California Multi-Agency Coordination System: MAC Group and Organization, Exercises of Communication

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California Statewide

Multi-Agency Coordination System

Guide

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Edmund G. Brown Jr. Governor

Mark S. Ghilarducci Secretary

February 2013

C A L I F O R N I A E M E R G E N C Y M A N A G E M E N T A G E N C Y

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VI.

Table of Contents

PART ONE INTRODUCTION

PURPOSE ........................................................................................................................

BACKGROUND .............................................................................................................

Exhibit 1: Allocating Scarce Resources ..................................................................... AUTHORITIES ...............................................................................................................

PART TWO MULTI-AGENCY COORDINATION SYSTEM

MAC SYSTEM OVERVIEW .........................................................................................

Exhibit 2: Field vs. Direct Support Multi-Agency Coordination.............................. MAC SYSTEM ELEMENTS .......................................................................................... Exhibit 3: Multi-Agency Coordination System Elements.......................................... A. Facilities ...................................................................................................................... B. Equipment ................................................................................................................. C. Personnel ................................................................................................................... D. Procedures ................................................................................................................. E. Communications ........................................................................................................ MAC SYSTEM FUNCTIONS ........................................................................................ Exhibit 4: Multi-Agency Coordination System Functions ........................................ A. Situation Assessment .................................................................................................. B. Incident Prioritization................................................................................................. Exhibit 5: Incident Prioritization Methodology........................................................ C. Scarce Resource Allocation ....................................................................................... D. Support for Policy Level Decision Making .............................................................. E. Information Sharing.................................................................................................... F. Coordination with Elected and Appointed Officials .................................................. G. Coordination between MAC System Components ....................................................

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California Statewide Multi-Agency Coordination System Guide

PART ONE INTRODUCTION

I.

II.

PURPOSE

The California Statewide Multi-Agency Coordination System (MAC System) Guide is a tool to assist emergency managers with prioritizing multiple emergency incidents for the allocation of scarce resources.

BACKGROUND

Multi-agency coordination occurs whenever personnel from different agencies that have legal responsibilities to abate the emergency are involved in the response. While informal arrangements among agencies can be made to work, it is more effective to establish MAC System procedures in advance in a planned and organized fashion.

The Multi-Agency Coordination System (MAC System) is one of the four pillars of California’s Standardized Emergency Management System (SEMS), which are the Incident Command System (ICS), multi-agency coordination system, the Master Mutual Aid system, and the operational area concept (all listed in the Emergency Services Act, Section 8607).

The SEMS Regulations defines multi-agency or interagency coordination as “the participation of agencies and disciplines involved at any level of the SEMS organization working together in a coordinated effort to facilitate decisions for overall emergency response activities, including the sharing of [scarce] resources and the prioritization of incidents.” The term multi-agency or interagency coordination, as defined in the SEMS Regulations, will be shortened to multi-agency coordination in this Guide.

The California Statewide Multi-Agency Coordination System Guide focuses on MAC Groups that are convened to address incidents in which resources are considered scarce and decision-makers need to prioritize their allocation in order to best serve the communities in need. The guide is based on the California FIRESCOPE MACS Group Procedures Guide (MACS 410-1). While the FIRESCOPE MACS Group Procedures Guide focuses on the needs of the fire service, this guide emphasizes the use of the MAC System to support all- hazards based decision making in an Emergency Operations Center environment.

The guide is organized to provide an overview of the MAC System, the composition of the MAC Group and its relation to the Emergency Operations Center (EOC) organization.

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In the context of this guide, a Multi-Agency Coordination System provides the architecture to support coordination for incident prioritization, scarce resource allocation, communications systems integration, and information coordination. The MAC System assists agencies and organizations to respond to an incident. The elements of the MAC System include facilities, equipment, personnel, procedures, and communications.

A Multi-Agency Coordination Group may be convened by an EOC Director or other authority to establish priorities among multiple competing incidents, provide coordinated decision making for resource allocation among cooperating agencies, harmonize agency polices, and offer strategic guidance and direction to support incident management activities. MAC Groups convened to prioritize incidents for the allocation of scarce resources should consist of administrators or executives, or their designee, who are authorized to commit agency resources and funds. A MAC Group may also be referred to as a multi-agency committee, emergency management committee, interagency policy group, or as otherwise defined by the MAC System.

Exhibit 1: Allocating Scarce Resources illustrates the challenge of providing assistance to multiple requesting agencies.

Exhibit 1: Allocating Scarce Resources

Resources (Supply)

Requests (Demand)

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IV.

