4 December 2008
[Federal Register: December 4, 2008 (Volume 73, Number 234)]
[Proposed Rules]
[Page 73896-73900]
From the Federal Register Online via GPO Access [wais.access.gpo.gov]
[DOCID:fr04de08-12]
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Proposed Rules
Federal Register
________________________________________________________________________
This section of the FEDERAL REGISTER contains notices to the public of
the proposed issuance of rules and regulations. The purpose of these
notices is to give interested persons an opportunity to participate in
the rule making prior to the adoption of the final rules.
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[[Page 73896]]
DEPARTMENT OF DEFENSE
Office of the Secretary
[DoD-2008-OS-0085; RIN 0790-AI34]
32 CFR Part 185
Defense Support of Civil Authorities (DSCA)
AGENCY: Department of Defense.
ACTION: Proposed rule.
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SUMMARY: This proposed rule establishes policy and assigns
responsibilities for DSCA, supplements regulations regarding military
support for civilian law enforcement, and sets forth policy guidance
for the execution and oversight of DSCA when requested by civil
authorities and approved by the appropriate DoD authority, or as
directed by the President, within the United States, including the
District of Columbia, the Commonwealth of Puerto Rico, the U.S. Virgin
Islands, Guam, American Samoa, the Commonwealth of the Northern Mariana
Islands, and any territory or possession of the United States or any
political subdivision thereof. Legislative changes over the years have
made the existing guidance outdated and inconsistent with current law
and the current organizational structure of the Department of Defense.
This proposed rule will allow civil authorities access to the correct
procedures when they are seeking assistance from the Department by
establishing updated policy guidance and assigning the correct
responsibilities within the Department for the Defense for support of
civil authorities in response to requests for assistance for domestic
emergencies, designated law enforcement support, special events, and
other domestic activities. Interested persons are invited to submit
comments on this proposed rule that will be considered prior to
promulgation of the final rule.
DATES: Comments must be received by February 2, 2009.
ADDRESSES: You may submit comments, identified by docket number and or
RIN number and title, by any of the following methods:
Federal Rulemaking Portal: http://www.regulations.gov.
Follow the instructions for submitting comments.
Mail: Federal Docket Management System Office, 1160
Defense Pentagon, Washington, DC 20301-1160.
Instructions: All submissions received must include the agency name
and docket number or Regulatory Information Number (RIN) for this
Federal Register document. The general policy for comments and other
submissions from members of the public is to make these submissions
available for public viewing on the Internet at http://
www.regulations.gov as they are received without change, including any
personal identifiers or contact information.
FOR FURTHER INFORMATION CONTACT: Mr. Richard Chavez, 703-697-5415.
SUPPLEMENTARY INFORMATION:
Executive Order 12866, ``Regulatory Planning and Review''
It has been certified that 32 CFR part 185 does not:
(1) Have an annual effect on the economy of $100 million or more or
adversely affect in a material way the economy; a section of the
economy; productivity; competition; jobs; the environment; public
health or safety; or State, local, or tribal governments or
communities;
(2) Create a serious inconsistency or otherwise interfere with an
action taken or planned by another Agency;
(3) Materially alter the budgetary impact of entitlements, grants,
user fees, or loan programs, or the rights and obligations of
recipients thereof; or
(4) Raise novel legal or policy issues arising out of legal
mandates, the President's priorities, or the principles set forth in
this Executive Order.
Sec. 202, Pub. L. 104-4, ``Unfunded Mandates Reform Act''
It has been certified that 32 CFR part 185 does not contain a
Federal mandate that may result in the expenditure by State, local and
tribal governments, in aggregate, or by the private sector, of $100
million or more in any 1 year.
