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A PPENDIX B:
I NCIDENT C OMMAND S YSTEM
A. P URPOSE
Appendix B provides additional explanation and examples relating to the Incident Command System (ICS); this appendix, however, is not a substitute for ICS training.
ICS is used for a broad spectrum of incidents, from routine to complex, both naturally occurring and manmade, by all levels of government—Federal, State, tribal, and local—as well as nongovernmental organizations (NGOs) and the private sector. It is the combination of facilities, equipment, personnel, procedures, and communications operating within a common organizational structure, designed to aid in incident management activities.
Some of the more important “transitional steps” that are necessary to apply ICS in the incident scene environment include the following:
- Recognizing and anticipating the requirement that organizational elements be activated and taking the necessary steps to delegate authority, as appropriate.
- Establishing incident facilities as needed, located to support field operations.
- Establishing the use of common terminology for organizational elements, position titles, facilities, and resources.
- Rapidly evolving from oral direction to the development of a written Incident Action Plan (IAP).
B. ORGANIZATION OF THIS APPENDIX
The major elements of ICS are organized into the following 10 tabs:
- Tab 1—ICS Organization
- Tab 2—The Operations Section
- Tab 3—The Planning Section
- Tab 4—The Logistics Section
- Tab 5—The Finance/Administration Section
- Tab 6—Establishing an Area Command
- Tab 7—Facilities and Locations
- Tab 8—The Planning Process and the IAP
- Tab 9—ICS Forms
- Tab 10—Summary of Major ICS Positions
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- Performing the function of any nonactivated organizational element at the next highest level.
- Deactivating organizational elements no longer required.
For reference, Table B-1 describes the distinctive title assigned to each element of the ICS organization at each corresponding level, as well as the leadership title corresponding to each individual element.
Table B-1. ICS Organization
Organizational Element Leadership Position Title Support Positions
Incident Command Incident Commander Deputy
Command Staff Officer Assistant
Section Section Chief Deputy
Branch Branch Director Deputy
Divisions and Groups Supervisors N/A
Unit Unit Leader Manager, Coordinator
Strike Team/Task Force Leader Single Resource Boss, Companies/Crews
Single Resource Boss Boss N/A
Technical Specialist Specialist N/A
1. COMMAND STAFF
In an ICS organization, Incident Command consists of the Incident Commander and various Command Staff positions. The Command Staff are specifically designated, report directly to the Incident Commander, and are assigned responsibility for key activities that are not a part of the General Staff functional elements. Three staff positions are typically identified in ICS: Public Information Officer, Safety Officer, and Liaison Officer. Additional positions may be required, such as technical specialists, depending on the nature, scope, complexity, and location(s) of the incident(s), or according to specific requirements established by the IC.
a. Public Information Officer
The Public Information Officer is responsible for interfacing with the public and media and with other agencies with incident-related information requirements. The Public Information Officer assembles accurate, accessible, and complete information on the incident’s cause, size, and current situation; the resources committed; and other matters of general interest for both internal and external audiences. The Public Information Officer may also perform a key public information-monitoring role, such as implementing measures for rumor control. Whether the command structure is single or unified, only one Public Information Officer should be designated per incident. Assistants may be assigned from other involved departments or agencies. The IC must approve the release of all incident-related information. In large-scale incidents or where multiple command posts are established, the
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Public Information Officer should participate in or lead the Joint Information Center in order to ensure consistency in the provision of information to the public.
b. Safety Officer
The Safety Officer monitors incident operations and advises Incident Command on all matters relating to operational safety, including the health and safety of emergency responder personnel. The ultimate responsibility for the safe conduct of incident management operations rests with the IC or Unified Command (UC) and supervisors at all levels of incident management. In turn, the Safety Officer is responsible for developing the Incident Safety Plan—the set of systems and procedures necessary to ensure ongoing assessment of hazardous environments, coordination of multiagency safety efforts, and implementation of measures to promote emergency management/incident personnel safety, as well as the general safety of incident operations. The Safety Officer has emergency authority to stop and/or prevent unsafe acts during incident operations.
In a UC structure, a single Safety Officer should be designated regardless of the involvement of multiple jurisdictions or functional agencies. The Safety Officer, Operations Section Chief, Planning Section Chief, and Logistics Section Chief must coordinate closely regarding operational safety and emergency responder health and safety issues. The Safety Officer must also ensure the coordination of safety management functions and issues across jurisdictions, across functional agencies, and with NGOs and the private sector.
