Deanne Shulman Senior Emergency Management Specialist International Programs, U.S. Forest Service

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Deanne ShulmanSenior Emergency Management
SpecialistInternational Programs, U.S. Forest
Service
Overview of the Incident Command System as
Practiced in the U.S.

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Presentation Topics

1. NIMS Supporting Features for ICS
2. Incident Management Teams
3. ICS in an International Context

1. Origins of ICS
2. What is ICS
3. ICS Concepts and Capabilities
4. ICS Organizational Functions

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Global Trends Towards Increasing Disaster
Complexity

• Population growth and spread of urban areas
• Greater life, property loss from natural and
  human caused technological disasters
• Language and cultural differences
• More multi-jurisdictional incidents

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Global Trends Towards Increasing Disaster
Complexity (cont.)

• Need to share resources
• More complex and inter-related incident
  situations
• Sophisticated media coverage
• Complicated cost decisions on incidents

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1970s Scenario Disaster Management Challenges
in the US

• Different emergency response organizational
  structures
• Unclear or unspecified incident objectives
• Lack of reliable incident information
• No mechanism for coordinated planning between
  agencies
• Unclear lines of authority
• Terminology differences between agencies
• Inadequate and incompatible communications
• Too many people reporting to one supervisor

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New System Criteria

• The system must be organizationally flexible to
  meet the needs of incidents of any kind and
  size.
• Agencies must be able to use the system on a
  day-to-day basis for routine situations as well
  as for major emergencies.
• The system must be sufficiently standard to allow
  personnel from a variety of agencies and diverse
  geographic locations to rapidly meld into a
  common management structure.
• The system must be cost effective.

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Development Sequence Incident Command System

• 1970s emergency response challenges led to
  recognition of need for a standardized system of
  disaster response
• US Forest Service (USFS) tasked as lead agency to
  develop a better system
• 1980s - ICS adapted for all-hazard emergency
  and disaster response
• Now utilized for all emergency/disaster response
  in the US and introduced to other countries

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National Incident Management System (NIMS)
March, 2003

• Presidential Directive that mandates use of the
  National Incident Management System (NIMS)
• Establishes a single, comprehensive, and common
  national approach to domestic incident
  management, used by all levels of government

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National Incident Management System

• Command and management
• Preparedness
• Resource management
• Communications and information management
• Supporting technologies
• Ongoing management and maintenance

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US Government Structure and Context of ICS

• Multiple agencies and jurisdictions at the local,
  state, and federal levels
• Recognized need for resource sharing
• Decentralized decision making authority for
  emergency response local levels

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US Government Structure and Context of ICS (cont)

• Delegation of authority to emergency management
  specialists
• ICS positions based on expertise and
  qualifications
• The US has a vast pool of technical response
  units for all types of disasters

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What is ICS?

• Single standardized incident management system
  used by all emergency response disciplines
• Multi-hazard disaster response leadership
  structure for COMMAND AND MANAGEMENT specific
  technical competency skills are integrated in the
  ICS organization
• Provides accurate information, strict
  accountability, planning, and cost effective
  operations and logistical support for any
  incident

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ICS in a Hazard Warning Context

National and Regional Data Collection and
Interpretation (seismic, weather, hydrologic,
tsunami)
National Focal Point for Hazard Warning
Disaster Response Activated Incident Command
System
Hazard Warning Dissemination
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Basic ICS Concepts

• The ICS is a multi-hazard disaster response
  management organization structure specific
  technical competency skills are integrated in the
  ICS organization
• ICS used on day-to-day basis for routine
  incidents as well as for major emergencies
  activated at first response

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For ExampleDay to Day Routine Incident
Structure Fire
Motor Vehicle Accident
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Basic ICS Concepts

• Command vs. Coordination
• Command is the direct management of the on-scene
  operations
• Coordination and support functions serve the
  needs of the command function generally located
  away from the site

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Basic ICS Concepts

• Non-Permanent Organization
• The ICS is activated in response to an emergency
• NOT a permanent organizational structure or
  secretariat
• During an emergency, ICS qualified personnel
  leave regular positions

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Basic ICS Concepts

• Clarity on roles and responsibilities
• Position descriptions provide written roles and
  responsibilities
• Clear
• Lines of authority
• Chain of command
• Reporting requirements

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Basic ICS Concepts

• Delegation of Authority
• The responsible official establishes policy,
  direction, parameters, and delegates authority
  to the Incident Commander
• Responsible official retains some authorities as
  deemed critical (ex budget, media releases,
  etc.)