Public Law 96-354, ``Regulatory Flexibility Act'' (5 U.S.C. 601)
It has been certified that 32 CFR part 185 is not subject to the
Regulatory Flexibility Act (5 U.S.C. 601) because it would not, if
promulgated, have a significant economic impact on a substantial number
of small entities. This rule establishes policy and assigns
responsibilities within DoD for DSCA, supplements regulations regarding
military support for civilian law enforcement, and sets forth policy
guidance for the execution and oversight of DSCA when requested by
civil authorities and approved by the appropriate DoD authority, or as
directed by the President. Therefore, it is not expected that small
entities will be affected because there will be no economically
significant regulatory requirements placed upon them.
Public Law 96-511, ``Paperwork Reduction Act'' (44 U.S.C. Chapter 35)
It has been certified that 32 CFR part 185 does not impose
reporting or recordkeeping requirements under the Paperwork Reduction
Act of 1995.
Executive Order 13132, ``Federalism''
It has been certified that 32 CFR part 185 does not have federalism
implications, as set forth in Executive Order 13132. This rule does not
have substantial direct effects on:
(1) The States;
(2) The relationship between the National Government and the
States; or
(3) The distribution of power and responsibilities among the
various levels of Government.
List of Subjects in 32 CFR Part 185
Armed forces, Civil defense.
Accordingly, the Department of Defense proposes to revise 32 CFR
part 185 to read as follows:
PART 185--DEFENSE SUPPORT OF CIVIL AUTHORITIES (DSCA)
Sec.
185.1 Purpose.
185.2 Applicability and scope.
185.3 Definitions.
185.4 Policy.
185.5 Responsibilities.
Authority: 50 U.S.C. 2251, as amended; E.O. 12148, 3 CFR 1979
Comp. p. 412.
Sec. 185.1 Purpose.
This part:
[[Page 73897]]
(a) Establishes policy and assigns responsibilities for Defense
Support of Civil Authorities (DSCA) which is also referred to as civil
support.
(b) Supplements the regulations required by section 375 of title
10, United States Code (U.S.C.), regarding military support for
civilian law enforcement.
(c) Sets forth policy guidance for the execution and oversight of
DSCA when requested by civil authorities and approved by the
appropriate DoD authority, or as directed by the President, within the
United States, including the District of Columbia, the Commonwealth of
Puerto Rico, the U.S. Virgin Islands, Guam, American Samoa, the
Commonwealth of the Northern Mariana Islands, and any territory or
possession of the United States or any political subdivision thereof.
Sec. 185.2 Applicability and scope.
This part:
(a) Applies to the Office of the Secretary of Defense, the Military
Departments, the Office of the Chairman of the Joint Chiefs of Staff,
the Joint Staff, the Combatant Commands, the Office of the Inspector
General of the Department of Defense, the Defense Agencies, the DoD
Field Activities, and all other organizational entities within the
Department of Defense (hereafter referred to collectively as the ``DoD
Components'').
(b) Applies to the Army National Guard (ARNG) and the Air National
Guard (ANG) in title 32 status.
(c) Applies to all DSCA (except the specific forms of DSCA listed
in paragraph (d) of this section), including:
(1) Military community affairs programs or innovative readiness
training (formerly called ``civil-military cooperative action
programs'') (see DoD Directive 1100.20).\1\
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\1\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/html/110020.htm.
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(2) Mutual or automatic aid (see chapter 15A of title 42 U.S.C.).
(3) DoD fire and emergency services programs (see DoD Instruction
6055.06).\2\
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\2\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/html/605506.htm.
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(4) United States Army Corps of Engineers (USACE) activities as the
Department of Defense Coordinating and Primary Agency for the National
Response Framework, Emergency Support Function 3, Public Works
and Engineering.
(5) Activities performed by the Civil Air Patrol in support of
civil authorities when approved by the Air Force as auxiliary missions.
(6) Support provided by the National Guard, in a federally funded
title 32 status to local, State, tribal, and/or Federal civil agencies
when employed by a Governor, or provided under Emergency Management
Assistance Compacts when that support involves use of personnel
operating under the provisions of title 32 U.S.C.
(7) Special Events in accordance with DoD Directive 2000.15 \3\
and/or applicable law.
