HomeMy WebLinkAboutSOG 201.01 REVISED 11-2008
Beaumont Fire-Rescue Services
STANDARD OPERATING GUIDELINES
STANDARD OPERATING GUIDELINES
STANDARD OPERATING GUIDELINES
201.01 – Local ICS & the National Incident Management System
Effective: 6/1/1985
System SystemMMMMMmmmMaManagement
Anne Huff,
Revised: 5/1/1999, 3/1/2004, 11/5/2008
System
Replaces:
Fire Chief
I. Guiding Philosophy
Beaumont Fire/Rescue Services responds to many different types of emergency calls for
service. To provide for the safety and welfare of our members, and to effectively manage
resources at the emergency scene, we are committed to applying the principles of incident
management on all types and sizes of emergency responses.
II. Purpose
The purpose of this policy is to define and describe the essential elements and practical
implementation of the incident management system as adopted and applied by Beaumont
Fire/Rescue Services.
III. Goals
The goals of this policy are to:
A. Identify components of the incident management system as applied to escalating
types of emergency events,
B. Establish expectations in the implementation of the system by defining and
describing the system’s components, and
C. Enact a chain of responsibility and accountability throughout all levels of the
organization to insure the system is effectively implemented at all emergency
incidents.
All BF/RS members shall be trained on and use the
Incident Management System detailed within this policy.
IV. Definitions
Accountability System - the established procedures for tracking of personnel
assigned within the hazard zone at an emergency event.
All Clear - tactical benchmark indicating that primary search is complete.
Allocated Resources - resources dispatched to an incident that have not yet
checked-in with the Incident Commander.
Area Command - an expansion of the incident command function primarily
designed to manage a very large incident that has multiple incident management
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teams assigned. Area Command can be established anytime that incidents are
close enough geographically that oversight is required to ensure conflicts do not
arise between incident management teams.
Assigned Resources - resources checked-in by the Incident Commander and
assigned to work tasks on an incident.
Assumption of Command - the initiation of the Incident Management System at
an emergency event, which is confirmed through the broadcast of a standard
initial radio report by the Incident Commander.
Base - at large scale incidents, the location where the primary logistics functions
are coordinated and administered. There can be multiple camps, but there is only
one base established per incident.
Branch - under NIMS, the organizational level having functional or geographic
responsibility for major parts of incident operations. If activated, the Branch
Level is below the Section Level of the incident organization chart. (i.e.
Operations Section Medical Branch, Law Branch, etc.)
Camp - a geographical site within the general incident area, separate from the
base, equipped and staffed to provide food, water, and sanitary services to
incident personnel.
Clear Text - use of plain English in radio communications transmissions.
Command - the act of directing, ordering, and/or controlling resources by virtue
of explicit legal, agency, or delegated authority.
Command Staff - group of incident management personnel composed of the:
Safety Officer, Liaison Officer and the Information Officer, who report directly to
the Incident Commander.
Completion Report - report made by the supervisor of a task level assignment to
the Incident Commander that the assignment has been completed.
Cooperating Agency - an agency supplying assistance other than direct
suppression, rescue, support or service functions (i.e. Red Cross, natural gas
utility company, etc.).
Crew - at the task level, a group of no less than two persons organized for a
specific purpose who are assigned to a particular supervisor.
Crew Integrity - for crews operating inside the hazard zone, maintenance of the
crew within the visual or tactile reach of their supervisor.
Critical Incident Factors - those incident factors that may result in severe
negative consequences at the scene if left unaddressed.
Customer Stable - tactical benchmark indicating that we have attended to the
short/medium range needs of our affected customer(s).
Defensive Mode - command decision to keep emergency response personnel
outside of the hazard zone.
Division - under NIMS, the organizational level having responsibility within a
defined geographic area (i.e. Northeast Division).
Emergency Traffic - term used to clear designated radio channels used at an
incident to make way for important radio communications of a critical nature.
Emergency Traffic Radio Tones - distinctive tones used on designated
channel(s) to indicate subsequent communication of emergency information.
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Exception Report - report made by the supervisor of a task level assignment to
the Incident Commander that the assigned task can not be completed.
Fast Action Incident Commander - the initial incident commander, who makes
a conscious decision at the onset of incident operations, to either lead the
operation from inside the hazard zone using a portable radio to continue command
or to transfer command to a later arriving company/chief officer.
Fast Action Strategy - command decision made within the Offensive Mode of
operation where the initial Incident Commander makes a conscious decision to
initiate immediate intervention activities inside the hazard zone rather than
establish a stationary command post.
Freelancing - operating outside of the established Incident Action Plan.
First Arriver - the ranking City of Beaumont emergency responder to arrive first
at the scene of an emergency.
General Staff - group of incident management personnel composed of the:
Incident Commander, Operations Section Chief, Planning Section Chief,
Logistics Section Chief, Finance/Administration Section Chief.
Group - under NIMS, the organizational level having responsibility within a
defined functional area (i.e. Vent Group).
Hazard Zone - a perimeter established at the emergency scene indicating the
point at which persons operating inside the perimeter will be exposed to
potentially severe circumstances or threatening environments (i.e. fire/smoke,
building collapse, etc.).
Immediately Dangerous to Life & Health - An atmospheric concentration of
any toxic, corrosive or asphyxiant substance that poses an immediate threat to life
or would cause irreversible or delayed adverse health effects or would interfere
with an individual's ability to escape from a dangerous atmosphere.
Incident Action Plan (IAP) - within a defined mode and strategy, the logical
choice tactics, (and associated tasks) determined by the Incident Commander as
an effective means of mitigating the incident problem. For long duration
incidents, a written IAP is completed in advance for the upcoming 24-hour
operational period, and includes related attachments.
Incident Command Post (ICP) - location where the primary command functions
are executed.
Incident Command System - the combination of facilities, equipment,
personnel, procedures, and communications operating within a common
organizational structure, with responsibility for the management of assigned
resources to effectively accomplish stated objectives pertaining to an incident.
Incident Objectives - statements of guidance and direction necessary for the
selection of appropriate strategy(s), and for the tactical direction of resources.
Incident objectives are based on realistic expectations of what can be
accomplished when all allocated resources have been effectively deployed.
Initial Rapid Intervention Crew (IRIC) - a temporary two person rapid
intervention crew assigned at the beginning of incident operations to allow teams
to enter an IDLH or potentially IDLH atmosphere.
Initial Reporting Process - decision-making and communications process
initiated by the first arriver on scene which includes: assumption of command,
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site description and problem situation, declaration of strategy, initial
tactical assignments (as applicable), determination of appropriate level of initial
resource allocation.
Investigative Strategy - command decision made within the Offensive Mode of
operation where the initial Incident Commander makes a conscious decision to
investigate a given situation further, prior to allocating additional resources to the
potential problem.
Loss Stopped - tactical benchmark indicating property conservation measures are
complete.
Marginal Strategy - command decision made within the Offensive Mode of
operation where the initial Incident Commander makes a conscious decision to
initiate Rescue operations in an environment where the risk to responders is
potentially at an unreasonable level, but where there are savable customer lives
still believed to be present.
Mode - the broadest level of command decision which determines whether or not
emergency response personnel will be sent into the hazard zone (i.e. Offensive
Mode or Defensive Mode).
Offensive Mode - command decision to send emergency response personnel
inside the hazard zone.
Order Model - communications management procedure which includes the
following elements: receiver indicates they are ready to receive message,
message is transmitted, receiver briefly restates message to verify
understanding.
Operational Period - period of time scheduled for execution of a given set of
operational actions as specified in the incident action plan.
Overhead Personnel - personnel assigned to supervisory positions, including the
Incident Commander, Command Staff, General Staff, Directors, Supervisors, and
Unit Leaders.
Personal Accountability Report (PAR) - report communicating the status of
crews assigned to a specific supervisor working inside the hazard zone.
Planning Meetings - meetings held as scheduled throughout medium- to long-
duration incidents to select specific strategies and tactics for incident control
operations and for service and support planning.
Personnel Accountability - the ability to account for the whereabouts and
welfare of personnel assigned to the incident.
Rapid Intervention Group (RIG) - crew(s) designated to standby in a state of
readiness to perform a rescue effort for hazard zone workers.
Rehab - resting and treatment of incident personnel who are suffering from the
effects of strenuous work and/or extreme conditions.
Reinforced Response - those resources requested in addition to the initial
response.
Resources - all personnel and major items of equipment available, or potentially
available, for assignment to an incident on which status is maintained.