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Responsible Official

Incident Commander
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Basic ICS Concepts

• Delegation of Authority (cont.)
• Responsible official generally not at scene all
  the time but maintains contact as needed
• Political or administrative official relies on
  disaster management professionals

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Responsible Official
Type 2 Incident Commander
Local Incident Commander

Type 1 Incident Commander
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Incident Command System Capabilities

• Provides for a single management system for
  multi-jurisdictional incidents
• Modular - Allows expansion and contraction
  depending on size and complexity of incident
• Used on any type or size of incident

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Incident Command System Capabilities (cont.)

• Structured to integrate any type of resource
  including police, military, technical experts,
  and NGOs
• Can be used to manage sudden onset disasters,
  relief efforts, long-term recovery, or
  non-emergency events

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ICS Features

• Clear objectives and priorities
• Defined operational periods
• Incident Action Plan
• Common terminology

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ICS Features (cont)

• Common communications
• Uniform resource typing
• Written Position Descriptions
• Roles and responsibilities defined
• Clear lines of authority, chain of command and
  reporting requirements
• Standardized personnel qualifications and
  training national coordinating group

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ICS Major Organization Functions
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Five Major Management Activities

• Command
• Sets objectives
• Sets priorities
• Overall responsibility at the incident
• Planning
• Develops the action plan to accomplish the
  objectives
• Collects and evaluates information
• Maintains resource status
• Maintains incident documentation

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Five Major Management Activities

• Logistics
• Provides support to meet incident needs
• Provides resources and all other services needed
  to support the incident
• Finance/Administration
• Monitors costs related to incident
• Provides accounting, procurement, time recording,
  and cost analyses

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Five Major Management Activities

• Operations
• Conducts tactical operations to carry out the
  plan
• Develops the tactical objectives, organization,
  and directs all resources

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ICS Major Organization Functions
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Planning Section
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For Example World Trade Center
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The World Trade Center 11 September 2001

• The planning section was asked to develop a
  comprehensive plan for the rescue and recovery of
  the World Trade Center Disaster
• The Incident Action Plan included a summary of
  the cooperating agencies (26), objectives, daily
  assignments and accounted resources.

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LogisticsSection
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For Example Hurricane Rita
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The challenge of bringing supplies during an
evacuation
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Finance / Administration Section
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OperationsSection

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Initial Response
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Span of Control

• Number of resources
• Complexity of the incident
• What is needed
• Safety
• Cost effectiveness

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Flooding
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Flood Example Branches Divisions
E
D
C
Branch I
F
B
I
Branch II
A
G
J
H
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Earthquake Example Roads as Divisions
D
B
C
E
A
G
H
F
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Earthquake Example Functional Groups
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Example Small IncidentMt. Saint Helens
Volcano

• The responsible official requested an Incident
  Management Team comprised of the Command and
  General Staff to monitor and develop a public
  safety and education program while the volcano
  was active and presented a potential threat to
  local communities.

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Example Small to Complex Incident Fire Dynamic
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Example of a Complex IncidentHurricane Ivan
Multi-Branch
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Initial Response Organization
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Reinforced Response Organization
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Multi-Group / Division Response Organization
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Multi-Branch Organization
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International Assistance
National Coordination Centers
Responsible Official
Response Agencies, Equipment and Supply Caches
Contracts
State Coordination Centers
Local Coordination Centers
Resource Requests
Incident Commander Incident
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Multi-Agency Coordination Groups
Responsible Official
Incident Status Situation Summary

• EOCs
• Response Agencies
• Police
• Medical
• Fire Rescue
• Public Works
• etc.

Resource Availability
Incident Commander Incident
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Responsible Official
Area Command
Incident Commander Incident C
Incident Commander Incident A
Incident Commander Incident B
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Key Points of ICS

• Delegation of Authority
• Flexible and dynamic
• Provides consistency
• Relies on functionalism
• Works on all incidents no matter the scope or size

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Summary ICS

• Provides a Plan
• Organizes the resources
• Implements the actions
• Supports all personnel
• Effective Leadership Model

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Type 1 Incident Teams in the United States

• There are currently 17 Type 1 teams in the US.
• The teams are formed in Geographic Areas
  according to a number of factors
• Availability of team members.
• Location to recurring disasters.
• Available on rotational basis

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Team Esprit de Corps

• Type 1 teams are recognized as the elite for
  disaster management.
• Type 1 teams consist of the highest qualified and
  most experienced individuals
• It is considered an honor to be selected for a
  Type 1 team.
• Membership is career enhancing

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Advantages of Pre-Established Teams

• Local teams and first responders often become
  victims of large disasters.
• Standing teams have the advantage of experience
  based effectiveness and efficiencies no more
  than 20 turnover per year.
• Teamwork enhanced through years of experiences on
  complex, challenging assignments.