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\3\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/html/200015.htm.
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(d) Does not apply to the following activities conducted in support
of civil authorities:
(1) Support in response to foreign disasters provided in accordance
with DoD Directive 5100.46.\4\
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\4\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/html/510046.htm.
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(2) Joint investigations conducted by the Inspector General of the
Department of Defense, the Defense Criminal Investigative Service, and
the military criminal investigative organizations with civil law
enforcement agencies on matters within their respective jurisdictions
using their own forces and equipment.
(3) Detail of DoD personnel to duty outside the Department of
Defense in accordance with DoD Instruction 1000.17.\5\
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\5\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/pdf/100017p.pdf.
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(4) Support provided by State Defense Forces and National Guard
activities not covered by paragraph (c)(6) of this section.
(5) Counternarcotics operations.
(6) Support provided by the United States Army Corps of Engineers
when accomplishing missions and responsibilities under Pub. L. 84-99,
as amended.
(7) Intelligence assistance provided by DoD intelligence and
counterintelligence components (see DoD Directive 5240.01,\6\ Executive
Orders 12333 and 13388, DoD 5240.1-R,\7\ and other applicable laws and
regulations).
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\6\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/pdf/524001p.pdf.
\7\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/pdf/524001r.pdf.
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(8) Military community relations programs and activities
administered by the Assistant Secretary of Defense for Public Affairs
(see DoD Directive 5410.18 \8\ and DoD Instruction 5410.19 \9\).
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\8\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/pdf/541018p.pdf.
\9\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/pdf/541019p.pdf.
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(9) Sensitive support in accordance with DoD Directive S-
5210.36.\10\
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\10\ Document is classified and copies maybe requested by
contacting USD(I), USDI.pubs@osd.mil.
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Sec. 185.3 Definitions.
Civil Authorities. See Joint Publication 1-02.\11\
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\11\ Available by downloading at http://www.dtic.mil/doctrine/
jel/new_pubs/jp1_02.pdf.
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Civil Disturbances. See Joint Publication 1-02.
Civil Support. See Joint Publication 1-02. Also known as Defense
Support of Civil Authorities (DSCA).
Defense Domestic Crisis Manager. The DoD official responsible for
overseeing, advising, and making recommendations to the Secretary of
Defense on the use of resources and DoD personnel needed to prevent or
respond to a potential or actual domestic crisis. The Assistant
Secretary of Defense for Homeland Defense and Americas' Security
Affairs (ASD(HD&ASA)) serves as the Defense Domestic Crisis Manager.
Defense Support of Civil Authorities (DSCA). Support provided by
U.S. Federal military forces, National Guard forces performing duty
under title 32, U.S.C., DoD civilians, DoD contract personnel, and DoD
component assets, in response to requests for assistance from civil
authorities for special events, domestic emergencies, designated law
enforcement support, and other domestic activities. Support provided by
National Guard forces performing duty under title 32, U.S.C., is
considered DSCA but is conducted as a State-directed action. Also known
as Civil Support (CS).
Imminently Serious Conditions. Emergency conditions in which, in
the judgment of a military commander or responsible DoD civilian
official, immediate and possibly serious danger threatens the public
and prompt action is needed to save lives, to safeguard public health
or safety, or to prevent or mitigate great property or environmental
damage. Under these conditions, timely prior authority from higher
headquarters to provide DSCA may not be possible before action is
necessary for effective response.
Responsible DoD Civilian. For purposes of DSCA, the head of a DoD
Component (or designee) or other DoD civilian official or National
Guard Federal technician who have authority
[[Page 73898]]
over DoD assets that may be used for a DSCA response.
Special Event. An international or domestic event, contest,
activity, or meeting, which by its very nature, or by specific
statutory or regulatory authority, may require security, safety, and/or
other logistical support or assistance fro the Department of Defense.
Sec. 185.4 Policy.
It is DoD policy that:
(a) This part shall be implemented consistent with national
security objectives and military readiness.