PART TWO MULTI-AGENCY COORDINATION SYSTEM

MAC SYSTEM OVERVIEW

Multi-agency coordination means the participation of agencies and disciplines involved at any level of the SEMS organization working together in a coordinated effort to facilitate decisions for overall emergency response activities, including the sharing of critical resources and the prioritization of incidents. Local and state agencies utilize multi-agency coordination as part of the SEMS to coordinate multiple jurisdiction or multiple agency operations. Multi-agency coordination occurs at an EOC when multiple agencies are working together to support incident needs.

First responders successfully utilize multi-agency coordination whenever multiple agencies respond to an incident, through Unified Command. Unified Command provides multi- agency support and coordination when an incident grows in complexity or multiple incidents occur in the same period.

Exhibit 2: Field vs. Direct Support Multi-Agency Coordination illustrates how multi- agency coordination may evolve from on-scene to off-scene support.

Exhibit 2: Field vs. Direct Support Multi-Agency Coordination

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A. Facilities

When activating the EOC organization or convening a MAC Group, consideration is given to how much space is needed within a given building as well as the need for infrastructure support. The facility should be able provide adequate conference rooms, individual workspace with telephones, computer and internet capabilities for agency representatives.

B. Equipment

Furniture, computers, internet access, telephones, video and teleconferencing capability, electronic and static display equipment, televisions, and vehicles to deliver the equipment should be available. Service, support, and maintenance considerations must also be addressed to ensure availability of the needed equipment items. Routine maintenance schedules, replacement of communications equipment, and equipment budgeting should be included in planning. Inspections, testing, and operations of equipment not used for extended periods of time should occur to ensure reliability is maintained.

C. Personnel

The emergency organization or MAC Group must employ personnel with the knowledge, skills, abilities and authorities to accomplish the objectives at hand. EOC personnel may consist of authorized agency representatives responsible for coordinating activities in support of field operations. Personnel convened as part of a MAC Group that is tasked to prioritize incidents and allocate scarce resources may consist of agency administrators or executives, or their designees, who are authorized to commit agency resources and funds to support emergency operations.

D. Procedures

Procedures help to define how organizations will work together in the MAC System. Procedures include processes, protocols, agreements and business practices that describe the activities, relationships, and support the ability of the MAC System to function. MAC Group operating procedures might include concept of operations, functional checklists, instructions for using forms, how to prioritize incidents, or other protocols that are beneficial for managing and participating in multi-agency coordination.

Coordination processes, procedures, protocols, and agreements should be stressed during training and demonstrated through regular exercise and testing programs.

E. Communications

Communication strategies should be established to enhance information flow to involved agencies and jurisdictions. This includes both protocols and interoperable communications capabilities. Common terminology, standards and procedures should be established and detailed in plans and agreements.

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VI. MAC SYSTEM FUNCTIONS

The use of the MAC System promotes the scalability and flexibility necessary for a coordinated response during large and escalating incidents. The system supports the management and coordination of resources and information above the field level. This helps ensure that those involved in the support and coordination of policy level decision making have a common operating picture (COP).

Exhibit 4: Multi-Agency Coordination System Functions summarizes the functions of a multi-agency coordination system.

Exhibit 4: Multi-Agency Coordination System Functions

This list of functions originated in the National Incident Management System (December 2008).

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Exhibit 5: Incident Prioritization Methodology

C. Scarce Resource Allocation

The third MAC System function involves implementing the incident priority list in order to allocate available scarce resources. A three-step process can be used to address this activity:

Step 1: Identify and List the Requested Scarce Resources

1.1 Consult with staff coordinating requests for assistance. 1.2 Gather and describe the requested resources that are considered scarce. 1.3 List the number of units or single resources being requested.

Step 2: Identify the Incidents / Jurisdictions Requesting Assistance

2.1 Identify the incidents / jurisdictions that are requesting assistance. 2.2 Include contact information for follow up coordination.

Step 3: Identify the Jurisdiction / Agencies with Available Resources

3.1 List the jurisdictions / agencies with resources that meet the requested need. 3.2 Each assisting jurisdiction / agency should list the number of committed and available resources within their authority. 3.3 Assign available resources based on the established priority list. 3.4 Document if unable to fill (UTF) the request and coordinate with the EOC to request assistance from other sources as appropriate.

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D. Support for Policy Level Decision Making

A fourth MAC System function involves assisting the EOC Director and other officials with policy-level decision making and interagency coordination. Incidents sometimes require short-term modification of, or relief from, specific policies, procedures, and protocols. The MAC System serves as a tool for building consensus on decisions that address the concerns of all group members as closely as possible.

