History
A Continuity of Operations Plan (or Continuity of government, Continuity of Government Plan) has been a part of U.S. government operations since President of the United States, President Dwight D. Eisenhower provided (via executive order) various measures designed to ensure that the federal government of the United States, government of the United States would be able to continue operating after a Nuclear warfare, nuclear war. These measures included construction of underground facilities such as "Mount Weather Emergency Operations Center, Mount Weather", a putatively nuclear weapon, 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 one such facility, intended to house the entire United States Congress, on the grounds of the Greenbrier Resort in White Sulphur Springs, West Virginia. (See also Project Greek Island.) 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. 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, ). 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".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 only able to reach them through a toll-free number and personal extensions. The Bush administration did not acknowledge the implementation of the COG plan until March 1, 2002. 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 which 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
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 refused to provide the information, to the surprise of the congressional committee. , efforts by the committee to secure a copy of the plan continued.Documents
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). 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."Truman administration
* National Security Act of 1947, July 26, 1947Eisenhower administration
* Eisenhower Ten, March 6, 1958Carter administration
* Executive Order 12148, "Federal Emergency Management", July 20, 1979Reagan administration
An unknown contingency plan (which some believe was Rex 84) was publicly mentioned during the Iran-Contra Hearings in 1987. 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 and Senator Daniel Inouye, the Democratic Chair of the Committee: * , "Assignment of Emergency Preparedness Responsibilities", November 18, 1988Section 202 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.* , "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, 1990Clinton 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, 1994George 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")Hardware and facilities
The Continuity of Operations Plan involves numerous bunkers, 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
During the Cold War, the United States constructed bunkers 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. 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 America's 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. * 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-25A 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. * 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. In addition, a battle staff now flies with the TACAMO crew.Ships
Two National Emergency Command Post Afloat, National Emergency Command Posts Afloat were: * was converted into Command Ship CC-1 about 1962. * 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. * 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. 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 satellites - 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.See also
* Business continuity * Critical infrastructure protection * Designated survivor * Disaster recovery * Main Core * National Response Framework * National Security and Homeland Security Presidential Directive * Presidential directive * Presidential Emergency Action DocumentsReferences
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