(b) Unless expressly stated otherwise, the provisions of this part
should not be construed to rescind any existing authorities of the
Heads of DoD Components, commanders, and/or responsible DoD civilians
to provide DSCA in accordance with existing laws, Department of Defense
issuances, and Secretary of Defense approved orders.
(c) DSCA is initiated by a request for DoD assistance from a
civilian agency or is ordered by the President or Secretary of Defense.
(d) All requests for DSCA shall be written and include a commitment
to reimburse the Department of Defense. Waivers or exceptions to
reimbursement must be consistent with the law and/or DoD policies. For
assistance provided under paragraph (g) of this section, civil
authorities shall be informed that oral requests for assistance in an
emergency must be followed by a written request at the earliest
available opportunity.
(e) All requests for assistance from civil authorities shall be
evaluated for legality, lethality, risk, cost (including the source of
funding and the effect on the DoD budget), appropriateness, and effect
on readiness.
(f) DSCA plans shall be compatible with the National Response
Framework; the National Incident Management System; all contingency
plans for operations in the locations listed in Sec. 185.1(c) of this
part; and any other national plans (approved by the President or
Secretary of Defense) or DoD issuances governing DSCA operations.
(g) Commanders, (including National Guard Commanders), heads of DoD
Components and/or responsible DoD civilian officials may provide
Immediate Response to a request for assistance from a civilian
authority, under imminently serious conditions. This Immediate Response
Authority is exercised when time does not permit approval from higher
headquarters. Responsible DoD civilian officials may employ the
resources under their control, subject to any supplemental direction
provided by higher headquarters, and provide those resources to save
lives, to safeguard public health or safety, or to prevent or mitigate
great property or environmental damage.
(1) The DoD official directing a response under Immediate Response
Authority shall immediately notify the National Military Command Center
(NMCC), through the chain of command, of the details of the response.
National Guard officials shall inform the NMCC through the National
Guard Bureau. The NMCC will inform appropriate DoD components.
(2) Immediate Response Authority ends when the necessity giving
rise to the response is no longer present (e.g., when there are
sufficient resources available from State, local, and other Federal
agencies to respond adequately), when the initiating DoD or National
Guard official or a higher authority directs an end to the response, or
when an appropriate authority approves a request from another Federal
department or agency based on other authorities. The DoD or National
Guard official directing a response under Immediate Response Authority
shall reassess whether there remains a necessity for DoD to respond
under this authority as soon as practicable but, if immediate response
activities have not yet ended, not later than 72 hours after resources
have been employed.
(3) Support provided under Immediate Response Authority should be
provided on a cost-reimbursable basis where appropriate or legally
required but will not be delayed or denied based on the inability or
unwillingness of the requester to make a commitment to reimburse the
Department of Defense.
(h) Federal military forces shall not be used to quell civil
disturbances or perform civilian law enforcement functions (e.g.,
search, seizure, arrest, and surveillance) unless specifically
authorized by the President or the Secretary of Defense in accordance
with applicable law (e.g., chapter 15 of title 10, U.S.C.).
(i) Only the Secretary of Defense, or a designated representative,
may approve requests from civil authorities for defense assistance
during civil disturbances; defense response to chemical, biological,
radiological, nuclear, and/or high yield explosive events; defense
assets when there is a potential for lethality (unless otherwise
authorized in law or DoD policy); and potentially lethal support of
civilian law enforcement agencies. Lethal support includes: loans of
arms; vessels, or aircraft; or ammunition. It also includes: all
requests for assistance under section 382 of title 10 and section 831
of title 18, U.S.C.; all support to counterterrorism operations; and
all support to law enforcement when there is a potential for
confrontation between law enforcement and specifically identified
civilian individuals or groups.
(j) Only the Secretary of Defense, or a designated representative,
may authorize DoD Components to procure and maintain supplies,
materiel, and/or equipment exclusively for providing DSCA.
