Incidents must be managed at the lowest possible jurisdictional level and supported by additional response capabilities when needed. It is not necessary that each level become overwhelmed, or fail, prior to surging resources from another level. Just the contrary, a tiered response will also be a forward-leaning response. Most incidents begin and end locally and are wholly managed at the community level. Many incidents require additional resources or support from across the community, and some require additional support from neighboring communities or the State. A few require Federal support. National response protocols recognize this and are structured to provide additional, tiered levels of support when there is a need for additional resources or capabilities to support and sustain the response and initial recovery. During largescale events, all levels will take proactive actions to respond, anticipating resources that may be required. (DHS, NRF Comment Draft, September 2007, p. 9)