1 February 1998
Source: http://www.access.gpo.gov/nara/cfr/index.html

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[Code of Federal Regulations]
[Title 44, Volume 1]
[Revised as of October 1, 1997]
From the U.S. Government Printing Office via GPO Access
[CITE: 44CFR334]

[Page 577-581]
 
              TITLE 44--EMERGENCY MANAGEMENT AND ASSISTANCE
 
             CHAPTER I--FEDERAL EMERGENCY MANAGEMENT AGENCY
 
PART 334--GRADUATED MOBILIZATION RESPONSE

Sec.
334.1  Purpose.
334.2  Policy.
334.3  Background.
334.4  Definitions.
334.5  GMR system description.
334.6  Department and agency responsibilities.
334.7  Reporting.

    Authority: National Security Act of 1947, as amended, 50 U.S.C. 404; 
Defense Production Act of 1950, as amended, 50 U.S.C. app. 2061 et seq; 
E.O. 12148 of July 20, 1979, 3 CFR, 1979 Comp., p. 412; E.O. 10480 of 
Aug. 14, 1953, 3 CFR, 1949-53 Comp., p. 962; E.O. 12472 of Apr. 3, 1984; 
3 CFR, 1984 Comp., p. 193; E.O. 12656 of Nov. 18, 1988, 53 FR 47491.

    Source: 55 FR 1821, Jan. 19, 1990, unless otherwise noted.

Sec. 334.1  Purpose.

    (a) Provides policy guidance pursuant to the Defense Production Act 
of 1950, as amended; section 1-103 of Executive Order 12148, as amended, 
which includes functions continued from E.O. 11051; section 104(f) of 
Executive Order

[[Page 578]]

12656; and part 2 of Executive Order 10480.
    (b) Establishes a Graduated Mobilization Response (GMR) system for 
developing and implementing mobilization actions that are responsive to 
a wide range of national security threats and ambiguous or specific 
warning indicators. GMR provides for a coherent decision making process 
with which to proceed with specific responses to an identified crisis or 
emergency.
    (c) Provides guidance to the federal departments and agencies for 
developing plans that are responsive to a GMR system and for preparing 
costed option packages, as appropriate, to implement the plans.

Sec. 334.2  Policy.

    (a) As established in Executive Order 12656, the policy of the 
United States is to have sufficient emergency response capabilities at 
all levels of government to meet essential defense and civilian needs 
during any national security emergency. Accordingly, each federal 
department and agency shall prepare its national security emergency 
preparedness plans and programs to respond adequately and in a timely 
manner to all national security emergencies.
    (b) As part of emergency response, the GMR system should be 
incorporated in each department's and agency's emergency preparedness 
plans and programs to provide appropriate and effective response options 
for consideration in reacting to ambiguous and specific warnings.
    (c) Departments and agencies will be provided early warning 
information developed by the intelligence community and policy 
statements of the President.
    (d) Emergency resource preparedness planning is essential to ensure 
that the nation is adequately prepared to respond to potential national 
emergencies. Such emergency resource preparedness planning requires an 
exchange of information and planning factors among the various 
departments and agencies responsible for different resource preparedness 
actitivies.
    (e) To carry out their emergency planning activities, civilian 
departments and agencies require the Department of Defense's (DOD) 
assessment of potential military demands that would be made on the 
economy in a full range of possible national security emergencies. 
Similarly, DOD planning should be conducted using planning regimes 
consistent with the policies and plans of the civilian resource 
departments and agencies.
    (f) Under section 104(c) of Executive Order 12656, FEMA is 
responsible for coordinating the implementation of national emergency 
preparedness policy with federal departments and agencies and with state 
and local governments and, therefore, is responsible for developing a 
system of planning procedures for integrating the emergency preparedness 
actions of federal, state and local governments.
    (g) Federal departments and agencies shall design their preparedness 
measures to permit a rapid and effective transition from routine to 
emergency operations, and to make effective use of the period following 
initial indication of a probable national security emergency. This will 
include:
    (1) Development of a system of emergency actions that defines 
alternatives, processes, and issues to be considered during various 
stages of national security emergencies; and
    (2) Identification of actions that could be taken at the federal and 
local levels of government in the early stages of a national security 
emergency or pending national security emergency to mitigate the impact 
of or reduce significantly the leadtime associated with full emergency 
action implementation.

Sec. 334.3  Background.

    (a) The GMR system is designed to take into account the need to 
mobilize the Nation's resources in response to a wide range of crisis or 
emergency situations. GMR is a flexible decision making process of 
preparedness and response actions which are appropriate to warning 
indicators or an event. Thus, GMR allows the government, as a whole, to 
take small or large, often reversible, steps to increase its national 
security emergency preparedness posture.
    (b) Crises, especially those resulting in major military activities, 
always

[[Page 579]]

have some political or economic context. As the risks of military action 
increase, nations undertake more extensive preparations over a longer 
perod of time to increase their military power. Such preparations by 
potential adversaries shape the nature and gravity of the threat as well 
as its likelihood and timing of occurrence. These measures permit the 
development of reliable indicators of threat at an early time in the 
evolution of a crisis. Depending on the nature of the situation or event 
and the nation involved, these early warning indicators may emanate from 
the political, socio-economic and/or industrial sectors.
    (c) The GMR system enables the nation to approach mobilization 
planning and actions as part of the deterrent response capability and to 
use it to reduce the probability of conflict. Alternatively, if 
deterrence should fail, the GMR system would enable the nation to 
undertake a series of phased actions intended to increase its ability to 
meet defense and essential civilian requirements. The GMR system 
integrates the potential strength of the national economy into U.S. 
national security strategy.

Sec. 334.4  Definitions.

