2.1. Purpose and Objectives

The Emergency Operations Plan (EOP) establishes the overall framework for integrating and coordinating emergency response and initial recovery activities across all levels of government, volunteer organizations, and the private sector in the State of Maine. It serves as the primary and overarching plan for managing emergencies and disasters at the state level, detailing the coordinating structures and processes that fulfill response and recovery goals. It provides a flexible, all-hazards framework that conforms to the National Incident Management System (NIMS) and National Response Framework and aligns with plans at the county, state, and federal levels. 

Developed from the planning process outlined in FEMA's Comprehensive Preparedness Guide 101 (CPG-101), the EOP accomplishes the following objectives:

• Assigns responsibilities to agencies, organizations, and individuals for specific actions during an emergency.
• Details methods and procedures that emergency management personnel use to assess emergencies and take appropriate actions to save lives, reduce injuries, prevent or minimize property damage, and protect the environment.
• Identifies the responsibilities of county, state, non-governmental, volunteer, private sector, and federal agencies during emergencies or disasters.
• Establishes lines of authority and coordination for the management of an emergency or disaster.
• Coordinates mutual aid and federal assistance to supplement state resources.

2.2. Scope

The Maine EOP represents the state’s integrated, comprehensive plan for Emergency Operations, Recovery, and Continuity of Government. It guides the state’s response and recovery operations and applies to all hazards the state faces, regardless of cause, location, or magnitude. By being "threat and hazard agnostic," the plan ensures that the state can effectively support a response to and recovery from any emergency or disaster.

The EOP applies to state-level activities during incidents, emergencies, and disasters, including large-scale planned events that require multi-agency coordination. It applies to state agencies and personnel, as well as organizations and individuals operating under or in support of state-managed emergency operations. The EOP also functions as a reference document for local jurisdiction plans.

This plan integrates operational planning with high-level implementation procedures that are applicable to all threats and hazards. Detailed implementation plans and procedures are further developed and refined as part of SEOC Incident Action Planning during a specific incident.
The EOP does not replace agency-established procedures for smaller-scale emergencies. Instead, it coordinates the response and mobilizes resources for emergencies that require the involvement of multiple agencies and organizations and pose major risks to life and property. State assistance provided to cities and towns includes personnel, equipment, facilities, materials, and subject matter expertise.

Assistance will be prioritized in the following manner:

• Life safety
• Protection of property
• Protection of the environment

This plan should be read, understood, and regularly exercised during non-emergency conditions. It does not replace an organization’s responsibility to develop and validate its own emergency plans and Standard Operating Procedures (SOPs).

All references to disaster-impacted communities are inclusive of: individuals with disabilities and others with access and functional needs; individuals from racially and ethnically diverse backgrounds, including people with Limited English Proficiency; seniors, children, and members of traditionally underserved populations to include those who are economically or transportation disadvantaged; pregnant women; individuals who have chronic medical conditions; those with pharmacological dependency; service and companion animals, household pets, livestock, and research animals; and rural and geographically isolated communities.

2.3. Situation

Emergency management in the State of Maine relies on a tiered, coordinated structure based on state law, with a strong emphasis on county autonomy. MEMA provides "leadership, coordination and support" across the four phases of emergency management: mitigation, preparedness, response, and recovery. Below the state level are the 16 County Emergency Management Agencies (CEMAs), which serve as the intermediary layer between the state and county governments. These CEMAs provide support, coordination, and resources to the municipalities within their jurisdiction, which maintain responsibility for their own emergency planning and initial response.

Maine’s Home Rule laws, defined in Title 30-A, Chapter 111, impact emergency management operations within the state. This legal framework grants municipalities significant autonomy in local governance, including emergency management. This emphasizes that the state's role is to provide a supportive and coordinating function, ensuring that county emergency plans and response efforts integrate into the broader statewide system, but respecting local authority.

2.4. Hazard Environment

Maine is exposed to numerous natural and human-caused hazards, as detailed in the 2023 Maine State Hazard Mitigation Plan. A recent 2025 State Hazard and Threat analysis identified that the state possesses a particular vulnerability to a range of hazards, including flooding, cyber-attacks, and extreme winter weather. Many hazards, such as coastal storms and hurricanes, often produce a cascade of events that amplify their impact. The state's aging housing stock and the expansion of the wildland-urban interface also increase vulnerability to events like wildfires. For a complete and updated analysis of these threats and Maine's mitigation strategy, refer to the 2025 State Hazard and Threat Analysis and the 2023 Maine State Hazard Mitigation Plan, which provides a strategic guide for reducing or eliminating vulnerabilities. 

