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Incident Command System (ICS)
ICS was developed in the 1970s following a series of catastrophic fires in California's urban interface. Property damage ran into the millions, and many people died or were injured. The personnel assigned to determine the causes of these outcomes studied the case histories and discovered that response problems could rarely be attributed to lack of resources or failure of tactics. Surprisingly, studies found that response problems were far more likely to result from inadequate management than from any other single reason.
The Incident Command System:
Is a standardized management tool for meeting the demands of small or large emergency or
nonemergency situations.
Represents "best practices" and has become the standard for emergency management across
the country.
May be used for planned events, natural disasters, and acts of terrorism.
Is a key feature of the National Incident Management System (NIMS).
The ICS is a management system designed to enable effective and efficient domestic incident management by integrating a combination of facilities, equipment, personnel, procedures, and communications operating within a common organizational structure, designed to enable effective and efficient domestic incident management. A basic premise of ICS is that it is widely applicable. It is used to organize both near-term and long-term field-level operations for a broad spectrum of emergencies, from small to complex incidents, both natural and manmade. ICS is used by all levels of government—Federal, State, local, and tribal—as well as by many private-sector and nongovernmental organizations. ICS is also applicable across disciplines. It is normally structured to facilitate activities in five major functional areas: command, operations, planning, logistics, and finance and administration.
Incident Complexity
“Incident complexity” is the combination of involved factors that affect the probability of control of an incident. Many factors determine the complexity of an incident, including, but not limited to, area involved, threat to life and property, political sensitivity, organizational complexity, jurisdictional boundaries, values at risk, weather, strategy and tactics, and agency policy.
Incident complexity is considered when making incident management level, staffing, and safety decisions.
Various analysis tools have been developed to assist consideration of important factors involved in incident complexity. Listed below are the factors that may be considered in analyzing incident complexity:
Impacts to life, property, and the economy
Community and responder safety
Potential hazardous materials
Weather and other environmental influences
Likelihood of cascading events
Potential crime scene (including terrorism)
Political sensitivity, external influences, and media relations
Area involved, jurisdictional boundaries
Availability of resources
ICS Review Materials: ICS History and Features
ICS Features (Continued)
Facilities and Resources:
Incident Locations and Facilities: Various types of operational support facilities are
established in the vicinity of an incident to accomplish a variety of purposes. Typical
designated facilities include Incident Command Posts, Bases, Camps, Staging Areas, Mass
Casualty Triage Areas, and others as required.
Comprehensive Resource Management: Maintaining an accurate and up-to-date picture
of resource utilization is a critical component of incident management. Resources are
defined as personnel, teams, equipment, supplies, and facilities available or potentially
available for assignment or allocation in support of incident management and emergency
response activities.
Communications/Information Management
Integrated Communications: Incident communications are facilitated through the
development and use of a common communications plan and interoperable communications
processes and architectures.
Information and Intelligence Management: The incident management organization must
establish a process for gathering, analyzing, sharing, and managing incident-related
information and intelligence.
Professionalism:
Accountability: Effective accountability at all jurisdictional levels and within individual
functional areas during incident operations is essential. To that end, the following principles
must be adhered to:
Check-In: All responders, regardless of agency affiliation, must report in to receive an
assignment in accordance with the procedures established by the Incident Commander.
Incident Action Plan: Response operations must be directed and coordinated as
outlined in the IAP.
Unity of Command: Each individual involved in incident operations will be assigned to
only one supervisor.
Personal Responsibility: All responders are expected to use good judgment and be
accountable for their actions.
Span of Control: Supervisors must be able to adequately supervise and control their
subordinates, as well as communicate with and manage all resources under their
supervision.
Resource Tracking: Supervisors must record and report resource status changes as
they occur.
Dispatch/Deployment: Personnel and equipment should respond only when requested or
when dispatched by an appropriate authority.
Transfer of Command
The process of moving the responsibility for incident command from one Incident Commander to another is called “transfer of command.” It should be recognized that transition of command on an expanding incident is to be expected. It does not reflect on the competency of the current Incident Commander.
There are five important steps in effectively assuming command of an incident in progress.