It is important to note that the agencies, organizations, or jurisdictions that contribute to joint safety management efforts do not lose their individual identities or responsibility for their own programs, policies, and personnel. Rather, each contributes to the overall effort to protect all responder personnel involved in incident operations.
Assistant Safety Officers may be assigned from departments or agencies constituting the UC. Some types of incidents, such as a hazardous materials incident, require Assistant Safety Officers to have special skill sets. The Assistant Safety Officer positions described below are examples of such positions, and Figure B-1 illustrates how the Safety Officer and example Assistant Safety Officers could be positioned in an incident.
- The Assistant Safety Officer for hazardous materials would be assigned to carry out the functions outlined in 29 CFR 1910.120 (Hazardous Waste Operations and Emergency Response). This person should have the required knowledge, skills, and abilities to provide oversight for specific hazardous material operations at the field level.
- The Assistant Safety Officer for fire would be assigned to assist the Branch Director providing oversight for specific fire operations. This person would have the required knowledge, skills, and abilities to provide this function.
- The Assistant Safety Officer for food would be assigned to the Food Unit to provide oversight of food handling and distribution. This person would have the required knowledge, skills, and abilities to provide this function. An example would be a food specialist from a local health department.
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c. Liaison Officer
The Liaison Officer is Incident Command’s point of contact for representatives of other governmental departments and agencies, NGOs, and/or the private sector (with no jurisdiction or legal authority) to provide input on their organization’s policies, resource availability, and other incident-related matters. In either a single or unified command structure, representatives from assisting or cooperating organizations coordinate through the Liaison Officer. Organizational representatives assigned to an incident must have the authority to speak for their parent agencies and/or organizations on all matters, following appropriate consultations with their agency leadership. Assistants and personnel from NGOs and the private sector involved in incident management activities may be assigned to the Liaison Officer to facilitate coordination.
d. Additional Command Staff
Additional Command Staff positions may also be necessary depending on the nature and location(s) of the incident, or specific requirements established by Incident Command. For example, a legal counsel may be assigned to the Planning Section as a technical specialist or directly to the Command Staff to advise Incident Command on legal matters, such as emergency proclamations, legality of evacuation orders, isolation and quarantine, and legal rights and restrictions pertaining to media access. Similarly, a medical advisor may be designated and assigned directly to the Command Staff to provide advice and recommendations to Incident Command in the context of incidents involving medical and mental health services, mass casualty response, acute care, vector control, epidemiology, or mass prophylaxis considerations, particularly in the response to a bioterrorism incident.
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example, if one Group and four Divisions are reporting to the Operations Section Chief, and two Divisions and one Group are to be added, a two-Branch organization may be formed.
The type of incident, nature of the task, hazards and safety factors, and distances between personnel and resources all have an influence on span-of-control considerations.
Figure B-2. Geographic Branch Organization
2. Incident Calls for a Functional Branch Structure
A functional Branch structure can be illustrated through an example: If a large aircraft crashes in a city, various departments within the city (including police, fire, emergency services, and public health services) might each have a functional Branch operating under the direction of a single Operations Section Chief. In this example (shown in Figure B-3), the Operations Section Chief is from the fire department, with deputies from police and emergency medical services (EMS). Other alignments could be made, depending on the city plan and type of emergency. Note that, in this situation, the command structure could be either single or unified, depending on the jurisdiction.
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Figure B-3. Deputy Operations With Functional Branch Structure
3. Incident Calls for a Multijurisdictional Branch Structure
The response to a major flood might require combining Federal, State, tribal, and local resources. In this case, resources are best managed under the agencies that normally control them, creating a multijurisdictional Branch structure, as illustrated in Figure B-4.
Figure B-4. Multijurisdictional Incident
C. DIVISIONS AND GROUPS
Divisions and Groups are established when the number of resources exceeds the Operations Section Chief’s manageable span of control. Divisions separate physical or geographical areas of operation within the incident area. Groups separate functional areas of operation for the incident.
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3. Combined Geographical Divisions and Functional Groups
It is also possible to have both Divisions and Groups within the Operations Section. For example, Divisions A, B, and C (based on geographical locations) may work in conjunction with functional Groups assigned to specific tasks (e.g., traffic control and smoke ventilation) in those locations. Alternatively, Groups may be assigned throughout the entire incident and may work independently or in conjunction with Divisions. Organizationally, the Supervisors of Divisions and Groups have the same level of authority.
D. RESOURCE ORGANIZATION
Initially, in any incident, responding individual resources (single resources, Strike Teams, and Task Forces) will report directly to the IC/UC. Task Forces and Strike Teams are an effective way to reduce the span of control over a large number of single resources. As the incident grows in size or complexity, these individual resources may operate within Divisions and/or Groups.