2.5. Planning Facts and Assumptions

Within the context of this plan, facts represent established, verifiable pieces of information that serve as a foundation for the plan. Assumptions are conditions accepted as true without proof, which are necessary to fill in gaps where specific facts or future conditions are unknown.

FACTS

General Planning 

• The EOP is an all-hazards plan applicable to all incidents, regardless of cause or hazard.
• The planning process builds relationships and a common understanding among stakeholders.
• A disaster can occur with little or no warning and can escalate more rapidly than any single county response organization or jurisdiction can handle.
• A single location or community can be subject to more than one emergency at a time.
• An emergency can affect multiple jurisdictions at once, requiring communication and coordination across boundaries.
• Communities are diverse and include people with access and functional needs, children, and those with household pets or service animals.

Response and Resource Management

• Local and county governments manage most emergencies, utilizing resources within their jurisdictions.
• When an incident occurs, local and county governments use their response resources first, supplemented by mutual aid and/or private sector contracts.
• Once an emergency exceeds jurisdictional resource and response capabilities, that jurisdiction requests assistance from the next higher level of government.
• Shortages of support personnel and equipment can be expected during a high-risk event.
• Normal suppliers may not deliver goods and services in a timely manner.
• When an incident affects state property, the responsible state agency uses its own resources and establishes communications with the SEOC.
• Timely and accurate public communication manages rumors and misinformation.

State and Federal Coordination

• Any references to departments or agencies in this plan are state agencies unless otherwise noted.
• Requests for Maine National Guard assets to support state missions are coordinated through MEMA.
• Federal assistance can be requested to support state and county efforts if an incident exceeds state capabilities. This assistance will be provided through a Presidential Emergency and/or Major Disaster Declaration (i.e., Stafford Act Declaration) or through select federal agencies under their own authorities in specific scenarios.
• Resources from other states or the federal government may not be available for an extended period due to the magnitude of the incident.
• Planning efforts are based on the fact that federal assistance may not always be available.
• State agencies, FEMA, and federal Emergency Support Functions, if activated, will work together to coordinate state and federal resources.
• Recovery operations begin during the response phase, can run concurrently with response operations, and can last for years.

ASSUMPTIONS

Communication

• Communication systems, including cellular and internet networks, may be disrupted or overloaded and will likely be unreliable or non-existent in remote areas. This requires the use of redundant or alternative communication methods like satellite phones or amateur radio.
• Public information and emergency alerts will be disseminated through multiple channels, including traditional media, social media, and formal alert systems

Communities and the Public

• The public may not immediately follow official guidance, and spontaneous response actions, both positive and negative, may occur.
• A significant number of people may require medical attention, potentially overwhelming existing healthcare facilities.
• Planning and response efforts must account for the unique needs of Maine's older population, including a higher reliance on medical equipment and limited mobility.
• The plan must account for a significant seasonal population increase, which will impact communication, resource allocation, and evacuation strategies.

Infrastructure

• Maine has a high probability of severe winter weather events that will cause prolonged power outages and impassable roads, as well as the potential for wildfires in heavily forested areas during dry periods.
• Critical infrastructure, including power, water, and gas, may sustain damage or fail, impacting life safety and operations.
• Transportation routes may be blocked, restricted, or impassable, which could delay emergency response and evacuation efforts.
• Facilities and buildings may sustain damage, rendering critical infrastructure or other areas unusable.

Response and Recovery

• All stakeholders will cooperate and coordinate effectively.
• Due to low population density and large geographic areas, emergency response times will be significantly longer, necessitating a more robust use of mutual aid agreements.
• A portion of key personnel and responders may be unavailable due to personal circumstances.
• Response efforts will heavily rely on volunteer fire departments and first responders, particularly in rural areas.
• In a “no-notice” incident, county resources may sustain damage and potentially become unavailable to support evacuation or commodities distribution, which requires immediate state assistance.

2.6. Legal Authority

This section lists the legal mandates, executive orders, and binding agreements that provide the basis for the legal framework of the EOP.