Step 1: The incoming Incident Commander should, if at all possible, personally perform an assessment of the incident situation with the existing Incident Commander.
Step 2: The incoming Incident Commander must be adequately briefed.
This briefing must be by the current Incident Commander, and take place face-to-face if possible. The briefing must cover the following:
Incident history (what has happened)
Priorities and objectives
Current plan
Resource assignments
Incident organization
Resources ordered/needed
Facilities established
Status of communications
Any constraints or limitations
Incident potential
Delegation of Authority
The ICS Form 201 is especially designed to assist in incident briefings. It should be used whenever possible because it provides a written record of the incident as of the time prepared. The ICS Form 201 contains:
Incident objectives.
A place for a sketch map.
Summary of current actions.
Organizational framework.
Resources summary.
Step 3: After the incident briefing, the incoming Incident Commander should determine an appropriate time for transfer of command.
Step 4: At the appropriate time, notice of a change in incident command should be made to:
Agency headquarters (through dispatch).
General Staff members (if designated).
Command Staff members (if designated).
All incident personnel.
Step 5: The incoming Incident Commander may give the previous Incident Commander another assignment on the incident. There are several advantages of this:
The initial Incident Commander retains first-hand knowledge at the incident site.
This strategy allows the initial Incident Commander to observe the progress of the incident and to
gain experience.
ICS Organization
Command Staff: The Command Staff consists of the Public Information Officer, Safety Officer, and
Liaison Officer. They report directly to the Incident Commander.
Section: The organization level having functional responsibility for primary segments of incident
management (Operations, Planning, Logistics, Finance/Administration). The Section level is organizationally between Branch and Incident Commander.
Branch: That organizational level having functional, geographical, or jurisdictional responsibility for
major parts of the incident operations. The Branch level is organizationally between Section and Division/Group in the Operations Section, and between Section and Units in the Logistics Section. Branches are identified by the use of Roman Numerals, by function, or by jurisdictional name.
Division: That organizational level having responsibility for operations within a defined geographic
area. The Division level is organizationally between the Strike Team and the Branch.
Group: Groups are established to divide the incident into functional areas of operation. Groups are
located between Branches (when activated) and Resources in the Operations Section.
Unit: That organization element having functional responsibility for a specific incident planning,
logistics, or finance/administration activity.
Task Force: A group of resources with common communications and a leader that may be pre-
established and sent to an incident, or formed at an incident.
Strike Team: Specified combinations of the same kind and type of resources, with common
communications and a leader.
Single Resource: An individual piece of equipment and its personnel complement, or an established
crew or team of individuals with an identified work supervisor that can be used on an incident.
Overall Organizational Functions
ICS was designed by identifying the primary activities or functions necessary to effectively respond to incidents. Analyses of incident reports and review of military organizations were all used in ICS development. These analyses identified the primary needs of incidents.
As incidents became more complex, difficult, and expensive, the need for an organizational manager became more evident. Thus in ICS, and especially in larger incidents, the Incident Commander manages the organization and not the incident.
In addition to the Command function, other desired functions and activities were:
To delegate authority and to provide a separate organizational level within the ICS structure with
sole responsibility for the tactical direction and control of resources.
To provide logistical support to the incident organization.
To provide planning services for both current and future activities.
To provide cost assessment, time recording, and procurement control necessary to support the
incident and the managing of claims.
To promptly and effectively interact with the media, and provide informational services for the
incident, involved agencies, and the public.
To provide a safe operating environment within all parts of the incident organization.
To ensure that assisting and cooperating agencies’ needs are met, and to see that they are used
in an effective manner.
Incident Commander
The Incident Commander is technically not a part of either the General or Command Staff. The Incident Commander is responsible for overall incident management, including:
Ensuring clear authority and knowledge of agency policy.
Ensuring incident safety.
Establishing an Incident Command Post.
Obtaining a briefing from the prior Incident Commander and/or assessing the situation.
Establishing immediate priorities.
Determining incident objectives and strategy(ies) to be followed.
Establishing the level of organization needed, and continuously monitoring the operation and
effectiveness of that organization.
Managing planning meetings as required.
Approving and implementing the Incident Action Plan.
