Disclaimer
The following description of the
Incident Command System (ICS) is a summary for use by Amateur Radio operators
working on ARES activities. This summary is -only- to provide Hams with
a basic understanding of terminology and concepts associated with ICS and
NOT to replace formal ICS training.
Understand that the structure defined
in this document is for large events. In smaller events, a subset of the
full structure will likely be used.
ICS Overview
Incident Command System is a management
tool designed to assist anyone who has the responsibility for the successful
outcome of an incident. We will define an incident as any planned or unplanned
occurrence or event, regardless of the cause, which requires action by
emergency service personnel to prevent or minimize loss of life or damage
to property and/or natural resources.
Emergency services professionals
agree that too often there is considerable confusion in the operational
performance at major incidents. On large structure fires, floods, forest
fires, hazardous materials spills and tornados, the ability to manage the
situation effectively seems to decrease in direct proportion to the number
of agencies involved.
Problems arise because of different
operating procedures, terminology, and/or incompatible equipment. The problem
is compounded when different types of agencies such as fire service, law
enforcement, rescue groups, health departments, and forest services all
become involved at one incident. When several levels of government add
to the mix, the potential for confusion is critical.
It is not uncommon for each agency
to have a very limited understanding of the procedures and terminology
of the other agencies involved, yet the jurisdictions and authority at
the scene may overlap extensively. Too often, the person in charge is unable
to communicate a strategy or plan of action. As they arrive, the various
agencies have difficulty determining their duties and where they fit into
the management structure.
What does ICS do?
The Incident Command System (ICS)
is a standardized method of managing emergency incidents. It is based on
a common organizational structure, common terminology, and common operating
procedures.
ICS will manage small, routine, daily
incidents as well as the large, complex multi-jurisdictional disasters
everyone dreads. ICS reduces confusion and uncertainty in the early phases
of an incident, thereby increasing the efficiency and effectiveness of
mutual aid while increasing safety.
Within ICS, the transition from a
routine incident to a major emergency is orderly and requires a minimum
of adjustment for any agency. In its largest application, it may include
several thousand people without compromising effective supervision.
ICS does not infringe on
the daily routine, responsibilities or authority given each agency by statute.
But, if a transfer of authority is necessary as conditions change, ICS
smoothes the transition since organizational structure and lines of authority
are clearly defined.
On-scene operations often need coordination
from the affected governments. This support includes delegation (and definition)
of authority to the Incident Commander, and planning/logistical support
from all agencies involved. ICS compliments interagency planning and logistics
through the Multi-Agency Coordinating System (MACS).
ICS Structure
The Incident Command System has
two halves. These halves are interrelated and both are critical to the
successful outcome of the incident.
Management by Objectives
Four essential steps used in every
incident, regardless of the size or complexity are:
-
Understand policy, procedures and statutes
-
Establish incident objectives
-
Select appropriate strategy
-
Apply tactics most likely to accomplish
objectives (assign correct resources and monitor results)
The complexity of the incident will
determine how formally the management by objectives portion will be handled.
In a small, simple incident, the process can be handled by verbal communication
between appropriate people. As the incident becomes more complex many of
the differences in individual objectives will be resolved by documentation
of the incident objectives. The ICS 201 document describes the process
that allows this to happen in a systematic way.
Organizational Structure
The ICS structure begins with the
Incident Commander (IC). The person designated IC is responsible for the
management of the incident and starts the process by setting incident objectives.
This person may do all functions without aid but will usually delegate
responsibilities to others in the organization. The IC still has overall
responsibility for the incident, regardless of duties delegated.
It is common to have an incident
cross-jurisdictional boundaries. Unified Command is the ICS process that
allows the multiple jurisdictions to develop unified objectives and strategies
for the incident. This is accomplished without any loss of authority, responsibility
or accountability.
Under Unified Command:
There is one IC for any event. There
is not an "IC for ........ and an IC for .........".There is ONE
Incident Commander.
The incident will be handled under a
single coordinated Incident Action Plan (IAP).
One operations Section Chief will have
responsibility for implementing the Incident Action Plan (IAP).