    (a) Graduated Mobilization Response (GMR) is a system for 
integrating mobilization actions designed to respond to ambiguous and/or 
specific warnings. These actions are designed to mitigate the impact of 
an event or crisis and reduce significantly the lead time associated 
with a full national emergency action implementation.
    (b) National security emergency is any occurrence, including natural 
disaster, military attack, technological emergency, or other emergency, 
that seriously degrades or threatens the national security of the United 
States.
    (c) Mobilization is the process of marshalling resources, both civil 
and military, to respond to and manage a national security emergency.
    (d) GMR Plans are those agency documents that describe, in general, 
the actions that an agency could take in the early stages of a national 
security emergency, or upon receipt of warning information about a 
possible national security emergency. These actions would be designed to 
mitigate the impact of, or reduce significantly, the lead times 
associated with full emergency action implementation. Such plans are 
required by section 201(4)(b) of Executive Order 12656.
    (e) A Costed Option Package is a document that describes in detail a 
particular action that an agency could take in the early stages of a 
national security emergency. The general content of a GMR costed option 
package includes alternative response options; the resource implications 
of each option; shortfalls, costs, timeframes and political feasibility.

Sec. 334.5  GMR system description.

    The GMR system contains three stages of mobilization activity 
(additional intermediate GMR stages may be developed). For example, a 
federal department or agency might divide ``Crisis Management'' into 
two, three, or more levels as suits its needs.
    (a) Stage 3, Planning and Preparation. During the planning and 
preparation stage, federal departments and agencies develop their GMR 
plans and maintain capability to carry out their mobilization-related 
responsibilities in accordance with section 201 of Executive Order 
12656. General types of problems likely to arise in a crisis situation 
are identified along with possible methods for dealing with them. 
Investment programs can be undertaken to overcome identified problems.
    (b) Stage 2, Crisis Management. During the crisis management stage, 
GMR plans are reviewed and capabilities will be re-examined in light of 
an actual event or crisis perceived to be emerging.
    (1) Federal departments and agencies may need to gather additional 
data on selected resources or increase their preparedness activities. 
Costed Option Packages may need to be updated or new ones prepared for 
the response option measures in each of the department's and agency's 
area of responsibility. For example, when it appears likely that 
increased national resources may be required, resource readiness could 
be improved through the procurement of essential long lead time items, 
especially those that can be used even if the situation does not

[[Page 580]]

escalate. In general, long lead time preparedness actions would be 
considered for implementation at this time.
    (2) Many preparedness actions at this stage would be handled through 
reprogramming, but the Costed Option Packages may also require new 
funding.
    (3) If the crisis worsens, and prior to the declaration of national 
emergency, it may be necessary to surge certain production and stockpile 
items for future use.
    (c) Stage 1, National Emergency/War. During a national emergency or 
declaration of war, mobilization of all national resources escalates and 
GMR will be subsumed into the overall mobilization effort. As military 
requirements increase, the national resources would increasingly be 
focused on the national security emergency. This would involve diverting 
non-essential demand for scarce resources from peacetime to defense 
uses, and converting industry from commercial to military production. 
Both surge production and expansion of the nation's productive capacity 
may also be necessary. Supplemental appropriations may be required for 
most Federal departments and agencies having national security emergency 
responsibilities.

Sec. 334.6  Department and agency responsibilities.

    (a) During Stage 3, each Federal department and agency with 
mobilization responsibilities will develop GMR plans as part of its 
emergency preparedness planning process in order to meet possible future 
crisis. Costed Option Packages will be developed for actions that may be 
necessary in the early warning period. Option packages will be reviewed, 
focused and refined during Stage 2 to meet the particular emergency.
    (b) Each department and agency should identify response actions 
appropriate for the early stage of any crisis or emergency situation, 
which then will be reviewed, focused and refined in Stage 2 for 
execution, as appropriate. GMR plans should contain a menu of costed 
option packages that provide details of alternative measures that may be 
used in an emergency situation.
    (c) FEMA will provide guidance pursuant to Executive Order 12656 and 
will coordinate GMR plans and option packages of DOD and the civilian 
departments and agencies to ensure consistency and to identify areas 
where additional planning or investment is needed.
    (d) During State 2, FEMA will coordinate department and agency 
recommendations for action and forward them to the National Security 
Advisor to make certain that consistency with the overall national 
strategy planning is achieved.
    (e) Departments and agencies will refine their GMR plans to focus on 
the specific crisis situation. Costed option packages should be refined 
to identify the resources necessary for the current crisis, action taken 
to obtain those resources, and GMR plans implemented consistent with the 
seriousness of the crisis.
    (f) At Stage 1, declaration of national emergency or war, the crisis 
is under the control of NSC or other central authority, with GMR being 
integrated into partial, full or total mobilization. At this point the 
more traditional mechanisms of resource mobilization are pursued, 
focusing on resource allocation and adjudication with cognizance of the 
essential civilian demand.
    (g) Programs and plans developed by the departments and agencies 
under this guidance should be shared, as appropriate, with States, local 
governments and the private sector to provide a baseline for their 
development of supporting programs and plans.

Sec. 334.7  Reporting.

    The Director of FEMA shall provide the President with periodic 
assessments of the Federal departments and agencies capabilities to 
respond to national security emergencies and periodic reports to the 
National Security Council on the implementation of the national security 
emergency preparedness policy. Pursuant to section 201(15) of Executive 
Order 12656, departments and agencies, as appropriate, shall consult and 
coordinate with the Director of FEMA to ensure that their activities and 
plans are consistent with current National Security Council guidelines

[[Page 581]]

and policies. An evaluation of the Federal departments and agencies 
participation in the graduated mobilization response program may be 
included in these reports.