Coordinating the activities of the Command and General Staff.
Approving requests for additional resources or for the release of resources.
Approving the use of participants, volunteers, and auxiliary personnel.
Authorizing the release of information to the news media.
Ordering demobilization of the incident when appropriate.
Ensuring incident after-action reports are complete.
Authorizing information release to the media.
Command Staff Responsibilities
Public Information Officer
Determine, according to direction from the IC, any limits on information release. Develop accurate, accessible, and timely information for use in press/media briefings. Obtain IC’s approval of news releases. Conduct periodic media briefings. Arrange for tours and other interviews or briefings that may be required. Monitor and forward media information that may be useful to incident planning. Maintain current information, summaries, and/or displays on the incident. Make information about the incident available to incident personnel. Participate in the planning meeting.
Safety Officer Identify and mitigate hazardous situations.
Ensure safety messages and briefings are made. Exercise emergency authority to stop and prevent unsafe acts. Review the Incident Action Plan for safety implications. Assign assistants qualified to evaluate special hazards. Initiate preliminary investigation of accidents within the incident area. Review and approve the Medical Plan. Participate in planning meetings.
Liaison Officer Act as a point of contact for agency representatives.
Maintain a list of assisting and cooperating agencies and agency representatives. Assist in setting up and coordinating interagency contacts. Monitor incident operations to identify current or potential interorganizational problems. Participate in planning meetings, providing current resource status, including limitations and capabilities of agency resources. Provide agency-specific demobilization information and requirements.
Assistants In the context of large or complex incidents, Command Staff members may need one or more assistants to help manage their workloads. Each Command Staff member is responsible for organizing his or her assistants for maximum efficiency.
Additional Command Staff
Additional Command Staff positions may also be necessary depending on the nature and location(s) of the incident, and/or specific requirements established by the Incident Commander. For example, a Legal Counsel may be assigned directly to the Command Staff to advise the Incident Commander on legal matters, such as emergency proclamations, legality of evacuation orders, and legal rights and restrictions pertaining to media access. Similarly, a Medical Advisor may be designated and assigned directly to the Command Staff to provide advice and recommendations to the Incident Commander in the context of incidents involving medical and mental health services, mass casualty, acute care, vector control, epidemiology, and/or mass prophylaxis considerations, particularly in the response to a bioterrorism event.
Source: NIMS
General Staff Responsibilities
Operations Section Chief
The Operations Section Chief is responsible for managing all tactical operations at an incident. The Incident Action Plan (IAP) provides the necessary guidance. The need to expand the Operations Section is generally dictated by the number of tactical resources involved and is influenced by span of control considerations. Major responsibilities of the Operations Section Chief are to:
Assure safety of tactical operations.
Manage tactical operations.
Develop the operations portion of the IAP.
Supervise execution of operations portions of the IAP.
Request additional resources to support tactical operations.
Approve release of resources from active operational assignments.
Make or approve expedient changes to the IAP.
Maintain close contact with IC, subordinate Operations personnel, and other
agencies involved in the incident.
Planning Section Chief
The Planning Section Chief is responsible for providing planning services for the incident. Under the direction of the Planning Section Chief, the Planning Section collects situation and resources status information, evaluates it, and processes the information for use in developing action plans. Dissemination of information can be in the form of the IAP, in formal briefings, or through map and status board displays. Major responsibilities of the Planning Section Chief are to:
Collect and manage all incident-relevant operational data.
Supervise preparation of the IAP.
Provide input to the IC and Operations in preparing the IAP.
Incorporate Traffic, Medical, and Communications Plans and other
supporting materials into the IAP.
Conduct and facilitate planning meetings.
Reassign personnel within the ICS organization.
Compile and display incident status information.
Establish information requirements and reporting schedules for units (e.g.,
Resources, Situation Units).
Determine need for specialized resources.
Assemble and disassemble Task Forces and Strike Teams not assigned to
Operations.
Establish specialized data collection systems as necessary (e.g., weather).
Assemble information on alternative strategies.
Provide periodic predictions on incident potential.
Report significant changes in incident status.
Oversee preparation of the Demobilization Plan.