One Incident Command Post (ICP) will
be established.
As the IC fills positions in the organizational
structure the positions will fall into five areas of management function:
Command:
The IC is responsible for all incident
or event activity. The incident size/complexity will determine which other
management functions will be filled. The command staff assists the IC and
reports directly to the IC.
Operations:
Operations is responsible for directing
the tactical actions to meet incident objectives. There is only one Operations
Chief (if activated by the IC) per operational period but that position
may have deputies as needed. The Operations Section commonly uses Branches,
Divisions, Groups, Task Forces and Strike Teams to maintain unity, chain
of command and span of control.
Planning:
Responsible for collection, evaluation
and display of incident information. It also maintains status of resources,
preparing the IAP and incident related documentation.
Logistics:
Is responsible for providing adequate
services and support to meet all incident or event needs.
Finance/Administration:
Responsible for tracking incident
related costs, personnel and equipment records and administering procurement
contracts associated with the incident or event.
Each of these functional areas can
expand as needed into additional organizational units with further delegation
of authority. As positions are filed, the radio designations are replaced
with ICS position titles.
The ICS organization at any time
should reflect only what is required to meet planned tactical objectives.
The size of the current organization and that of the next operational period
is determined through the incident action planning process.
A number of organizational elements
may be activated in the various sections without activating sectional chiefs.
Each activated element must have a person in charge of it. A single supervisor
may initially be in charge of more than one unit. Elements that have been
activated and are no longer needed should be deactivated to decrease organizational
size.
The greatest challenge for the IC
is to maintain control of the resources and to keep open communication
both up and down the organizational structure. The principles of Unity
of Command, Chain of Command and Span of Control allow this to take place.
These three principles are also critical for maintaining the safety of
incident personnel.
UNITY OF COMMAND means that every individual
has one designated supervisor, knows who that person is and how to contact
them.
CHAIN OF COMMAND means that there is
an orderly line of authority within the ranks of the organization with
lower levels subordinate to and connected to higher levels. In most incidents,
chain of command will consist of:
Command
Resource: as incidents expand,
the chain of command expands through an organizational structure that can
consist of several layers.
Command
Sections
Branches
Division/Group
Units
Resource
SPAN OF CONTROL relates to the number
of individuals one supervisor can effectively manage. In ICS the span of
control for any supervisor falls in the range of three to seven, with five
being considered optimal. Span of control is accomplished through timely
use of delegations and good resource management.
INCIDENT DOCUMENTATION:
INCIDENT ACTION PLAN (IAP)is
to provide all incident supervisory personnel with direction for future
actions. It may be written or verbal but written plans are preferred. It
is important to use written IAPs when:
Two or more jurisdictions are involved
The incident will overlap major changes
in personnel or go into a new operational period
There is extensive or full activation
of the ICS organization
COMMUNICATIONS PLAN can be very
simple and given verbally or may be quite complex and form a portion of
the written Incident Action Plan. Among other items it lists the frequencies
to be used for the incident.
ICS Command Structure:
INCIDENT COMMANDER
Reporting are:
-
Command Staff
-
Safety Officer
-
Liaison Officer
-
Public Information Officer
-
Logistics Chief
-
Operations Chief
-
Staging Area Manager
-
Fire
-
Law Enforcement
-
Emergency Medical Service
-
Public Works
-
Emergency Medical Service Branch
-
Triage Group
-
Treatment Group
-
Transportation Group
-
Fire Service Branch
-
Suppression Group
-
Rescue Group
-
Rehabilitation Group
-
Law Enforcement Branch
-
Investigations Group
-
Perimeter Group
-
Search Division
-
Team 1
-
Team 2
-
Team 3
-
Tactical Response
-
Public Works Branch
-
Diking
-
Debris Clearance/Street repairs
-
Utilities, Electrical
-
Utilities, Gas
-
Utilities, Water
-
Telephone
-
Planning Chief
-
Resources Unit
-
Situation Unit
-
Documentation Unit
-
Demobilization Unit
-
Technical Specialists
-
Finance Chief
-
Time Unit
-
Procurement Unit
-
Compensation Unit
-
Cost Unit
Position Objectives:
Each person within the ICS structure
is charged with accomplishing specific tasks in support of the overall
effort. These tasks, for incident managers are:
Incident Commander(IC)
-
Assess the situation
-
Establish incident objectives and overall
plan
-
For the first hour
-
For hours two - eight
-
For extended operations
-
Fill necessary ICS functions
-
Brief staff
-
Monitor staff and revise plans as necessary
-
Handle requests for additional resources
and release resources
OPERATIONS CHIEF
Obtain briefing from IC
Establish operational objectives per
incident plan
For the first hour
For hours two - eight
For extended operations
Develop tactics to accomplish objectives
Divide incident by geographic reference
and/or function
Appoint and brief Branch/Division/Group
leaders
Supervise operations
Determine and acquire resources from
Branch/Division/Group leader input
STAGING AREA MANAGER
Determine location of staging area
Establish staging area layout
Determine support/service needs for
staging area
Report status of equipment and personnel
in staging area to the Operations Chief
Dispatch personnel and equipment from
staging area to the incident as necessary B.