Risk Management Plan - the established plan for determining the appropriate
level of emergency intervention to be taken on-scene. Plan guidelines include:
We will risk our lives a lot, in a highly calculated and controlled manner, to
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protect a savable human life; We will risk our lives a little, in a highly
calculated and controlled manner, to protect savable property; We will not risk
our lives at all to protect lives or property that are already lost.
Section - the organizational level having functional responsibility for primary
segments of incident operations such as: Operations, Planning, Logistics,
Finance/Administration. The Section level is organizationally between the Branch
and Incident Commander levels.
Size-Up - process of evaluating current circumstances to determine the critical
factors that must be addressed to mitigate the incident problem.
Staging - status of organizational resources after arrival, but prior to assignment
on an emergency incident.
Staging Area - location where incident personnel and equipment are awaiting
assignment by the Incident Commander.
Strategic Level - overall approach (and positioning) of incident operations, based
on the Incident Commander’s chosen mode of operation. (i.e. Offensive Mode
Investigative Strategy, Fast Action Strategy, Marginal Strategy; Defensive Mode
Defensive Strategy).
Stationary Command Post - the fixed location outside of the hazard zone where
the Incident Commander is located.
Stationary Incident Commander - incident commander who stays out of the
hazard area in a stationary exterior command position.
Strike Team - specified combinations of the same kind and type of resources,
with common communications and a leader (i.e. 3 engines).
Tactical Benchmark - a standard of comparison communicated at the completion
of a tactical level assignment (i.e. Primary Search Complete, Under Control, etc.).
Tactical Level - organizational level of decision-making that determines the
primary groups of activities that must be addressed to effectively mitigate the
incident problem. Tactics are based on the Incident Commander’s chosen mode of
operation and strategy, established tactical priorities, and the critical incident
factors present on scene (i.e. rescue, fire control, forcible entry, ventilation, etc.).
Tactical Priorities - implemented within the limits of our risk management plan
and under an umbrella of primary concern for firefighter safety, the established
order of tactical intervention measures adopted by the department, including:
Life Safety of Customers, Incident Stabilization, Property Conservation,
Customer Stabilization.
Tactical Worksheet - worksheet used by a stationary Incident Commander to
document the critical details of conditions, assignments, and work progress at an
incident.
Tactics - deploying and directing resources on an incident to accomplish the
objectives of the designated strategy.
Task Force - pre-established group of different types of resources, with common
communications and a leader (i.e. 1 engine, 1 aerial, 1 chief’s car).
Task Level - organizational level of decision-making based on the tactical level
determination that indicates the method of effectively completing the established
tactical benchmark (i.e. Fire Control 2" pre-connect to seat of fire).
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Transfer of Command - orderly process of handing over command
responsibility and accountability to another on-scene individual.
Under Control - tactical benchmark indicating that the fire or emergency
situation is now under control.
Unified Command - a team approach to command responsibilities which entails
all responding agencies sharing responsibility for the incident by managing the
incident through a common incident action plan. This is accomplished without
losing or abdicating individual agency authority, responsibility, or accountability.
Unit - organizational element having functional responsibility for a specific
incident’s planning, logistics, or administrative activity.
V. General Summary of Individual Responsibilities
A. As a person works their way up through the incident management organizational
hierarchy, the associated level of responsibility becomes more and more involved
and difficult to manage. The following provides a general summary of the
escalating level of individual responsibilities from the First Arriver on Scene
through the stationary Incident Commander:
1. First Arriver on Scene - initiate the Initial Reporting Process to the best
of your ability, based on your training, experience, and available
information.
2. Firefighter/EMT/Police Officer/Other Responder - know the
capabilities of your equipment and your personal limitations; to the fullest
extent possible, have your personal protective equipment donned and be
ready for action upon arrival; begin work only at the direction of your
assigned supervisor; work within your assigned crew and area; notify your
assigned supervisor of potential or immediate safety-related problems;
comply with departmental/City communications procedures.
3. Driver/Operator - all of the responsibilities listed above; AND, follow
department/City policies and common sense while driving to the incident
so that you and your personnel arrive safely; adhere to appropriate staging
procedures upon arrival; spot your apparatus to allow for best tactical
advantage and access of other responding units.
4. Company Officer/Crew Supervisor - all of the responsibilities listed
above; AND, do our best to maintain the integrity of your assigned
crew(s) within the hazard zone at all times; insure that your crew(s)
abides by all departmental/City safety procedures; provide progress,
exception, and completion reports as required; call for additional help if
you need it.
5. Fast-Action Incident Commander - all of the responsibilities listed
above; AND, determine initial strategy, tactical and task level duties as
required; develop and communicate an Incident Action Plan (IAP) to
logically address the critical incident factors present; follow departmental
procedure when communicating the IAP to responders.
6. Stationary Incident Commander - all of the responsibilities listed above;
AND, upon arrival, assume command according to department policy;
continually size-up the situation and revise the IAP as needed; manage
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incident communications; manage the deployment of on scene personnel
and equipment; manage the development of the incident organization;
manage the overall accountability and safety of crews within the hazard
zone; provide for rest and rehab of operating crews; demobilize forces and
terminate command as required.
7. Off-Duty or Other Responders Subsequently Arriving on Scene -
position your vehicle so that it will not restrict access/movement by
emergency apparatus; check-in with command; follow orders and assume
responsibilities as directed by Command and department or City policy.
VI. Incident Management System Components
A. Incident Types and Local Command Levels - Nationally, there are five types of
incidents that require escalating command experience. Listed by the predominate
level of governmental resource allocation required for mitigation, they are:
1. NIMS Type 5 – City
2. NIMS Type 4 - City/County (Local Mutual Aid)
3. NIMS Type 3 - Regional/State
4. NIMS Type 2 - State/National
5. NIMS Type 1 – National
B. Most emergency events are handled by Incident Commanders at the local level,
and are classified as NIMS Type 5. For local responders, the “NIMS Type 5"
events encountered can vary greatly in terms of complexity of the problem,
resources required to mitigate it, and the level of command needed to manage it.
Keeping this in mind, the NIMS Type 5 incidents we normally see can be broken
down further to define the complexity, resource and command needs of a local
1
emergency incident \[NIMS Type 5 (Local) Sub-Classifications\]:
1. Command Level 5A - Company Officer IC/Initial Arriving Unit/Member
2. Command Level 5B - District Chief IC
3. Command Level 5C - Command Team (Unified Command)
4. Command Level 5D - Command Team with Sections implemented
5. Command Level 5E - City Emergency Operations Center (EOC) activated
C. When the County activates its EOC, then the emergency has escalated to a NIMS
Type 4 event. If escalation continues, where regional, state, and national
plans/resources are activated, the incident type changes accordingly.
D. Functions of Command - For any type of incident or at any command level,
effective incident management involves applying each of the following eight
command functions:
1. Assumption, Confirmation, and Positioning of Command - establish
Command at the very beginning of operations to insure that we start under
control, stay under control, and never lose control.
1
These sub-classifications are derived from Brunacini’s Fire Command.
SOG 201.01 – Local ICS & NIMS Page 7 of 36
2. Situation Evaluation - create safe operations based on accurate initial and
ongoing incident evaluation and information management.
3. Incident Communications - keep everyone lined together so that we stay
connected to get in/do our jobs/move quickly/get out quickly (if
necessary).
4. Deployment Management - provide, manage, and protect workers with
the timely dispatch and adequate on-scene placement of adequate,
appropriate resources.
5. Identification of Strategy/Development of Incident Action Plan (IAP) -
safely position and move (where necessary) workers based on actual (and
forecasted) conditions, within our standard Risk Management Plan.
6. Development of Incident Organization - establish decentralized
division/group bosses to functionally and/or geographically manage
incident operations and worker welfare more directly.
7. Review, Evaluation, and Revision of the IAP - continually evaluate and
revise (as required) operations to effectively connect the current incident
action plan to changing conditions.
8. Continuing, Transferring, and Terminating Command - continue to
support an IC/Unified Command throughout operations and support
safety, by strengthening command continuation through effective transfer,
upgrade, and demobilization.
E. As an incident becomes more complex, so does its command needs. The
discussion below will describe the functions of command for events encountered
most often locally, Type 5- Sub-Classifications 5A through 5C events
VII. Assumption, Confirmation, and Positioning of Command
A. The initial Incident Commander will confirm a command presence on scene by
broadcasting a standard size-up report. This report should include, at a minimum:
1. Unit designation
2. Arrival
3. Assumption of command
4. Name and location of the command post
5. Conditions.
Example: “Engine 4 on scene as Manor Command on alpha side. Two story
residence, metal roof, fire showing from two rooms on second floor, delta side.”