Agency Representatives
An Agency Representative is an individual assigned to an incident from an assisting or cooperating agency. The Agency Representative must be given authority to make decisions on matters affecting that agency's participation at the incident.
Agency Representatives report to the Liaison Officer or to the Incident Commander in the absence of a Liaison Officer.
Major responsibilities of the Agency Representative are to:
Ensure that all of their agency resources have completed check-in at the incident.
Obtain briefing from the Liaison Officer or Incident Commander.
Inform their agency personnel on the incident that the Agency Representative position has been
filled.
Attend planning meetings as required.
Provide input to the planning process on the use of agency resources unless resource technical
specialists are assigned from the agency.
Cooperate fully with the Incident Commander and the Command and General Staff on the
agency's involvement at the incident.
Oversee the well-being and safety of agency personnel assigned to the incident.
Advise the Liaison Officer of any special agency needs, requirements, or agency restrictions.
Report to agency dispatch or headquarters on a prearranged schedule.
Ensure that all agency personnel and equipment are properly accounted for and released prior to
departure.
Ensure that all required agency forms, reports, and documents are complete prior to departure.
Have a debriefing session with the Liaison Officer or Incident Commander prior to departure.
Technical Specialists
Certain incidents or events may require the use of Technical Specialists who have specialized knowledge and expertise. Technical Specialists may function within the Planning Section, or be assigned wherever their services are required.
While each incident dictates the need for Technical Specialists, some examples of the more commonly used specialists are:
Meteorologists.
Environmental Impact Specialists.
Flood Control Specialists.
Water Use Specialists.
Fuels and Flammable Specialists.
Hazardous Substance Specialists.
Fire Behavior Specialists.
Structural Engineers.
Training Specialists.
(Continued on next page.)
Additional advisory positions may also be necessary depending on the nature and location(s) of the incident, and/or specific requirements established by the Incident Commander. For example, a Legal Counsel may be assigned directly to the Command Staff to advise the Incident Commander on legal matters, such as emergency proclamations, legality of evacuation orders, and legal rights and restrictions pertaining to media access. Similarly, a Medical Advisor may be designated and assigned directly to the Command Staff to provide advice and recommendations to the Incident Commander in the context of incidents involving medical and mental health services, mass casualty, acute care, vector control, epidemiology, and/or mass prophylaxis considerations, particularly in the response to a bioterrorism event. These positions may also be considered Technical Specialists.
Intelligence/Investigations Function
The collection, analysis, and sharing of incident-related intelligence are important
elements of ICS.
Typically, operational information and situational intelligence are management functions
located in the Planning Section, with a focus on three incident intelligence areas:
situation status, resource status, and anticipated incident status or escalation (e.g.,
weather forecasts, location of supplies, etc.).
This information and intelligence is utilized for incident management decisionmaking. In
addition, Technical Specialists may be utilized in the Planning Section to provide specific
information that may support tactical decisions on an incident.
Incident management organizations must also establish a system for the collection,
analysis, and sharing, as possible, of information developed during
intelligence/investigations efforts.
Some incidents require the utilization of intelligence and investigative information to
support the process. Intelligence and investigative information is defined as information
that either leads to the detection, prevention, apprehension, and prosecution of criminal
activities (or the individuals(s) involved), including terrorist incidents, or information that
leads to determination of the cause of a given incident (regardless of the source) such
as public health events or fires with unknown origins.
Unified Command
The Unified Command organization consists of the Incident Commanders from the various jurisdictions or agencies operating together to form a single command structure.
Overview
Unified Command is an important element in multijurisdictional or multiagency domestic incident management. It provides guidelines to enable agencies with different legal, geographic, and functional responsibilities to coordinate, plan, and interact effectively.
As a team effort, Unified Command overcomes much of the inefficiency and duplication of effort that can occur when agencies from different functional and geographic jurisdictions, or agencies at different levels of government, operate without a common system or organizational framework.
All agencies with jurisdictional authority or functional responsibility for any or all aspects of an incident participate in the Unified Command structure and contribute to the following process and responsibilities:
Determining overall incident strategies.
Selecting objectives.