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Advantages of Pre-Established Teams (cont.)

• Pre-established Teams ensures availability when
  the need exists 24/7 availability through
  on-call rotation system.
• Rapid mobilization through one call.
• Background of diversity and experiences in
  incident management leads to knowledge
  knowledge leads to wisdom wisdom leads to the
  ability to anticipate and meet the needs of the
  Responsible Official, those affected, and the
  public.

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Features of the Training and Qualifications System

• Establishes minimum training, skills, knowledge,
  experience, fitness and qualifications standards.
• Is a Performance Based system using approved
  standards.
• Qualification is based on demonstrated
  performance, not rank or position.
• Maintain databases of trained and qualified
  persons

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Examples of US Incidents Using ICS

• Exxon Valdez Oil Spill 1989
• Hurricane Iniki, Hawaii 1992
• Northridge Earthquake 1993
• Oklahoma City bombing 1995
• World Trade Organization, Seattle riots 1999
• Pentagon, World Trade Center terrorist attack
  2001
• Winter Olympics Salt Lake City security
  preparedness 2002
• Exotic Newcastles Disease, California 2003
• Columbia Space Shuttle Recovery 2003
• Political Conventions 2004
• Hurricanes 2004, 2005, 2006

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ICS An Evolving System

• No quick solutions
• On-going evaluation
• Hard work, compromise and commitment
• Commitment to interagency training, simulation
  exercises, and drills
• Combination of political will and administrative
  machinery are critical

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Countries in which USFS Conducted ICS Courses

• Canada
• Australia
• Mexico
• Bulgaria
• Mongolia

• India
• Sri Lanka
• Association of Southeast Asian Nations
• (10 member countries)

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Countries Using ICS

• United States
• Canada
• Australia
• New Zealand
• Mexico (in transition for wildland fire)
• Sri Lanka (in transition)
• India (trained in use)
• United Nations FAO and UNICEF deliberating use
• ICS is emerging as the common language of
  disaster response globally

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ICS in Asia

• India since 2002
• Ministry of Home Affairs focal point
• ASEAN since 2004
• ASEAN Committee on Disaster Mgmt focal point
• Regional application
• Pilot countries established
• Sri Lanka since 2005
• Ministry of Disaster Management and Human Rights
  focal point
• SAARC?

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ICS Integration Strategy

• Phase 1 Foundation and System Adaptation
• Phase 2 - Formal training-of-trainers course
  curriculum in ICS (8 courses)
• Phase 3 Implementation of ICS, establishing
  teams, simulation exercises

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Phase 1 Foundation and System Adaptation

• Identify partner institutions
• Brainstorming workshop and consultations
• Develop ICS framework document with adaptations
  to government and cultural context
• Develop comprehensive training plan with focal
  training institution, curriculum,
  train-the-trainer scheme
• Develop time line of collaborative activities to
  integrate ICS into disaster response system

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Phase 2 Train-the-Trainer ICS Course Curriculum

• Adapt course materials to country context
• Conduct an 8-course ICS curriculum covering all
  aspects of the system
• Provide training materials to focal training
  institution
• Conduct study tours to the U.S. on disaster
  management
• Monitor first offerings of ICS course by country
  trainers

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Phase 3 Implementation Activities

• Provide technical consultation to assist
  establishing system and teams
• Facilitate disaster simulation exercises

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Summary of Important Points

• ICS can resolve coordination issues in a multiple
  agency/institution context
• 2. ICS allows delegation of emergency management
  to trained professionals
• 3. ICS used on all types and scales of emergency
  response, on a daily basis for routine
  emergencies as well as large scale disasters
• 4. Training, simulation drills, practice,
  practice, practice

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Reference Sources
http//www.fs.fed.us/r5/fire/management/ics/inde
x.php, http//www.fs.fed.us/fire/planning/nist/i
cs_forms.htm http//www.fema.gov/txt/nims/nims_ic
s_position_paper.txt http//www.nimsonline.com/do
wnload_center/index.htm, (go towards the
bottom to see ICS courses) http//training.fema.g
ov/EMIWeb/IS/ICSResource/ICSResCntr_Training.htm,

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Thank You

• For
• Your Kind Attention