagan administration===
An unknown contingency plan (which some{{who|date=November 2020}} believe was [[Rex 84]]) was publicly mentioned during the [[Iran-Contra]] Hearings in 1987.<ref>Chip Berlet: ''[http://www.publiceye.org/rightwoo/rwooz9-14.html The Right-Wing Roots of Sheehan's "Secret Team" Theory].'' In: ''[http://www.publiceye.org/rightwoo/rwooz9_TOC.html Right Woos Left].'' 1990/1999</ref> Transcripts from the hearing in the ''New York Times'' record the following dialogue between Congressman [[Jack Brooks (American politician)|Jack Brooks]], [[Oliver North|Oliver North's]] attorney [[Brendan Sullivan (lawyer)|Brendan Sullivan]] and Senator [[Daniel Inouye]], the Democratic Chair of the Committee:<ref>[Transcript from the House Select Committee to Investigate Covert Arms Transactions with Iran, New York Times, July 14, 1987]</ref>
{{blockquote|'''[Congressman Jack] Brooks:''' Colonel North, in your work at the N.S.C. were you not assigned, at one time, to work on plans for the continuity of government in the event of a major disaster?
'''Brendan Sullivan [North's counsel, agitatedly]:''' Mr. Chairman?
'''[Senator Daniel] Inouye:''' I believe that question touches upon a highly sensitive and classified area so may I request that you not touch upon that?
'''Brooks:''' I was particularly concerned, Mr. Chairman, because I read in Miami papers, and several others, that there had been a plan developed, by that same agency, a contingency plan in the event of emergency, that would suspend the American constitution. And I was deeply concerned about it and wondered if that was an area in which he had worked. I believe that it was and I wanted to get his confirmation.
'''Inouye:''' May I most respectfully request that that matter not be touched upon at this stage. If we wish to get into this, I'm certain arrangements can be made for an executive session.}}
* {{ExecutiveOrder|12656}}, "Assignment of Emergency Preparedness Responsibilities", November 18, 1988
<blockquote>
Section 202
<cite>The head of each Federal department and agency shall ensure the continuity of essential functions in any national security emergency by providing for: succession to office and emergency delegation of authority in accordance with applicable law; safekeeping of essential resources, facilities, and records; and establishment of emergency operating capabilities.</cite>
</blockquote>
* {{ExecutiveOrder|12472}}, "Assignment of National Security and Emergency Preparedness Telecommunications Functions", April 3, 1984
* ''NSD 69'' NSDD 55, "Enduring National Leadership" September 14, 1982
===George H. W. Bush administration===
* ''PDD 67'' National Security Directive 69, "Enduring Constitutional Government", June 2, 1992
* ''FPC 65'' Federal Preparedness Circular 61, "Emergency Succession to Key Positions of the Federal Departments and Agencies", August 2, 1991
* ''FPC 65'' Federal Preparedness Circular 62, "Delegation of Authorities for Emergency Situations", August 1, 1991
* Federal Preparedness Circular 60, "Continuity of the Executive Branch of the Federal Government at the Headquarters Level During National Security Emergencies", November 20, 1990
* ''NSD 69'' National Security Directive 37, "Enduring Constitutional Government", April 18, 1990
===Clinton administration===
* Federal Preparedness Circular 65, "Federal Executive Branch Continuity of Operations (COOP)", July 26, 1999
* "Federal Response Plan" [FEMA 9230.1-PL], April 1999
* Presidential Decision Directive 67, "Enduring Constitutional Government and Continuity of Government Operations", October 21, 1998
* 41 Code of Federal Regulations 101-2, "Occupant Emergency Program", revised as of July 1, 1998
* 36 Code of Federal Regulations 1236, "Management of Vital Records", revised as of July 1, 1998
* Presidential Decision Directive 63, "Critical Infrastructure Protection (CIP)", May 22, 1998
* [[Presidential Decision Directive 62]], "Protection Against Unconventional Threats to the Homeland and Americans Overseas", May 22, 1998
* ''FPC 65'' Federal Response Planning Guidance 01-94, "Continuity of Operations (COOP)", December 4, 1994
===George W. Bush administration===
* NSPD 51 [[National Security Presidential Directive 51]], "National Continuity Policy", May 9, 2007 (supersedes Presidential Decision Directive 67) (also known as HSPD 20 "Homeland Security Presidential Directive 20")<ref>{{Cite web|url=https://georgewbush-whitehouse.archives.gov/news/releases/2007/05/20070509-12.html|title=National Security and Homeland Security Presidential Directive|website=georgewbush-whitehouse.archives.gov}}</ref>
==Hardware and facilities==
{{See also|Post Attack Command and Control System}}
The Continuity of Operations Plan involves numerous [[bunker]]s, special airplanes, and communication systems.  Much of the information about them is classified; however, information on various systems has been released by the government or described to the public by reporters and writers.  Since many of the details are classified, the public information may be incorrect.  Also they are subject to change without public notice so this list may not reflect current plans.