2.6.1.    State Authorities

Emergency management authorities for the State of Maine are primarily codified in the Maine Revised Statutes, Title 37-B: Defense, Veterans and Emergency Management, Chapter 13: Maine Emergency Management Agency. These authorities collectively create a hierarchical system where the Governor exercises ultimate control, MEMA provides state-level coordination and support, and county agencies are responsible for developing and implementing plans at the community level. For the purposes of clarifying specific state-level roles and responsibilities, individual items of note are further detailed within this section. 

• Executive Orders
  • Executive Order No. 07 FY 06/07, an order designating the National Incident Management System as the basis for all incident management in the State of Maine.
  • Executive Order No. 2 FY 89/00, Civil Emergency Planning.
  • Governor’s Executive Order No. 22 FY 11/12, dated August 30, 2011.
• Maine Revised Statutes
  • Title 25, Chapter 252
  • Title 37-B, Chapter 13
  • Title 37-B, Subchapter 3-A
  • Title 37-B, Subchapter 4
  • Title 37-B, Subchapter 5
  • Title 38, Chapter 3, Subchapter 1
• Inter-Jurisdictional Agreements
  • Memorandum of Understanding between the State of Maine and the American National Red Cross.
  • Statewide Mutual Aid Agreement.

2.6.1.1.    The Governor of Maine

The governor holds the highest authority during a disaster or emergency. Powers are outlined in detail in 37-B MRS §741, which include:

• Control During Emergencies: Authority to assume direct operational control over all or any part of the emergency management and public safety functions within the state.
• Emergency Proclamation: Power to declare a state of emergency, which activates emergency plans and authorizes the deployment and use of resources. This declaration can be issued orally and must be filed with the Secretary of State within 24 hours.
• Suspension of Statutes: Suspend or alter state statutes during a declared emergency to remove impediments to response and recovery.
• Authority to Act: Make and rescind orders, procure supplies and equipment, and direct the evacuation of populations. Enter into mutual aid arrangements. 

2.6.1.2.    The Maine Emergency Management Agency (MEMA)

MEMA is the state-level agency responsible for coordinating emergency management activities. Its duties are laid out in 37-B MRS §701 and 37-B MRS §704.

• Director's Role: Represents the Governor in all matters related to emergency management and maintains a direct line of communication with the Governor during an emergency.
• Coordination: Coordinate the activities of all emergency management organizations within the state and maintain liaison with federal, other state, and county agencies.

2.6.1.3.    Municipal, County and Regional Emergency Management Agencies

Authority for emergency management at the county level is established in the statutes.

• Organizational Structures: Each county shall maintain a county emergency management agency or create regional emergency management agencies that serve the member counties. Municipal, county, and regional emergency management agencies are authorized to be created to perform local emergency management functions (37-B MRS §781).
• Plan Development: Agencies are required to prepare and maintain a current disaster emergency plan for their jurisdictions, which must be approved by the local governing body and aligned with MEMA’s guidance (37-B MRS §783).

2.6.1.4.    Mutual Aid Agreements

The statutes provide a legal framework for mutual aid.

• Interstate Compacts: Maine is a member of several compacts, including EMAC (37-B MRS Chapter 16) and the International Emergency Management Assistance Compact, which facilitate resource sharing with other states and Canadian provinces.
• First Responder Agreements: The Maine First Responders State-wide Mutual Aid Agreement provides a mechanism for local first responders to assist one another.

2.6.2.    Federal Authorities

• Americans with Disabilities Act
• Chemical Facility Anti-Terrorism Standards
• Clean Water Act & Clean Air Act
• Disaster Relief Appropriations Act
• Emergency Planning and Community Right-to-Know Act
• Homeland Security Act of 2002
• Pets Evacuation and Transportation Standards Act
• Post-Katrina Emergency Reform Act
• Presidential Policy Directive-8
• Public Health Service Act
• Robert T. Stafford Disaster Relief and Emergency Assistance Act
• Sandy Recovery Improvement Act
• Title 44 Emergency Management and Assistance (CFR 44)

EOP NAVIGATION

EOP Update Home Page
Section 1: Introduction
Section 2: Foundational Elements
Section 3: Concept of Operations
Section 4: Responsibilities
Section 5: Emergency Comms Systems
Section 6: Admin, Finance, and Logistics
Section 7: Maintenance and Distribution
Section 8: References
Section 9: Acronym Reference List

Annex A: Risk Register
Annex B: SEOC Procedures
Annex C: Incidents/Hazards
Annex D: Coordination/Administrative
Annex E: Continuity of Operations
Annex F: Evacuation
Annex G: Mass Fatality
Annex H: Distribution Management