B. Initial command positioning will be dependent on incident conditions and
resource requirements. However, a stationary command post should be situated as
soon as possible in a location that is outside of the hazard zone. It should afford
the IC a good overall view of the scene and surrounding area. Ideally, the
command post would offer a view of the two most critical sides of the situation.
Since effective radio communications is essential to command, the stationary
Incident Commander should position him/herself to maximize his/her ability to
hear and respond to radio communications.
SOG 201.01 – Local ICS & NIMS Page 8 of 36
VIII. Situation Evaluation
A. The size-up and subsequent Initial Reporting Process involves three separate, but
equally important skills sets:
1. Evaluating the current situation (What’s the problem?)
2. Deciding on appropriate intervention (What can we realistically do to
solve it?)
3. Communicating the intervention plan to responders (Who’s doing what?)
B. The Initial Reporting Process begins with an assessment that takes into
consideration the following four elements:
1. The knowledge, level of training, and experience of the individual.
2. Known reported or reconnaissance information.
3. Observed visual information.
4. Known pre-planning information.
5. Who’s doing what?
C. An accurate evaluation of these elements should result in an effective
determination of the Critical Incident Factors that need to be addressed. Based on
this evaluation and our established Risk Management Plan, decisions determining
the Mode, Strategy, Tactics, and Tasks are made. The logical order of decisions is
illustrated in the decision flow chart in Figure 1. Completion of the evaluation and
decision-making portions of the process outlined in Figure 1 results in the
development of the Incident Action Plan (IAP) by the initial Incident
Commander.
D. Persons assuming command subsequently are charged with continually
assessing all forms of incoming incident information in order to update or
revise the IAP as required.
SOG 201.01 – Local ICS & NIMS Page 9 of 36
STRATEGY
MODE
TACTICS
Rescue Fire Control Water Supply
Exposure Protection
IRIC Extrication
Forcible Entry Patient Care Product Identification
Ventilation Loss Control Scene Security Containment
TASKS
pull pre-connect to seat of fire apply AED establish perimeter
apply Positive Pressure Ventilation
administer O lay 5" supply line
2
monitor CO levels triage patients lay un-manned monitor
identify product
ladder building control traffic evacuate area
throw salvage covers set up decon set up aerial apparatus
Figure 1: Command Decision Matrix
SOG 201.01 – Local ICS & NIMS Page 10 of 36
IX. Incident Communications
A. Along with the standard size-up report, the initial IAP is communicated to in-
coming responders over the radio. This initial report and IAP should provide
responders with a solid visual picture of the current incident problem and
intervention plan, in as concise terms as possible. This standard Initial Reporting
Process should communicate the following elements:
1. Unit on scene with assumption and location of Command,
2. Site description and problem situation,
3. Declaration of strategy,
4. Initial tactical assignments (as units report arrival at the Level I staging
location),
5. Determination of appropriate level of additional resource allocation (if
applicable).
Example: “Engine 4 on scene as Manor Command on alpha side. Two story residence,
metal roof, fire showing from two rooms on second floor, delta side. Reported person
trapped. We’re fast action for rescue, employing fire control. Passing Command to next
unit.”
Example: “Engine 4 on scene as Manor Command on alpha side. Two story residence,
metal roof, second floor fully involved. We’re defensive to protect exposure on the delta
side. (As units report their arrival at Level I staging location)-- E9-water supply, E7-
protect exposure on bravo side, S7-report to Command for assignment.”
B. The Order Model will be utilized to the extent possible at all incidents to insure
that communication of assignments and important incident information is
effectively received and understood. Personnel should keep in mind that efficient
emergency scene communications maintain a balance of descriptiveness and
conciseness. The goal for the sender is to create a solid visual picture for the
receiver while using as few words as possible.
C. To further the goal of conciseness in communications on scene, the geographic
sides around a building will be identified by assigning the address side of the
occupancy as “Side A” or “Division A.” Other alphabetical designations are
provided clockwise around the building, as illustrated in Figure 2.
D. The following terms will be used in communications to clarify the alphabetical
designations:
1. “A” - Alpha
2. “B” - Bravo
3. “C” - Charlie
4. “D” - Delta
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Figure 3Division Designation in Multi-Story Occupancies:
Figure 2: Side or Division Designation
E. In multi-story occupancies, geographic divisions will be designated by floor
number (i.e Division 6 is the sixth floor) as shown in Figure 3. In some cases, the
floor designation may be subdivided into more precisely defined geographic
areas, such as “Division 6-Alpha” or “Division 4-Delta.”
F. Units are considered arrived when they reach their Level I staging location.
Incoming units will follow established staging procedures (see SOG 205.06,
Staging: Levels I and II) and will notify Command over the tactical radio channel
that they are staged.
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X. Deployment Management
A. The primary goal of deployment management is to provide and manage a steady,
adequate, and timely stream of appropriate resources. The objective is to place
resources in the right place, at the right time, performing correct, standard action.
Maintaining an awareness of the status of resources assigned, deployed and
working at the incident site is the responsibility of the on-scene Incident
Commander/Unified Command.
B. Standard response assignments provide the capability of making important
resource planning and allocation decisions prior to emergency events. Pre-
arranged response assignments save time in both the initial dispatch and
throughout an escalating event. Standardizing the deployment approach creates an
effective understanding among participants based on basic resource-management
procedures. For these reasons, both dispatchers and Incident Commanders will
follow SOG 205.01 - Deployment Management when allocating human and
equipment resources to incidents.
C. After the IC has arrived on-scene and evaluated conditions, he/she will refine the
initial deployment decisions that dispatch has made. From a deployment
perspective, this may involve holding the initial assignment, requesting additional
resources, cancelling resources, or any other modification that is necessary.
Initially, the major on-scene IC deployment functions are directed at getting the
right type and amount of resources safely in the right place, at the right time,
doing the right thing. This involves the following deployment activities:
1. Quickly developing an event/response profile
2. Determining how much and what kind of resources are needed
3. Calling for additional resources as required, returning unneeded resources
4. Assigning resources to complete the Incident Action Plan (IAP)
5. Maintaining a current and accurate inventory and tracking of resources
6. Operating an overall incident accountability system including personnel
accountability and staging procedures
D. Simply, the best chance for local responders to “win” a battle with Mother Nature
occurs as close as possible to the beginning of the event. The longer an active,
escalating incident goes on, the more challenging it becomes for the IC to
overpower expanding problems. An adequate amount of force in the beginning
can eliminate the need for a lot more force later on. This reality creates the need
to “front-end load” our response and command systems to maximize the
probability for early mitigation. The longer the overall command system practices
developing and connecting the two basic “front-end load” system elements
(type/amount of work to number of workers needed) as early as possible in the
incident– the quicker, more accurate, and smoother resource deployment needs
will be met.
SOG 201.01 – Local ICS & NIMS Page 13 of 36
E. Experienced and effective IC’s develop their ability to practically apply a routine
that identifies the dynamic factors related to evaluating conditions, and then
automatically translates those conditions into actions:
Conditions Achievable Goals Tactical Needs/Objectives Operational Tasks
Orders Action Evaluate Outcome Make Adjustments
F. While the IC must evaluate the conditions that caused the initial problem, he/she
must avoid the inclination to be preoccupied with what happened before he/she
arrived, and rather focus on the difference that can be made now that he/she is on-
scene. The Incident Commander should call for and manage the resources he/she
feels are needed to mitigate the event, under the guidance provided by our Risk
Management Plan. When additional resources are required, the IC must not be
timid about ordering what he/she believes to be necessary according to the event
evaluation/forecast.
G. While the IC must evaluate the conditions that caused the initial problem, he/she
must avoid the inclination to be preoccupied with what happened before he/she
arrived, and rather focus on the difference that can be made now that he/she is on-
scene. The Incident Commander should call for and manage the resources he/she
feels are needed to mitigate the event, under the guidance provided by our Risk
Management Plan. When additional resources are required, the IC must not be
timid about ordering what he/she believes to be necessary according to the event
evaluation/forecast.
H. The Incident Commander is responsible for maintaining incident control. The
essence of incident control is the ability of the Incident Commander to create,
manage, and if necessary– quickly move the position and function of the
resources he/she is responsible for. This requires everyone operating on scene to
be “enrolled” as a participant in the Incident Commander’s
deployment/accountability roll call. For this reason, proper implementation of
staging, check-in, and accountability procedures, and maintenance of crew
integrity is essential for all responders. Additionally, stationary IC’s should utilize
the Tactical Worksheet or other means to facilitate effective deployment and
accounting of incident resources.