===Facilities===
{{See also|United States Continuity of Operations facilities}}
During the Cold War, the United States constructed [[bunker]]s to help provide survivability to military command and government officials.  Some have been decommissioned since the Cold War.  The ones that are still considered to be in operation are listed here.
The United States Congress was formerly housed in the Greenbrier Bunker, but since it was discovered in the early 1990s the new location of the Congressional bunker is unknown.
* [[Cheyenne Mountain Complex]] - This underground facility is the former home of [[NORAD]]. Becoming fully operational on April 20, 1966, it is located in [[Colorado Springs, Colorado|Colorado Springs]], [[Colorado]]. Currently, the military has the goal of placing the operations center on "warm stand-by", meaning that the facility will be maintained and ready for use on short notice as necessary, but not used on a daily basis.<ref>{{Cite web|url=http://www.norad.mil/about/CMOC.html|archive-url=https://web.archive.org/web/20120726070521/http://www.norad.mil/about/CMOC.html|url-status=dead|title=North American Aerospace Defense Command<!-- Bot generated title -->|archive-date=July 26, 2012}}</ref> In the event of an emergency deemed serious enough, NORAD and [[United States Northern Command|USNORTHCOM]] would use the bunker for [[Command and control#Derivative terms|C4ISTAR]] (command and control) of the United States military.
* [[Raven Rock Mountain Complex|Site R]] (Raven Rock) - Near [[Waynesboro, Pennsylvania|Waynesboro]], [[Pennsylvania]], Site R is the emergency home for [[the Pentagon]]. Vice President Cheney is reported to have stayed there after the [[September 11 attacks]].<ref>[http://ludb.clui.org/ex/i/PA3183/ Raven Rock Underground Command Center (Site R)<!-- Bot generated title -->]</ref>
* [[Mount Weather Emergency Operations Center|Mount Weather]] - The [[Mount Weather Emergency Operations Center]] is a government facility located near [[Bluemont, Virginia|Bluemont]], [[Virginia]]. It houses operations and training facilities above ground for the [[Federal Emergency Management Agency]] (FEMA) and contains an underground facility designed to house key components of the American government in the case of [[nuclear warfare|nuclear war]].
===Airplanes===
* [[Air Force One]] is the radio call sign of any [[United States Air Force|Air Force]] plane the President of the United States travels on.  However, the term typically refers to a [[Boeing VC-25]]A the president normally uses.  While the VC-25A is equipped with numerous systems to ensure its survival, in an emergency it is recommended that the president use the [[National Airborne Operations Center]].
* [[Image:E 4b.jpg|thumb|"Nightwatch" in flight]] [[National Airborne Operations Center]] (codenamed ''Nightwatch'') is a [[Boeing E-4]] specially built to serve as a survivable mobile command post for the [[National Command Authority (United States)|National Command Authority]] (NCA).  Either the President or the [[United States Secretary of Defense|Secretary of Defense]] may use it.  It is also possible that the president would authorize the [[Vice President of the United States|vice president]] or others to use it, depending on the circumstances.
* [[Operation Looking Glass|Looking Glass]] is [[United States Strategic Command]]'s Airborne Command Post, designed to take over in case [[U.S. Strategic Command]] is destroyed or incapable of communicating with strategic forces.  Beginning February 3, 1961, an Air Force Looking Glass aircraft was in the air at all times 24 hours a day, 365 days a year.  On July 24, 1990, Looking Glass ceased continuous airborne alert but remained on ground or airborne alert 24 hours a day.  On October 1, 1998, the U.S. Navy replaced the U.S. Air Force in this duty.{{clarify|date=February 2016}}  In addition, a battle staff now flies with the [[TACAMO]] crew.<ref>[http://www.tacamo.navy.mil/wing/index.asp TACAMO - Take Charge And Move Out]</ref>
===Ships===
[[File:USS Wright (CC-2) underway at sea on 25 September 1963 (KN-5885).jpg|thumb|The USS Wright (CC-2)]]
Two [[National Emergency Command Post Afloat|National Emergency Command Posts Afloat]] were:
* {{USS|Northampton|CLC-1|6}} was converted into Command Ship CC-1 about 1962.