Ensuring that joint planning for tactical activities is accomplished in accordance with approved
incident objectives.
Ensuring the integration of tactical operations.
Approving, committing, and making optimal use of all assigned resources.
The exact composition of the Unified Command structure will depend on the location(s) of the incident (i.e., which geographical administrative jurisdictions are involved) and the type of incident (i.e., which functional agencies of the involved jurisdiction(s) are required). In the case of some multijurisdictional incidents, the designation of a single Incident Commander may be considered to promote greater unity of effort and efficiency.
Source: NIMS
Unified Command
Authority
Authority and responsibility for an Incident Commander to manage an incident or event comes in the form of a delegation of authority from the agency executive or administrator of the jurisdiction of occurrence or inherent in existing agency policies and procedures. When an incident/event spans multiple jurisdictions this responsibility belongs to the various jurisdictional and agency executives or administrators who set policy and are accountable to their jurisdictions or agencies. They must appropriately delegate to the Unified Commanders the authority to manage the incident. Given this authority, the Unified Commanders will then collectively develop one comprehensive set of incident objectives, and use them to develop strategies.
Advantages of Using Unified Command
The advantages of using Unified Command include:
A single set of objectives is developed for the entire incident.
A collective approach is used to develop strategies to achieve incident objectives.
Information flow and coordination is improved between all jurisdictions and agencies involved in
the incident.
All agencies with responsibility for the incident have an understanding of joint priorities and
restrictions.
No agency’s legal authorities will be compromised or neglected.
The combined efforts of all agencies are optimized as they perform their respective assignments
under a single Incident Action Plan.
Planning Process
Caption: Organizational chart showing that Command develops the overall incident objectives and strategy, approves resource orders and demobilization, and approves the IAP by signature. Operations assists with developing strategy, and identifies, assigns, and supervises the resources needed to accomplish the incident objectives. Planning provides status reports, manages the planning process, and produces the IAP. Logistics orders resources and develops the Transportation, Communications, and Medical Plans. Finance/Administration develops cost analyses, ensures that the IAP is within the financial limits established by the Incident Commander, develops contracts, and pays for the resources.
Incident Commander
Operations Section
Planning Section
Logistics Section
Finance/Admin Section
Command: Develops the overall incident objectives and strategy, approves resource orders and demobilization, and approves the IAP by signature.
Operations: Assists with developing strategy, and identifies, assigns, and supervises the resources needed to accomplish the incident objectives.
Planning: Provides status reports, manages the planning process, and produces the IAP.
Logistics: Orders resources and develops the Transportation, Communications, and Medical Plans.
Finance/Admin: Develops cost analyses, ensures that the IAP is within the financial limits established by the IC, develops contracts, and pays for the resources. Incident Commander
Operations Section
Planning Section
Logistics Section
Finance/Admin Section
Command: Develops the overall incident objectives and strategy, approves resource orders and demobilization, and approves the IAP by signature.
Operations: Assists with developing strategy, and identifies, assigns, and supervises the resources needed to accomplish the incident objectives.
Planning: Provides status reports, manages the planning process, and produces the IAP.
Logistics: Orders resources and develops the Transportation, Communications, and Medical Plans.
Finance/Admin: Develops cost analyses, ensures that the IAP is within the financial limits established by the IC, develops contracts, and pays for the resources.
Planning Process (Continued)
The Planning “P”
The Planning “P” is a guide to the process and steps involved in planning for an incident.
The leg of the “P” describes the initial response period: Once the incident/event begins, the
steps are Notifications, Initial Response & Assessment, Incident Briefing Using ICS 201, and
Initial Incident Command (IC)/Unified Command (UC) Meeting.
At the top of the leg of the “P” is the beginning of the first operational planning period cycle.
In this circular sequence, the steps are IC/UC Develop/Update Objectives Meeting,
Command and General Staff Meeting, Preparing for the Tactics Meeting, Tactics Meeting,
Preparing for the Planning Meeting, Planning Meeting, IAP Prep & Approval, and Operations
Briefing.
At this point a new operational period begins. The next step is Execute Plan & Assess
Progress, after which the cycle begins again.
Source: draft NIMS document