E. Information Sharing

By virtue of the situation assessment, personnel in the EOC or MAC Group share information on incidents within their area of responsibility, as well as provide agency / jurisdictional contacts for media and other interested organizations.

Incident information is coordinated and disseminated for both internal and external use. Internal dissemination may include participating MAC Group agencies, EOCs, private industry and critical infrastructure partners, other federal, state, tribal, local, and volunteer agencies, elected and appointed officials and Public Information Officers (PIO). External dissemination includes sharing information with the news media through a Joint Information System (JIS) / Joint Information Center (JIC).

F. Coordination with Elected and Appointed Officials

Keeping elected and appointed officials at all levels of government informed is another function of the system. Maintaining the awareness and support of these officials and decision-makers, particularly those from jurisdictions within the affected area, is extremely important, as scarce resources may need to be moved to a higher priority incident.

Elected and appointed officials may participate in MAC System activities and should have a clear understanding of their roles and responsibilities for successful emergency management and incident response. These officials can include administrative and political personnel, as well as department or agency administrators/executives who have leadership roles in a jurisdiction, and legislators and chief executives, whether elected (e.g., governors, mayors, sheriffs, tribal leaders, and county executives) or appointed (e.g., county administrators and city managers).

Elected and appointed officials may also be called upon to help shape and revise laws, policies, and budgets to aid in preparedness efforts and to improve emergency management and incident response activities.

G. Coordination between MAC System Components

A critical part of the MAC System is outlining how each component (SEMS level EOCs and MAC Groups) communicates and coordinates with each other. Gaps or disconnects can negatively impact scarce resource support to emergency operations in the field.

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VII.

VIII.

PART THREE MULTI-AGENCY COORDINATION GROUPS

MAC GROUP OVERVIEW

Multi-agency coordination may occur within an Emergency Operations Center or at a site such as a FIRESCOPE MAC Center or may be accomplished via telecommunications. In the general context, a MAC Group provides for collaboration among cooperating agencies. A MAC Group may be established at any level (e.g., local, Operational Area, Regional, or State) or within a specific discipline (e.g., fire services or law enforcement). MAC Groups may also be known as multi-agency committees, emergency management committees, or as otherwise defined by the Multi-Agency Coordination System.

For the purpose of this guide, the MAC Group will be discussed in the context of its role in establishing priorities among incidents for the allocation of scarce resources. The MAC Group members should include Agency Administrators/Executives, or their designees, from an agency responsible to abate the emergency and are authorized to commit agency resources and funds. Secondary roles and responsibilities for this MAC Group may include synchronizing agency policies and providing strategic guidance in support of incident management activities.

Building consensus on each of the above-mentioned policy decisions allows the MAC Group members to abate emergencies without having their statutory authorities compromised. Reaching consensus does not necessarily imply that the agreed-upon decision is every group member’s first choice, but it represents the best decision that all members can support and collectively serves the emergency management process.

ROLES AND RESPONSIBILITIES

MAC Group responsibilities include:

1. Prioritizing incidents or jurisdictions based on the following factors:

a) Life and Safety Threats b) Property/Infrastructure Damage Threats c) Potential for Loss and Resource Issues d) Incident Complexity and Duration

2. Providing scarce resource allocation decisions or recommendations to the EOC.

MAC Group Representatives must have full authority to represent their agency to:

1. Prioritize incidents. 2. Establish scarce resource allocation priorities. 3. Commit to expenditures of their organization’s funds and utilization of resources.

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4. Provide information regarding resources including:

a) Ensure that their agency resource situation status is current. b) Determine specific agency resource capabilities and needs. c) Determine agency resource availability (including availability for out-of- jurisdiction assignment).

5. Anticipate future resource needs and develop strategies and contingency plans. 6. Conduct information coordination (communicate "decisions" back to agencies).

MAC GROUP MEMBERSHIP

The MAC Group membership should be based upon the statutory responsibility of a jurisdiction or agency to abate the emergency. As such each emergency situation will dictate who should be mobilized to serve on a MAC Group. MAC Group members should consist of agency administrators or executives, or their designees, who have the authority to commit resources and funds to mitigate the emergency impacts.

MAC Group members can include:

IX.

Local government State government Federal government Tribal government Others with statutory or regulatory responsibility to abate the emergency.

Intelligence or information regarding incidents can be requested by the MAC Group from organizations without statutory or regulatory authority, such as:

Non-governmental organizations (NGOs) (e.g. American Red Cross, Salvation Army) Private sector organizations (water / wastewater, electric utilities) Infrastructure owners and operators Other jurisdictions which are or may be impacted or affected by the incident.