I. Division/Group Supervisors receiving and acting on orders, and providing
progress, completion, and exception reports to Command are the IC’s basis for
evaluating outcomes and making adjustments to the IAP. Unaccounted for
freelancers operating outside the established IAP cause the IC to lose control over
deployed resources, jeopardizing the safety of all responders. Freelancing is
therefore unacceptable and will not be tolerated.
J. Both dispatch and the Incident Commander must determine the type of incident
problems that are present and what resources/agencies will be required to solve
these problems. Many times incidents require some combination and involvement
SOG 201.01 – Local ICS & NIMS Page 14 of 36
of fire, EMS, law enforcement, public works, local industry, or other mutual aid
agencies. Cooperating agencies like the Red Cross, Salvation Army or utility
companies also routinely support incident mitigation.
XI. Identification of Strategy/Development of Incident Action Plan (IAP)
A. Experience and luck are good things, but they are not enough, in and of
themselves, to consistently run an effective incident management decision-
making and operational process. Critical capabilities for the IC are to know and be
prepared for the things that are similar in similar types of incidents, to determine
and communicate how those “similarities” will routinely be handled, and to have
the ability to figure out and react to the special/different conditions that present
themselves. These capabilities combine to determine the strategy and IAP– the
operational game plan that responders will implement.
B. Referring back to Figure 1 (page 11), there are two “modes” of overall operational
strategy– offensive and defensive. Offensive operations are conducted inside the
hazard area. Defensive operations stay outside the hazard area. The modes are
position-based and are mutually exclusive– the Incident Commander must choose
one or the other, and responders must respect that choice. Under the chosen
operational mode, connecting the strategic, tactical and task levels so that they all
operate within the same basic strategy is a major IMS goal.
C. Deciding on and then managing the overall mode and strategy involves more
practical, achievable opportunity to determine overall operational and safety
success (or failure) than does any other function. The choice and effective
management of mode/strategy becomes the “moment of truth” for the whole
incident management system. Effective management of the overall mode/strategy
by the IC provides the following benefits:
1. Structures decision making and evaluation
2. Standardizes understanding and communications
3. Provides operational control
4. Improves overall effectiveness
5. Supports incident safety
D. Simply, offensive and defensive operations are different. Strategy confusion is
always a mistake. This being the case, there are a number of Critical Incident
Factors that the IC must consider when determining the operational mode and
strategy. These include:
1. Fire/hazard extent and location - How much and what part of the
building/area is involved?
2. Savable occupants - Is there anyone alive to save?
3. Fire/hazard effects - What are the structural/environmental conditions?
4. Savable property - Is there any property left to realistically save?
5. Entry and tenability - Can forces get in the building/area and stay in?
6. Ventilation profile - Which ventilation technique is appropriate? (In
general, Can’t go on roof = Can’t go inside.)
SOG 201.01 – Local ICS & NIMS Page 15 of 36
7. Special hazards - Hazmat? Confined Space? High Angle?, etc.
8. Local violence - Do we need PD to stabilize before we can operate?
9. Terrorism - Chemical? Biological? Nuclear? Explosives?
10. Resources - Are sufficient resources available for the attack?
E. A defensive mode of operation logically implies a defensive (exterior) strategy
decision. The defensive mode is a heavy-duty, cut-off oriented approach. The IC
concedes property or lives already lost to the problem, and decides where the cut
off will take place. This is why, during active defensive operations, perimeter
control becomes critical. Every responder must be aware of the basic strategic and
tactical game plan, must be offensive/defensive literate, and must be cooperative
in implementing that plan to avoid unnecessary risk to personnel. Defensive
operations (and outcomes) should not be regarded as failures– they are simply a
standard outcome that corresponds to a standard stage in the life cycle of an event.
F. Whenever and wherever our basic safety system will adequately protect personnel
from the hazardous conditions that are present, the IC should order a strong, well-
supported offensive attack that controls hazard conditions and directly protects
threatened customers. The offensive attack mode is aggressive and quickly moves
in to directly overpower the problem from within the hazard zone. Aggressive
means forceful, active, and deliberate... it also means conscious, thoughtful, and
standard. In an offensive mode, the Incident Commander may make one of the
following strategy choices: 1) Investigate, 2) Fast Action, or 3) Marginal.
G. “Nothing showing,” barring information gained from other sources, logically
implies an investigative strategy. A fast attack strategy is warranted when the
initial Incident Commander makes a conscious offensive mode decision, believing
that, within the parameters of our Risk Management Plan, initiation of immediate
intervention activities inside the hazard zone would positively impact the incident
problem. Marginal situations occur when the Incident Commander consciously
decides that responders are cleared to assume an otherwise unreasonable amount
of risk, in a highly calculated manner, to protect a savable life. A marginal
strategy decision is always tied to the probability of achieving a rescue. Quickly
completing a search and rescue is the only reason that responders should be
operating within a marginal strategy.
H. It is important to remember that mode and strategy decisions can change
throughout the life cycle of an event. The evaluation of current conditions
indicates if the situation is improving or deteriorating, placing the current event
profile on a relative scale. It is the Incident Commander’s on-going responsibility
to have the patience and discipline required to accurately assess the current
incident profile and to make adjustments to the operational game plan as required.
It is the responder’s responsibility to follow the plan as established by the IC.
SOG 201.01 – Local ICS & NIMS Page 16 of 36
Current Profile
|___________________|________________|__________________|
Investigate Fast Action Marginal Defensive
Conditions
I. Elapsed incident time notifications provide the IC a time-based measuring
standard to judge the effects that established operations are having on the incident
problem. They provide a reference point, helping the IC to gauge the current
event profile’s status. At all one alarm and greater fires, elapsed incident time
notifications will be provided to Command by the dispatcher over the tactical
radio channel every 10 minutes, beginning from the communication of the
initial report and IAP. For other incident types, the IC may request that dispatch
provide elapsed incident time notifications at a different interval(s) according to
the incident circumstances. Command will then acknowledge the notification and
re-declare the incident strategy over the tactical radio channel. For example,
“Headquarters to Manor Command, you’re at 10 minutes elapsed time.”
“Manor Command received, 10-minute elapsed time, we’re still in
offensive mode.”
J. To maintain strategic command and control over the incident, the Incident
Commander must continually ask and answer the following questions:
1. Have I effectively evaluated incident conditions?
2. Have I balanced those conditions against our Risk Management Plan?
3. Have I made a conscious offensive/defensive decision?
4. Have the troops gotten in position based on IC orders/SOGs or have the
freelanced into those positions?
5. Am I in a position to observe and hear
progress/exception/completion/condition reports so that I can effectively
evaluate changing conditions?
6. Have I forecasted what will happen in the future (5/10/15+ minutes
ahead)?
7. Do I know if the troops are OK?
8. Can I move the troops, if conditions change?
K. This concern for command and control does not mean that the IC must micro-
manage every routine event. What it does mean is that the IC establishes a
command post (or series of upgraded command posts) upon arrival by effectively
evaluating conditions, assigning crews working positions, and then
communicating with them while they work to complete the tactical/task
assignments ordered. This can be a very subtle facade, but behind it is an IC that
is tracking work progress, evaluating conditions, maintaining the inventory and
accountability system, all the while being poised to prevent/react to changes that
could hurt the workers.
SOG 201.01 – Local ICS & NIMS Page 17 of 36
L. The strategic decision describes the overall approach (and position) of the
operation and drives the Incident Action Plan (IAP). The IAP provides the tactical
assignments required to achieve the offensive/defensive goal. The IAP must
follow and match the strategy and is based on the Tactical Priorities: Life
Safety of Customers, Incident Stabilization, Property Conservation,
Customer Stabilization– all of these falling under the umbrella of assuming a
managed risk to responders (safety focus). Tactical priorities represent
intervention plans, prioritized in an appropriate order, to solve the basic problems
that are typically present at most incidents. The objectives of each tactical priority
are reflected in the following completion benchmarks:
1. “All Clear” - primary search complete.
2. “Under Control” - fire/hazard is controlled (forward progress is stopped,
no additional units will be required and there is no imminent danger to
responders).
3. “Loss Stopped” - property conservation is complete.
4. “Customer Stable” - we have attended to the short range needs of our
affected customers.
M. The list of tactical priorities provides the IC a set of functions (what to do),
priorities (when/in what order to do them), and benchmarks (how to tell when
each function is completed). Tactical priorities must be approached in order. The
IC should not proceed to the next priority until sufficient resources have been
assigned to reach the current priority. Since emergencies are dynamic events, this
is not necessarily a straightforward process. Sometimes activities have to be
combined to achieve the objective of the current priority. A common example is
when fire control and search operations must occur simultaneously to affect a
rescue.
