United States federal government continuity of operations


Continuity of Operations is a United States federal government initiative, required by U.S. Presidential Policy Directive 40, to ensure that agencies can continue performance of essential functions under a broad range of circumstances. PPD-40 specifies particular 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 guides the private sector for business continuity planning purposes. A continuity plan is essential to help identify critical functions and develop preventative measures to continue important functions should disruption occur.

History

A Continuity of Operations Plan has been a part of U.S. government operations since President Dwight D. Eisenhower provided various measures designed to ensure that the government of the United States would be able to continue operating after a nuclear war.
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 one such facility, intended to house the entire United States Congress, on the grounds of the Greenbrier Resort in White Sulphur Springs, West Virginia. Other provisions of the plans included executive orders designating certain government officials to assume Cabinet and other executive-branch positions and carry out the position's responsibilities if the primary officeholders are killed.
There has been a formal line of succession to the presidency since 1792. This runs from the Vice President to the Speaker of the House of Representatives, 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 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 federal executive department and other parts of the executive branch in two secure bunkers on the East Coast. Friends, family, and co-workers could 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.
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 many representatives. Regarding 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, a member of the 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.
To the surprise of the congressional committee, the president refused to provide the information., efforts by the committee to secure a copy of the plan continued.

Documents

A document named in italics supersedes a previously published document.
Federal Continuity Directive 1 is a 2017 directive released by the Department of Homeland Security that provides doctrine and guidance to all federal organizations regarding the development of continuity program plans and capabilities. FCD 1 also serves as guidance to state, local, and tribal governments.
The Federal Continuity Directive 2 of June 2017 is a directive to assist federal Executive Branch organizations in identifying their Mission Essential Functions and candidate Primary Mission Essential Functions.
In July 2013, the DHS, together with the Federal Emergency Management Agency, and in coordination with other non-federal partners, developed the Continuity Guidance Circular 1 and CGC 2.
The preamble of the CGC 1 states that its function is to provide "direction to the non-Federal Governments 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."
CGC 1 closely parallels the information in FCD 1 but is geared toward states, territories, tribal and local governments, and private-sector organizations.
The purpose of Continuity Guidance Circular 2 is to provide "non-Federal Governments 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, Business Impact Analysis, and a risk assessment that will identify essential function relationships, interdependencies, time sensitivities, threats and vulnerabilities, and mitigation strategies."

Truman administration

An unknown contingency plan 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, Oliver North's attorney Brendan Sullivan and Senator Daniel Inouye, the Democratic Chair of the Committee:
  • , "Assignment of Emergency Preparedness Responsibilities", November 18, 1988

Section 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, 1990

    Clinton administration

  • Federal Preparedness Circular 65, "Federal Executive Branch Continuity of Operations ", July 26, 1999
  • "Federal Response Plan" , 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 ", 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 ", December 4, 1994

    George W. Bush administration

  • NSPD 51 National Security Presidential Directive 51, "National Continuity Policy", May 9, 2007

    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, the government has released information on various systems or described them 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 military command and government officials survive. Some have been decommissioned since then, but 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.