(k) Programming and budgeting for DSCA shall be in accordance with
existing laws, Department of Defense issuances, and Secretary of
Defense authorization.
(l) Federal military forces employed for DSCA activities shall
remain under Federal military command and control at all times.
(m) Special event support to non-governmental organizations is a
DSCA activity.
Sec. 185.5 Responsibilities.
(a) The Under Secretary of Defense for Policy (USD(P)) shall
facilitate the coordination of DoD policy governing DSCA with Federal
Departments and Agencies, State agencies, and the DoD Components, as
required.
(b) The Assistant Secretary of Defense for Homeland Defense and
Americas' Security Affairs (ASD(HD&ASA)), under the authority,
direction, and control of the USD(P) exercising policy oversight of
homeland defense activities of the Department of Defense and performing
other duties as directed by the Secretary of Defense shall:
(1) Serve as the principal civilian advisor to the Secretary of
Defense and the USD(P) on DSCA.
(2) Serve as the Defense Domestic Crisis Manager in accordance with
DoD Directive 3020.44.\12\
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\12\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/pdf/302044p.pdf.
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(3) Serve as approval authority for requests for assistance from
civil authorities sent to the Secretary of Defense, except for those
items retained in section 185.4(h) and (i) of this part, or delegated
to other officials. Such matters shall be coordinated with the Chairman
of the Joint Chiefs of Staff. In the absence of the ASD(HD&ASA), the
Principal Deputy Assistant Secretary of Defense for Homeland Defense
and Americas' Security Affairs may exercise the authority of the
ASD(HD&ASA) to approve such requests. This authority may not be further
delegated. The
[[Page 73899]]
Secretary of Defense shall be notified immediately of the use of this
authority.
(4) Develop, coordinate, and oversee the implementation of DoD
policy for DSCA and shall:
(i) Through the Chairman of the Joint Chiefs of Staff as it
pertains to DSCA matters, monitor the activation, deployment, and
employment of Federal military forces (including Reserve Component
forces), the National Guard, DoD civilian personnel, and all
facilities, equipment, fiscal accounts, supplies, and services owned
by, controlled by, or under the jurisdiction of a DoD Component in
response to requests for DSCA and for Department of Defense support to
special events; and provide oversight of DSCA training, exercises, and
resources.
(ii) In coordination with the General Counsel of the Department of
Defense, develop policies and procedures for DSCA support to civil law
enforcement authorities; coordinate long-range policies and procedures
that govern the provision of non-emergency support to civilian law
enforcement agencies; promote Department of Defense cooperation with
public safety agencies; and ensure that assistance is in compliance
with applicable law, Presidential Directives, Executive orders, and
Department of Defense policy.
(iii) Ensure that information relating to all aspects of DSCA
receives the broadest possible dissemination utilizing all approved
media as appropriate and in accordance with Department of Defense
Directive 8320.02.\13\
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\13\ Available by downloading at http://www.dtic.mil/whs/
directives/corres/pdf/832002p.pdf.
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(c) The Assistant Secretary of Defense for Special Operations and
Low Intensity Conflict and Interdependent Capabilities, under the
authority, direction, and control of the USD(P), shall support planning
by the Defense Domestic Crisis Manager during DSCA operations, as
required.
(d) The Under Secretary of Defense (Comptroller)/Chief Financial
Officer shall establish policies and procedures to ensure timely
reimbursement to the Department of Defense for reimbursable DSCA
activities.
(e) The Under Secretary of Defense for Personnel and Readiness
(USD(P&R)) shall:
(1) Assist the ASD(HD&ASA) by providing recommendations, guidance,
and support for all domestic crisis situations or emergencies that may
require health or medical-related DSCA, including situations involving
coordination with the components of the National Disaster Medical
System.
(2) Assist the ASD(HD&ASA) by providing recommendations, guidance,
and support on the use of the Reserve Components to perform DSCA
missions.