N. Effective Incident Commanders soon discover that fires, medical emergencies,
and special operations events are more similar than dissimilar. It is essential that
the IC develop a standard approach, and then customize the IAP to fit each
situation. By doing this, the IC develops and on-going planning approach and
style that can be refined and built upon. When the operational mode/strategy
decision has been made, the IC then must identify the major tactical needs that
must be completed. These needs become the basis for assigning specific tasks to
crews, such as:
1. Offensive Mode:
a. interior hand-line attack
b. complete primary search
c. check attic/ventilation
d. initiate salvage
2. Defensive Mode:
a. EXTERIOR fire attack
b. protect exposures
c. collapse zone control
SOG 201.01 – Local ICS & NIMS Page 18 of 36
O. The IC must quickly translate tactical needs into orders that can be assigned to
groups/ crews. The Incident Commander must have the ability to look at an
incident and instinctively process the conditions they see into a set of integrated,
IAP-oriented orders that are given and then carried out by a team of responders.
This is the difference between a strategic- level command officer and a task-level,
action-oriented officer. Strong command assumption, accurate situation
evaluation, effective control of the communications process, and fast,
practical deployment all position the IC to produce a simple,
straightforward, executable game plan (IAP).
XII. Development of Incident Organization
A. The majority of incident management problems can be traced back to some type
of strategic or organizational issue. This is one reason that small-scale incidents
tend to run smoother than their large-scale counterparts. Small events require
fewer resources, are easier to follow, and tend to be over quickly. However,
things change significantly when operations escalate beyond the control capability
of the initial assignment, and additional resources are called for. This is why the
IC must quickly establish an organizational system to decentralize the incident
scene into smaller, more manageable, effective, and safer work units.
B. Effective incident scene organizations do not happen by accident. They are the
product of all the participants coming to an agreement, before incidents occur, on
how they will arrange themselves and operate together on scene, and how they
will play their assigned roles. Chief Officers are responsible for facilitating this
exchange and ensuring commitment to it– and for supporting the agreement
by leading personnel in effective pre-planning, table-top/real-time exercises,
post-incident reviews, mentoring activities, etc., and by maintaining an
overall state of discipline within the ranks. All other personnel are
responsible for honoring the operational agreement by following established
policies, guidelines, and valid orders.
C. No one is more able to influence the tactical responses that create overall incident
outcomes (positive or negative) than the Incident Commander. The key to
building a successful, used-on-every event, local incident scene organization is to
match and balance the size of the organizational structure with the number of
resources/crews operating on the scene. The challenge is to “build” the
organization as it is needed to match the profile of the incident problem.
D. Being well-organized, well-placed, and well-commanded is the most efficient and
safest way to bring problems under control. This is the Incident Commander’s
role and responsibility.
E. However, no command system will effectively compensate for a lack of basic
competence. Safe and effective task-level performance is the foundation for
building the incident organization. Effective incident operations absolutely
SOG 201.01 – Local ICS & NIMS Page 19 of 36
require skillful participants on every level who have the personal and professional
capability to play their IMS and operational roles. Responders who are competent
and operate within established benchmarks and guidelines will not need much
direction performing task-level (i.e. pulling hose lines, raising ladders,
driving/operating apparatus and equipment, etc.) assignments. Supervisors are
responsible for ensuring that all members are competent and capable of
meeting minimum performance standards.
F. We must remember that we lead primarily by example. Therefore, the attitude,
attributes, and approach we communicate by our day-to-day actions related to
IMS has a lot to do with how members view command in general. An effective
IC’s day-to-day routine should include:
1. Use the local IMS on every call
2. Stay trained/current/competent in your job responsibilities
3. Lead by example– Show that you care about workers and customer
4. Exercise self control
5. Be flexible
6. Deal promptly with setbacks
7. Commit to always do better the next time... and expect others to do so, as
well.
G. The IMS defines roles and responsibilities for all participants. It also provides a
logical place to review and evaluate how well the people and procedures
performed, providing an opportunity to continually improve the services we
provide. The IMS will be utilized on every emergency response. Always using
the system builds familiarity and provides a structured, standard response each
time. This is a key factor in starting incident operations under control, and then
maintaining control.
H. The three level (strategic/tactical/task) incident organization is built around the
type, size, and severity/complexity of the incident. The system is all-risk,
meaning it can be used for any type of emergency event. The basic system used to
manage each type of incident is the same, the only thing that changes are which
functional groups or geographic divisions are used. For example, a residential
structure fire may have an IC that manages rescue, fire control, water supply and
safety/RIC groups. An IC commanding a major motor vehicle accident may
manage extrication, treatment, and transportation groups.
I. The incident organization must be able to match the speed, size, and complexity
of the problem, and must have the following characteristics:
1. Be put into action by the first arriver at every incident.
2. Have three standard levels: Strategic, Tactical, Task.
3. Use Divisions and/or Groups to manage both the incident geography
and/or the functions that are needed.
4. Be able to expand quickly to match the profile of the incident.
SOG 201.01 – Local ICS & NIMS Page 20 of 36
5. Control the position and function of all incident scene resources and
workers.
J. Organizing the operational response with initial assignments begins in the initial
IC’s mind well before the call is ever dispatched. Since it is critical that
operations not be unnecessarily delayed, especially in fire/rescue situations, the IC
must be prepared to accurately assess the situation, develop an initial IAP, and
assign incoming units in many cases within seconds of their arrival at the Level I
staging location. To do this effectively, the initial IC must be practiced and
polished at critically listening to the initial incident information and subsequent
updates relayed from dispatch while enroute to the scene, while playing potential
event scenarios and their subsequent orders out in his/her mind. By drilling
him/herself mentally in this manner on a routine basis as well as while enroute to
a call, he/she is more prepared to accurately respond to the event “snapshot(s)”
that are encountered upon arrival, and then put crews to work in an organized
fashion, without delay.
K. Additionally, to maintain consistency, and in an effort to institutionalize the
implementation of IMS within the department, the initial Incident
Commander is responsible for completing the Initial Reporting Process over
the tactical radio channel on ALL emergency calls for service, regardless of
their size or complexity.
L. To illustrate the initial incident scene organizational requirements for escalating
incidents, refer to the following examples:
1. One- or Two- Unit Response
a. The majority of local incidents are one- or two-unit calls for
service. Examples of these include medical calls, investigations,
car/trash/dumpster/grass fires, etc. The organizational routine we
establish at these “smaller” incidents sets the stage for our
operations at larger, more complex incidents. These types of
incidents are short term and don’t require much, if any, additional
on-scene organizational support. In any case, if the initial resources
and attack solves the problem, expanding the organization stops...
IMS serves the responders, not the other way around. Examples of
initial reports for events of this type could include:
Medical Call - Heart Attack:
Upon arrival.... “Rescue 50 on scene as McFaddin Command on
alpha side....” (then, when you get to the patient)... “we have
patient contact. Fifty-year old male, full arrest. We’re starting
CPR and the AED. Have 501 respond.”
Radio transmit time: 12 seconds
SOG 201.01 – Local ICS & NIMS Page 21 of 36
Investigation - Odor Investigation:
“Engine 12 on scene as Royal Command on alpha side.
Nothing visible, no odor apparent at this time... we’re
investigating.”
Radio transmit time: 7 seconds
Dumpster Fire:
“E6 on scene as Major Command on delta side. We have a
dumpster fully involved behind the convenience store, no
exposure problem. We’re attacking the fire with the deck
gun.”
Radio transmit time: 11 seconds
Grass Fire:
“E3 on scene as Cardinal Command on the northbound service
road just south of Avenue A. We have a clump of pampas grass
on fire. We’re attacking with a pre-connect.”
Radio transmit time: 8 seconds
Dispatched as an Investigation, really is a House Fire, Scenario 1:
“E14 on scene as Dusty Command on alpha side. One story
residence, fire coming from a roof vent on the delta side. Turn
in an alarm. We’re fast action to begin primary search, passing
command to the next in unit.”
Radio transmit time: 15 seconds
Dispatched as an Investigation, really is a House Fire, Scenario 2:
“E14 on scene as Dusty Command on alpha side. One story
dilapidated house, fire coming from a roof vent on the delta
side. No evidence of occupancy. Turn in an alarm. We’re
defensive.”
Radio transmit time: 14 seconds
b. The last two examples above illustrate that, at times, situations turn
out to be more complex than we might originally assume at
dispatch. An important point to be addressed here is the concept of
“passing” command. A fast attacking Company Officer may
choose to “pass” command to the next arriving Officer– and this
may be the optimal choice, particularly when a rescue situation is
present. However, an initial IC should not routinely pass
command. Officers are responsible and will be held accountable
for completion of their standard command responsibilities.