* {{USS|Wright|CVL-49|6}} was converted into Command Ship CC-2 between 1962 and 1963 and included the National Military Command System.
These vessels were decommissioned in 1970.
===Communication===
The Defense Communication Agency was tasked in 1963 with maintaining an active backup of all communications for any event that could disrupt communications and the management of command and control communications systems as the National Communications System. This mission was partially transferred to [[Defense Information Systems Agency]] in charge of supporting command, control, communications, and information systems for the military in the 1990s and would support the [[National Command Authority (United States)|National Command Authority]]. These functions were later transferred to Joint Forces Command and STRATCOM but the backup contingency systems continue to operate. It is assumed that the various bunkers and airplanes have been equipped with special communication equipment to survive a catastrophe.
{{See also|National Program Office}}
* [[Internet]] - The Internet began as the [[ARPANET]], a program funded by the U.S. military.  The Internet is designed with the capability to withstand losses of large portions of the underlying networks, but was never designed to withstand a nuclear attack. Due to the huge numbers of people using it, it would likely be jammed and unable to handle communication if it suffered a large amount of damage.{{citation needed|date=March 2013}}  During a localized emergency, it is highly useful. However, the loss of electrical power to an area can make accessing the Internet difficult or impossible.
* [[Communications satellite]]s - Basically immune to any ground catastrophe, it is expected that military communication satellites would provide the government with the ability to communicate in any situation other than one that includes a direct attack upon the satellites.
* [[AN/URC-117 Ground Wave Emergency Network]] or GWEN, a retired military command and control communications system<ref name="nytimes1988">{{cite web |url=https://www.nytimes.com/1988/09/12/us/us-to-complete-emergency-radio-network.html |title=Associated Press: "U.S. to Complete Emergency Radio Network" |work=The New York Times |date=12 September 1988}}</ref>
* [[Post-Attack Command and Control System]]
* [[Survivable Low Frequency Communications System]]
==See also==
* [[Business continuity]]
* [[Critical infrastructure protection]]
* [[Designated survivor]]
* [[Emergency management#Recovery|Disaster recovery]]
* [[National Response Framework]]
* [[National Security and Homeland Security Presidential Directive]]
* [[Presidential directive]]
* [[Presidential Emergency Action Documents]]
==References==
{{Reflist}}
==External links==
* [https://drii.org/ "Disaster Recovery Institute International"]
* [https://www.fema.gov/media-library/assets/documents/86284 "Federal Continuity Directive 1 (FCD 1) 2012"] - Federal Continuity Directive 1 (FCD 1) 2012, a PDF download of the Directive.
* [https://fas.org/irp/offdocs/pdd/pdd-67.htm "Enduring Constitutional Government and Continuity of Government Operations"] - Description of the secret Presidential Decision Directive 67, October 21, 1998
* [https://fas.org/irp/offdocs/pdd/fpc-65.htm "Federal Executive Branch Continuity of Operations (COOP)"] - Federal Preparedness Circular 65, July 26, 1999
* [[s:Transwiki:Federal Preparedness Circular 65|FEDERAL PREPAREDNESS CIRCULAR 65, June 15, 2004]] (from  [http://www.fema.gov/txt/government/coop/fpc65_0604.txt FEMA site])
* [https://georgewbush-whitehouse.archives.gov/news/releases/2007/05/20070509-12.html National Security and Homeland Security Presidential Directive] Subject: National Continuity Policy May 9, 2007 - Revocation. Presidential Decision Directive 67 of October 21, 1998 ("Enduring Constitutional Government and Continuity of Government Operations"), including all Annexes thereto, is hereby revoked.
* [http://www.e-publishing.af.mil/shared/media/epubs/afi10-208.pdf "AFI 10-208"] USAF Continuity of Operations (COOP) Program
* [http://pegasus.rutgers.edu/~review/vol62n3/Conaty_vol62n3.pdf "The Atomic Midwife: The Eisenhower Administration’s Continuity-of-Government Plans and the Legacy of ‘Constitutional Dictatorship’"]
* [https://ssrn.com/abstract=2056822 "Toward Comprehensive Reform of America's Emergency Law Regime & Compendium of National Emergency Powers"]
{{DEFAULTSORT:Continuity Of Operations Plan}}
[[Category:Disaster preparedness in the United States]]
[[Category:Federal government of the United States]]
[[Category:Continuity of government in the United States| ]]
[[Category:United States national security directives]]