(3) Identify, monitor, and oversee the development of integrated
DSCA training capabilities and the integration of these training
capabilities into exercises and training to build and sustain DSCA
readiness.
(f) The Assistant Secretary of Defense for Reserve Affairs, under
the authority, direction, and control of USD(P&R), shall assist the
ASD(HD&ASA) by providing recommendations, guidance, and support on the
use of the Reserve Components to perform DSCA missions.
(g) The Secretaries of the Military Departments shall:
(1) Support DSCA operations as directed and in accordance with this
Directive, and shall ensure the readiness of the Military Departments
to execute plans for DSCA.
(2) Ensure compliance with financial management guidance related to
support provided for DSCA operations, including guidance related to
tracking costs and seeking reimbursement.
(h) The Chairman of the Joint Chiefs of Staff shall:
(1) Advise the Secretary of Defense on the effects of requests for
DSCA on national security and military readiness.
(2) Identify and coordinate available resources for DSCA requests
and release related execute and deployment orders when approved by the
Secretary of Defense.
(3) Incorporate DSCA into joint training and exercise programs in
consultation with the Department of Homeland Security, other
appropriate Federal Departments and Agencies, and the National Guard
Bureau.
(i) The Commanders of Combatant Commands with DSCA responsibilities
in accordance with the Unified Command Plan shall:
(1) Through the Chairman of the Joint Chiefs of Staff, plan and
execute DSCA operations in their areas of responsibility in accordance
with this Directive, and in accordance with their authorities assigned
by the Unified Command Plan and the Forces for Unified Commands
Memorandum.
(2) Incorporate DSCA into joint training and exercise programs in
consultation with the Department of Homeland Security, other
appropriate Federal Departments and Agencies, and the National Guard
Bureau.
(3) Advocate for validated DSCA requests for domestic operations
through the Joint Requirements Oversight Council, subject to section
185.4(j) and (k) of this part, and the Planning, Programming,
Budgeting, and Execution (PPBE) process.
(4) Provide the Secretary of Defense an implementation plan for
ensuring DSCA support is emphasized in command assessments.
(j) The Chief, National Guard Bureau, under the authority,
direction, and control of the Secretary of Defense through the
Secretaries of the Army and the Air, shall:
(1) Serve as the channel of communication on all matters pertaining
to National Guard DSCA activities between the Secretary of Defense and
the Heads of the DoD Components (including the Secretary of the Army
and the Secretary of the Air Force) and the States. Direct liaison
between both entities should occur only in an emergency when time does
not permit compliance with this Directive. In each such instance, the
Chief, NGB, should be informed of the communication.
(2) Annually assess the readiness of the National Guard of the
States to conduct DSCA activities and report on this assessment to the
Secretary of Defense, the Secretaries of the Army and the Air Force,
the USD(P&R), the ASD(HD&ASA), the ASD(RA), the Chairman of the Joint
Chiefs of Staff, and appropriate Combatant Commanders.
(3) Participate in the Joint Staff capability-based planning and
assessments, the Joint Capabilities Integration and Development System,
and the DoD PPBE assessment for all actions pertaining to National
Guard capabilities required for DSCA.
(4) Facilitate and deconflict the planning and use of National
Guard forces among the States to ensure that adequate and balanced
forces are available and responsive for DSCA missions, consistent with
national security objectives and priorities.
(k) The Heads of the DoD Components, in addition to the
responsibilities in paragraphs (g), (h), (i), and (j) of this section,
as applicable, shall:
(1) Ensure that any DSCA-related Department of Defense issuances,
concept plans, interagency agreements, and memorandums of understanding
or agreement with external agencies are in full compliance with this
Directive.
(2) Ensure compliance with financial management guidance related to
support provided for DSCA operations, including guidance related to
tracking costs and seeking reimbursement.
[[Page 73900]]
Dated: November 26, 2008.
Patricia L. Toppings,
OSD Federal Register Liaison Officer, Department of Defense.
[FR Doc. E8-28706 Filed 12-3-08; 8:45 am]
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