2. Small-Scale, Multiple Unit Responses
a. Incidents that fall into this category can include single family
residence fires, small commercial fires, multiple patient medical
SOG 201.01 – Local ICS & NIMS Page 22 of 36
calls, etc. As in any case, the initial IC begins the incident scene
organization by assigning the first alarm response, or by defaulting
to a pre-determined set of assignments outlined in established
Standard Operating Guidelines for the type of incident being
addressed. If the incoming units are not assigned by the initial IC
or by SOGs, they are required to automatically follow Level I
Staging procedures (refer to SOG 205.02 - Staging: Levels I & II).
This gives the IC opportunity to make an assessment, formulate an
initial IAP, and give orders without having to worry about
incoming units freelancing over the plan. However, as stated
previously, the initial IC must not delay the assessment and
assignment of incoming units and therefore must be proficient in
his/her “read” of the current situation and corresponding
implementation of operational and command skills.
b. When the initial IC assigns units/crews, he/she is ordering work to
be done within groups or divisions– and is simultaneously
decentralizing the incident operation. When the order is given, the
IC automatically delegates the responsibility to manage the details
that go with that particular assignment. The Officer-in-Charge of
each group/division is empowered to manage the work activities
(within the IC’s plan) for their assigned area or function. This is a
major benefit to the IC– he/she has given tactical control over to a
person who is in a better position to manage those details. It is also
why the “basics”– tactical and task level competence throughout
the ranks– is so vitally important. Incident Commanders must be
secure in the capabilities of their personnel so that when an
assignment is ordered, he/she is confident that it will be effectively
completed. Examples of initial reports and assignments for events
of this type are:
House Fire:
“E10 on scene as Corley Command on the alpha side. Two
story residence, fire coming from two rooms on the second
floor, bravo side. We’re fast action for primary search. Pass
Command to next unit on scene.”
Radio transmit time: 16 seconds
Vehicle Extrication:
“E5 on scene as I-10 Command westbound at Major Drive.
One car and a dump truck, major damage.... Looks like 3
patients, we’re initiating extrication on a Ford Escort. E10
come in to assist. Med 2-triage. Send another engine, med unit
and 501.”
Radio transmit time: 18 seconds
SOG 201.01 – Local ICS & NIMS Page 23 of 36
HazMat-Overturned Highway Tanker:
“E8 on scene as Eastex Command northbound, just south of
Lawrence Drive. Overturned tanker leaking from the belly
valve, placard number 1993. We’re pulling a pre-connect and
are marginal to check the status of the driver. Pass command
to next unit on scene.”
Radio transmit time: 16 seconds
3. Medium to Large-Scale Incidents
a. The IC serves as the resource allocator for the incident and, once
groups/divisions are established, assigns additional companies
based on resource requests from assigned supervisors. By requiring
the IC to assign resources by function or location, it provides the
opportunity for him/her to enter the resource into the
inventory/accountability tracking system. The monitoring of
resources in this way then provides for a safer working
environment for all participants.
b. Command must develop and build an incident organization that
matches the deployment of resources to the incident scene. A
significant problem occurs when the IC requests and assigns
additional companies at a rate that exceeds the development of the
incident organization/ command capability. When this happens, the
IC becomes overloaded with the details of managing a large
number of companies scattered over the incident site. Command is
then overwhelmed, but may still be in need of more resources to do
the job. The IC manages this by breaking the incident scene down
into groups/divisions AND by assigning command help for
him/herself as their span of control grows.
4. Division/Group Assignment and Expansion
a. After the initial assignments, the use of divisions/groups is
expanded based on the following factors:
1. Early fire/hazard phase overload - when the number of
assigned crews threatens the IC’s ability to command.
2. Major operation predicted - when the IC forecasts that
the situation will become a major operation.
3. Isolated or remote tactical positions - when crews are
operating in positions where the IC cannot see.
4. Dangerous conditions - unsafe structural conditions,
hazardous materials, only one-way in or out.
5. Where special functions are needed - hazmat, safety,
rehab, etc.
SOG 201.01 – Local ICS & NIMS Page 24 of 36
b. Divisions/Groups will be regulated by the following guidelines:
1. Command is responsible for assigning divisions/groups
as required for effective operations.
2. Command will advise Division/Group Supervisors of
specific tactical objectives to complete. (Depending on
the nature of the problem and with time permitting, the
strategy and plan should be provided so the
Supervisor has some idea of how their assignment
fits in the big picture.)
3. The number of companies assigned to a division/group
will depend on conditions within that area. Generally,
five (5) companies represent the maximum span of
control to be assigned to a Supervisor.
4. Divisions will be identified by the naming conventions
outlined in Figures 2 and 3 on Pages 12 and 13 of this
policy.
5. Groups will be identified by function assigned (i.e
Ventilation, Safety, Water Supply, etc.).
6. Supervisors will use their group/division designation in
radio communications to Command (i.e. “Vent Group to
Command.”).
7. Divisions/Groups will be directed by a Supervisor.
Supervisors can be any fire department member
designated the assignment by Command, though in most
cases will be a Company or Chief Officer (or acting
Officer).
c. Supervisors are responsible for the following basic functions:
1. Directly supervise the assigned work.
2. Monitor personnel safety, accountability, and welfare.
3. Develop a division/group IAP that integrates with the
overall IAP.
4. Redirect division/group activities as required.
5. Request additional resources from the IC as required.
6. Integrate and coordinate with other divisions/groups as
required.
7. Regularly advise the IC of situation status, changing
conditions, progress, completion, and exception reports.
8. De-commit companies as operations are completed.
5. Assigning Command Help for the Incident Commander
a. Each IC has his/her own individual strengths and weaknesses. The
command help necessary will depend on the type and complexity
of the incident and on the command experience and capabilities of
the Incident Commander. Working under the same scenario, one
SOG 201.01 – Local ICS & NIMS Page 25 of 36
IC may have the ability to command and adequately track a one-
alarm incident with no help, while another may need assistance.
The key to effectiveness, however, is that each Incident
Commander knows his/her limitations, and order assistance when
necessary.
b. As the incident grows into and past the capabilities of the first
alarm assignment, the Incident Commander should consider
utilizing the next arriving Chief Officer as the Support Officer.
However, the IC should use discretion and, in any case, should
make every effort to utilize resources to their best advantage. If
safety is an immediate concern in a particular area, the IC may
elect to deploy the Chief Officer in that capacity. If assigned, the
roles and responsibilities of the Support Officer are:
1. Define, evaluate, and recommend changes to the plan.
2. Provide direction relating to tactical priorities, specific
critical factors, and safety.
3. Evaluate the need for additional resources.
4. Assign logistics responsibilities.
5. Assist with the Tactical Worksheet for scene and resource
control and accountability.
6. Evaluate the incident organization and span of control.
7. Other duties as necessary.
c. An additional command team position, the Senior Advisor, may
also be assigned during greater alarm operations. The Senior
Advisor will normally be the highest ranking Officer in the
command post. The persons serving as Incident Commander and
Support Officer focus on completion of the Tactical Priorities by
directing the strategic and tactical components of the incident. The
Senior Advisor’s focus is looking at the entire incident and its
impact from a broader perspective to provide additional direction,
guidance, and advice to the command team. The roles and
responsibilities of the Senior Advisor are:
1. Review and evaluate the plan, and initiate any needed
changes.
2. Provide an on-going “big picture” view of the overall
incident.
3. Review the organizational structure, initiate changes or
expansion to meet incident needs.
4. Initiate Section and Branch functions as required.
5. Provide a liaison with other City departments, public
officials, outside agencies, property owners, and tenants.
6. Other duties as necessary.
SOG 201.01 – Local ICS & NIMS Page 26 of 36
d. If assigned, the Support Officer and Senior Advisor must be
located at the command post with the Incident Commander. When
these positions are activated, they work with the IC as a team to
enhance the command process and make command function more
effectively. To avoid confusing working crews, only one of the
three command team members will use the radio designation
“Command,” and this person should be the only member of
the command team talking over the tactical radio channel.
e. Keeping all of the previous discussion in mind, effectively
organizing medium- to large-scale incidents begins with effective
completion of the Initial Reporting Process. It is then maintained
when the IC “stays ahead of the curve” strategically through
decentralization of tactical objectives and calling for command
help when needed. To illustrate, let’s look at a strip mall fire as an
example:
1. First unit on the scene (Engine 1) assumes command and
completes the Initial Reporting Process as follows,
“Engine 1 on scene as College Command on alpha
side. One story strip center, heavy smoke and flames
visible from two center occupancies. We’re defensive
to cut off the fire on the Bravo side, preparing to
make entry at the Dollar Store. (As units arrive at
their Level I staging location)-- E10- lay in and take
the Delta side, E7-water supply to E1, T1-Utility
Control, (understood for M3-medical/rehab). Turn in
a second.”