BRANCH/DIVISION/GROUP LEADERS
Assess the situation
Establish incident objectives for Branch/Division/Group
For the first hour
For hours two - eight
For extended operations
Develop tactical plan to accomplish
objectives
Determine time and resource requirements
Determine logistical requirements
Requests needs from Operations Chief
PLANS CHIEF:
Obtain briefing from IC
Establish necessary positions within
function
Supervise preparation of Incident Action
Plan (IAP)
Develop alternative strategies
Provide periodic predictions on incident
potential
Supervise planning section units
SITUATION INFORMATION CENTER
-
Compile incident situation information
-
Display incident status on maps, boards,
etc.
RESOURCE STATUS UNIT
-
Compile incident resource information
-
Display resource utilization/availability
-
Check in resources as they arrive
DOCUMENTATION UNIT
-
Document complete incident
LOGISTICS CHIEF
Obtain briefing from IC
Establish logistics section positions
as necessary and do briefings as necessary
Identify service and support needs for
the duration of the incident
Coordinate and process requests for
resources
Advise IC and staff of current service
and support capability
Prepare "Service and Support" portions
of the IAP
Etc. etc. etc. - The remainder of the
objectives will not normally be of interest to ARES/RACES and so have been
omitted from this document.
Incident Command System and Amateur
Radio:
The Incident Command System (ICS)
was developed as a result of wildland fires in California in the 70's.
Many agencies at the local, state
and federal level were tasked with responding and providing some level
of assistance to this type of incident, and it became painfully evident
that differences in terminology and the lack of a unified command structure
created confusion, and prevented a coordinated approach to managing the
incident.
A Federal/State/Local task force
was created to develop a system for the management of these wildfires,
and it expanded to include any incident.
A few years later, ICS was formalized.
Over the past two decades, it has been implemented throughout the US and
Canada and today is the standard emergency response framework for managing
incidents of any size.
The primary components of ICS are:
Common Terminology
Multi-Jurisdictional Unified Command
Modular Organization
Integrated Communications
Manageable Span of Control
As Amateur Radio groups continue to
work more closely with the different Public Service Agencies, they may
be asked to function within the ICS structure. It is incumbent upon Amateur
Radio leadership, and, to a lesser degree, all Amateur Radio operators
to understand how Amateur Radio fits into ICS.
ICS does not seek to alter the way
any unit (including Amateur Radio) performs its internal function. ICS
does not dictate how the police does its policing, how firefighters fight
fires, nor how Amateur Radio units accomplish their tasks. Existing Amateur
Radio methods and procedures remain unchanged. ICS does provide an organization
and reporting structure, with a clearly defined chain of command and span
of control.
The elements of ICS are discussed
in the detailed ICS description in the first portion of this web page.
While the ICS structure might look
a bit daunting at first, it should be noted that this structure allows
for the management of any incident, regardless of size. All tasks may
not be needed at every incident. ICS allows for the expansion of
the organization as needs dictate, to maintain a span of control between
3 and 7 (optimal of 5) subordinates per supervisor.