2. With just this initial report, the units working on scene
have been organized within two geographic Divisions
(Bravo & Delta) for fire control, and two functional
Groups (water supply & utility control).
3. When the Chief Officer subsequently arrives, he/she then
knows what has already been set in motion and where
crews are supposed to be located on the fireground
(accountability). His/her function now is to assume
command, check the progress of the initial IAP, make
adjustments as necessary, assign the incoming crews to
support the working crews efforts, re-assign crews as they
complete assignments or as the incident status changes,
and continue to expand/contract the incident organization
SOG 201.01 – Local ICS & NIMS Page 27 of 36
f. In the previous example, the incident is less than five minutes old,
and already has four divisions/groups in place and a stationary IC
operating strategically in the command post. Since the incident
began in an organized fashion, the IC can focus on the big picture,
react to reports, and concentrate on the effective allocation of
resources. An organized beginning has a much higher probability
of remaining under control for the duration of the incident than
does an unstructured, disorganized freelancing event
6. Branches and Sections
a. Effective incident operations have Command operating on the
Strategic level. Supervisors operate on the Tactical level. During
major operations, Branch Officers provide the
coordination/connection between Command and the
Groups/Divisions. Branches are activated when:
1. The incident is forecasted as a major event that will end
up needing many groups/divisions to control.
2. The incident has two or more distinctive components (i.e.
a large haz mat spill with a major evacuation).
3. The incident is spread over a large geographical area (i.e.
large commercial structure fires, high rises, wildland,
etc.)
4. Anytime the number of operating Divisions/Groups is
forecasted to overwhelm the IC/Unified Command Team.
b. The activation of branches signifies that the incident is going to be
split into (typically large) separate pieces. Each branch should
ideally operate on its own radio channel. When branches are
assigned the Branch Officer should be briefed by Command on the
following:
1. The overall incident action plan.
2. Their particular assignment & objectives (fire, medical,
evacuation, etc.).
3. What Divisions/Groups and other resources are assigned
to them.
4. What radio channel they will be operating on and their
radio designation.
5. Any other pertinent information.
c. Branch Officers should then insure the divisions/groups/crews
assigned to them are notified that they are now reporting to the
Branch Officer, along with the radio channel assigned to the
branch.
SOG 201.01 – Local ICS & NIMS Page 28 of 36
d. The next step in the escalation of command occurs with the
activation of Sections. As the incident continues to escalate and
before Command becomes overwhelmed, sections should be
established to support the Command Team. When Sections are
implemented, they report directly to Command. Traditionally, the
ICS has established four sections, each managed by a Section
Chief: 1) Operations, 2) Planning, 3) Logistics, 4)
Finance/Administration. Depending on the type and size of the
incident problem, a Safety Section and/or Information/Intelligence
Section may also be established. In general, the responsibilities of
each of the Sections are listed below:
7. Operations
a. Coordinating mitigation activities with the IC.
b. Implementing the IAP.
c. Assigning units to divisions/groups/branches based on the tactical
objectives and incident priorities.
d. Building an effective organizational structure through the use of
branches and divisions/groups.
e. Providing and coordinating branch and division/group tactical
objectives.
f. Determining needs and requesting resources.
g. Consulting with and informing other sections and Command as
required.
h. Supervising assigned personnel.
8. Planning
a. Evaluating the current strategy and IAP with command
b. Refining and recommending any changes to the IAP
c. Evaluating the incident organization and span of control.
d. Forecasting possible outcomes, hazard behaviors, contingency
plans.
e. Evaluating future resource requirements.
f. Utilizing technical assistance as needed.
g. Gathering, updating, improving, and managing information within
a standard, systematic method.
h. Establishing a demobilization plan.
i. Supervising assigned personnel.
9. Logistics
a. Managing the Rehab Group.
b. Managing personnel accountability outside the hazard zone.
c. Managing staging.
d. Providing and managing any needed supplies or equipment.
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e. Forecasting and obtaining future resources needs (coordinated with
Planning)
f. Providing any needed communications equipment.
g. Providing fuel and needed repairs for equipment.
h. Obtaining specialized equipment or expertise per Command.
i. Providing food and associated supplies.
j. Securing any fixed or portable facilities.
k. Coordinating immediate Critical Incident Stress Debriefing when
necessary.
l. Providing any other logistical needs requested by Command.
m. Supervising assigned personnel.
10. Finance/Administration
a. Procuring services/supplies from sources both inside and outside
the department or City, as requested by Command (coordinated
with the Logistics Section).
b. Documenting all financial costs of the incident.
c. Documenting for possible cost recovery for services/supplies used.
d. Analyzing and managing the legal risk for incidents.
e. Establishing a PIO and community relations contact with
administrators, media, politicians, community groups, etc.
f. Serving as Command’s liaison with City Officials (both political
and administrative), litigators, and regulatory agencies.
g. Monitoring and coordinating emergency service delivery to the rest
of the community during major incidents to ensure adequate
coverage.
h. Serving as the EOC representative in the Command Post (and
provides briefings to EOC staff).
i. Managing investigations.
j. Managing post incident review preparations.
11. Safety
a. Supervising Safety Officers.
b. Evaluating all aspects of the overall operation that affects safety.
c. Monitoring the safety of workers operating within the hazard zone.
d. Evaluating changing incident conditions (getting better or worse).
e. Evaluating changing structural conditions (getting better or worse).
f. Stopping unsafe acts.
g. Setting up and managing RIC teams.
h. Managing accountability within the hazard zone.
i. Evaluating the operation as it relates to the Risk Management Plan.
j. Evaluating whether the strategy matches the conditions.
k. Assisting supervisors with managing points of entry (access
control to hazard zone).
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l. Coordinating and providing technical assistance for the IC and
other Sections.
12. Information/Intelligence
a. Developing, conducting and managing information-related security
plans and operations including information and operational
security activities as well as ensuring sensitive information is
handled in such a way to safeguard the information and ensure it
gets to those who need access to it.
b. Coordinating the information- and operational-security matters
with public awareness activities that fall under the responsibility of
the Public Information Officer.
13. Unified Command
a. Whenever an incident is co-managed by two or more separate
organizations, it is operating within a unified command structure.
Examples we see every day include:
1. Medical emergencies that involve a first responder
apparatus and a med unit.
2. Residential structure fires that involve fire, EMS and
police units, along with utility companies and social
service agencies (Red Cross).
3. Mutual aid calls through the Sabine-Neches Chiefs that
involve both City and other external resources.
b. Unified command situations have historically raised the question
of which agency is/should be “In Command” at different incident
types or at a given point in time. In many localities, this has
resulted in turf battles and power struggles between agencies over
control of their resources. These battles are not in the best interest
of the customers we serve. To this end, the department/agency
that is most capable of dealing with the critical incident factors at
a given point in time will be “in command,” and acknowledged
as having Lead Agency Status. As the incident evolves, and the
critical needs of the incident change, command can be transferred
to the most appropriate agency’s representative.
c. For example, City-wide incidents whose current predominate need
is for fire, technical rescue, or hazardous materials mitigation
would logically acknowledge the fire department as having Lead
Agency Status. Incidents that have a current predominate need for
security (i.e. bomb threats, riots) would assign the police
department Lead Agency Status. A common example of a situation
where command can be transferred as the event evolves might be a
car wreck on the interstate requiring extrication of occupants with
a leaking fuel tank in one of the vehicles. Initially, while
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immediate life safety needs are present (extrication, stabilization,
and transport of patients), and until any threat from spilled
hazardous materials has been removed– the fire department would
be in Command. When these needs are mitigated and the
predominate need shifts to traffic management– the police
department would assume command.
d. Longer term incidents, like hurricane evacuations, response and
recovery (NIMS Type 5E and greater events), require intensely
coordinated unified command efforts and the activation of the
City’s Emergency Operations Center (EOC). When the incident
organization escalates to this point, the individual(s) operating at
the various emergency calls for service occurring in the field are
called Incident Commanders. The person managing the event at
the City EOC is called the Incident Manager. In any case, if the
incident is spread out over a large geographic area, the affected
areas should be broken up into manageable units (branches,
groups, divisions, etc.).
XIII. Review, Evaluation, and Revision of the IAP
A. The primary reason for the Incident Commander to perform “never-ending size-
up”– the review, evaluation and revision process– is so that workers can operate
as safely as possible, complete the tactical priorities, and go home in one piece
when their shift is over. The capability to evaluate what’s going on and then to
appropriately respond to it is the ultimate reason for implementing the functions
of command. It is how Command matches actions to conditions.
B. While review, evaluation and revision is the seventh function of command, it is
something that an effective IC does throughout an incident, beginning in the front
end of incident operations. With the effective completion of the Initial Reporting
Process, a fast-action Company Officer IC establishes the first five functions of
command from an exterior position many times within one minute of arriving on
scene. This serves to begin incident operations under control within a structured
plan.
C. Having the IC perform the standard command functions from the beginning of
incident operations provides the launching pad for the revision process, which is
required to keep the strategy and IAP in-line with current incident conditions. The
investments the IC makes early in the incident can provide major benefits when
changes need to be made later on. Conversely, when the standard command
routine is not followed, the negative effect is generally felt later on, when the IC
needs to make revisions and simply does not have the command and control
capability established to enable him/her to do so.
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D. The IC must establish effective command and control to support responder safety.
Answering “yes” to the following questions evaluates the extent to which the IC
is actually in control of an incident (is in “Command”):
1. Can the IC control him/herself?
2. Can the IC maintain an effective command position?
3. Does he/she know what’s going on in all critical areas?
4. Does the IC have an IAP?
5. Can the IC control the strategy?
6. Will the troops listen and talk to the IC?
7. Will the troops follow the IC’s instructions?
8. Can the IC evaluate the effectiveness of the operation and make
decisions?
9. Can the IC change the assignment, location, and status of his/her
resources?
10. Can the IC call for help and get it?
11. Can the IC enforce his/her plan before, during, and after the event?
12. Is the IC responsible for the overall outcome?
E. The ongoing incident evaluation must address responder safety and the tactical
priorities. The IC must first evaluate if the current Mode (Offensive/Defensive) is
correct. He/she must apply the standard Risk Management Plan as the tactical
priorities are completed and benchmarks are reported. Offensive operations are
focused on first providing for life safety, by extending and completing a primary
search, and getting an “All Clear” in the occupancy. Defensive operations are
centered on stopping the spread of fire to exposures. To minimize risk to
responders, the IC must ensure that the current strategy matches the
incident conditions AND that the tactics being employed match the current
strategy.
F. Within the Risk Management Plan, the tactical priorities are the hierarchy the IC
uses for evaluation, decision-making, and creating effective action in the four
standard operational areas (rescue/hazard control/property conservation/customer
stabilization). Being able to take control of the Critical Incident Factors (through
achievement of the tactical priorities) is the reason we are called to mitigate the
emergency. Standard actions matched with standard conditions produce
standard outcomes. When the standard actions do not have the anticipated effect,
the IC must adapt the plan. General evaluation questions to consider:
1. Does the IC have effective command/control of the operation?
2. Has he/she correctly evaluated the critical incident factors?
3. Are actions (tactics) matching conditions?
4. Is the attack response large enough to control the hazard?
5. Is the attack receiving adequate support?
6. Are adequate resources in place to reinforce the current operation?
7. Has the IC balanced resources in relation to the tactical problems?
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G. When the current plan does not meet the needs of the situation, a tactical and/or
strategic transition is required. Smooth, safe, controlled transitions required
active, coordinated management. Regular progress reports are an important part of
keeping the IAP current. Without adequate communications from the troops, the
IC can not appropriately adjust the plan. A good IAP allows room for minor
adjustments and can be expanded as conditions change.
XIV. Continuing, Transferring, and Terminating Command
A. A fast-action, mobile IC can direct his/her crew and can make initial assignments
to several other units using their portable radio. If this first set of actions solves
the problem (completes the tactical priorities), the evolution of Command ends
there. In terms of command and control, the standard objective is to provide
enough command to manage the units that will be required, for the length of time
it will take to complete tactical priorities for the incident. During this period, the
ability of the IC to effectively conduct command operations determines the
overall management effectiveness of the operation.
B. The fast-action initial IC can put the necessary (and critical) front end in place of
the Command operation, but that is his/her limit. For Command to be taken to the
next level, it must be transferred to an IC who will operate in a stationary,
strategic position. For us, when fast-action is needed, passing command to the
next unit on scene may be required. Any emergency response that exceeds the
ability of a fast-action IC to manage requires command help via a stationary
Incident Commander.
C. Transferring Command - The actual command transfer is regulated by the
following procedure:
1. The current IC (IC#1) assumes a standard command position:
Investigate Nothing Showing
Fast Action Offensive Attack
Marginal High Risk Offensive Rescue Attempt
Stationary In Command Post
2. The arriving ranking Officer contacts the current IC directly. Face-to-face
is preferable, but not always possible.
3. The IC being relieved will provide a progress report to the on-coming IC
that includes:
Situation status What do you have?
Assignments What’s been done?
Tactical Needs What do you need?
4. The new IC (IC#2) officially assumes command over the tactical radio
channel, indicating his/her position.
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Example - Residential Structure Fire:
Engine 10 is the first unit on scene and becomes IC#1 with the
following, “E10 on scene as Corley Command on the alpha side.
Two story residence, fire coming from two rooms on the second
floor, bravo side. We’re fast action for search, employing fire
control. Pass command to next in unit.”
Engine 10's completion of the Initial Reporting Process serves as
the progress report for next IC and/or the incoming Chief
Officer.
Upon arrival, Car 53 assumes Command with the following,
“Car 53 on scene, assuming Corley Command on the alpha
side.”
5. The arrival on scene of a ranking officer DOES NOT, in and of itself,
mean that command has been transferred to that ranking officer.
Command is transferred only when the standard procedure is
completed over the tactical radio channel. No matter how many Chief
Officers respond to a given emergency, there is only ONE Incident
Commander– and that is the last person who assumed command through
the established assumption/transfer of command procedures.
6. If a ranking officer arrives on scene and does not complete the command
transfer procedure as required, he/she IS NOT in command of the
operation. Ranking Officers arriving after a stationary command post has
been established will either assume command according to the standard
procedure, or report to the command post for assignment by the current
IC. A good, basic command transfer rule is– If you can’t improve the
quality of command, don’t transfer it.
D. Command Teams at Local-Level Incidents
1. Building a command team during major local incidents can be equivalent
to establishing Sections under the National Incident Management System:
EOC Officer Position Field Officer Position
Operations Section Chief = Incident Commander
Planning Section Chief = Support Officer
Incident Manager = Senior Advisor
2. As the ranking officer on scene, the Senior Advisor is ultimately
responsible for the incident outcome in the field. The Command Team is
located in the command post, working together to react to (Operations)
and anticipate (Planning) the critical incident factors, providing the same
functional benefits as Section Chiefs serving in an EOC.
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E. Terminating Command
1. When the IC comes to the end of achieving the tactical priorities, he/she
must demobilize the operating companies and terminate command.
Fatigue should be considered in the demobilization decision. In general,
the crews that arrived first should be demobilized first. Command can be
de-escalated as the incident winds down by reversing the command
transfer process to a lower-ranking, or otherwise qualified officer.
XV. National Incident Command System Documentation Requirements
A. When incidents escalate to the level of Emergency Operations Center (EOC)
activation, formal Incident Action Plans (IAPs) and other written documentation
is required. When this occurs, for each operational period for the duration of the
incident persons individually assigned to Command, General Staff, operational, or
support roles will complete the ICS 214-B: Individual Log. Additionally, the
work group’s supervisor will complete the ICS 211: Check-in for each
operational period.
B. Every individual is responsible for accurately documenting their activities (and/or
the activities of their work group). They are also responsible for ensuring that
forms are routed correctly and that they are received on-time. Since the logistical
requirements for different types of incidents may be different, it is Command’s
responsibility to communicate to responders where, when, and how these forms
will be collected.
C. The Command and General staff team will ensure that Incident Action Plans are
compiled and distributed for each operational period. Specific forms and
supplementary documentation included in the IAP may vary, depending on the
nature of the event. However, as a minimum, the IAP should include the
following forms:
1. ICS 202: Incident Objectives
2. ICS 203/207: Incident Organization List/Chart
3. ICS 204: Assignment List
4. ICS 205: Radio Communications Plan
5. ICS 206: Medical Plan
D. When Sections are implemented, Section Chiefs will ensure that the appropriate
ICS forms are being completed and distributed to support the efficient and
effective management of the incident.
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