1. Single Resources
Resources may be employed on a single basis, such as individual personnel, equipment, and any associated operators. This is typically the case in the context of the initial response to the incident.
2. Task Forces
Task Forces are any combination of resources convened to accomplish a specific mission and can be ad hoc or planned. Task Forces include a designated leader and operate with common communications. Several key resource elements can be managed under one individual’s supervision, thus aiding in span of control. As an example, during a flood incident, a public works Task Force might be established, with the mission of opening storm drains. It might consist of a dump truck, a backhoe, a front loader, a five-person crew with shovels and transportation, and a Task Force Leader (e.g., public works foreman with vehicle and communications).
3. Strike Teams
A Strike Team consists of a set number of resources of the same kind and type operating under a designated leader with common communications between them. Strike Teams represent known capability and are highly effective management units. As an example, for a fire response a Strike Team could consist of five Type I engines and a Strike Team Leader. The Strike Team Leader is required to have a vehicle with communication capabilities to communicate with his or her team.
E. AIR OPERATIONS B RANCH
The Operations Section Chief may establish an Air Operations Branch and designate its director, when the complexity of air operations requires additional support and effort or when the incident requires mixing tactical and logistical utilization of helicopters and other
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aircraft. Aviation safety is a paramount concern in complex operations, and a designated Air Operations Branch ensures the safe and efficient use of aviation resources. Figure B- shows a typical organizational structure for air operations.
Whenever helicopters and fixed-wing aircraft must operate simultaneously within the incident airspace, an Air Tactical Group Supervisor should be designated. This individual coordinates all airborne activity with the assistance of a helicopter coordinator and a fixed- wing coordinator. When only one helicopter is used, however, the helicopter may be directly under the control of the Operations Section Chief.
The Air Support Group establishes and operates bases for rotary-wing air assets and maintains required liaison with off-incident fixed-wing bases. The Air Support Group is responsible for all timekeeping for aviation resources assigned to the incident.
Figure B-7. Air Operations Organization
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b. Changes in Status
Typically, when the status of a resource has changed (e.g., a unit that was previously listed as “out of service” is reclassified as “available”), the Unit Leader or the supervisor who approved the status change should immediately notify the Resources Unit Leader, who, in turn, will make the appropriate status reclassification.
C. S ITUATION UNIT
The Situation Unit collects, processes, and organizes ongoing situation information; prepares situation summaries; and develops projections and forecasts of future events related to the incident. The Situation Unit prepares maps and also gathers and disseminates information and intelligence for use in the IAP. This Unit should be prepared to provide timely situation reports as scheduled or at the request of the Planning Section Chief or IC. This Unit may also require the expertise of technical specialists.
D. DOCUMENTATION U NIT
The Documentation Unit maintains accurate and complete incident files, including a complete record of the major steps taken to resolve the incident; provides duplication services to incident personnel; and files, maintains, and stores incident files for legal, analytical, and historical purposes. This Unit compiles and publishes the IAP and maintains the files and records that are developed as part of the overall IAP and planning function.
E. DEMOBILIZATION UNIT
The Demobilization Unit develops an Incident Demobilization Plan that includes specific instructions for all personnel and resources that will require demobilization. This Unit should begin its work early in the incident, creating rosters of personnel and resources, and obtaining any missing information as check-in proceeds. Note that many city- and county- provided resources are local, and as such do not require specific demobilization instructions. Once the Incident Demobilization Plan has been approved, the Demobilization Unit ensures that it is distributed both at the incident and elsewhere as necessary.
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Examples of Technical Specialists Agricultural specialist Chemical or radiological decontamination specialist Communication specialist Cultural resource specialist Data management specialist Emergency medical services specialist Environmental impact specialist Epidemiologist Explosives specialist Faith community representative Firefighter specialist Flood control specialist Forensic pathologist Hazardous materials technician Homeland security specialist Industrial hygienist Intelligence specialist Law enforcement specialist Legal counsel Mass care specialist Meteorologist Military specialist Mortuary affairs specialist Numerical modeler Occupational safety and health specialist Pharmacist Public health specialist Public relations specialist Radiation health specialist Records management specialist Resource/cost specialist Scientific support coordinator Special needs advisor Structural engineering specialist Toxicologist Transportation specialist Veterinarian Waste management specialist Water-use specialist
F. TECHNICAL S PECIALISTS
ICS is designed to function in a wide variety of incident scenarios that require the use of technical specialists. These personnel have special skills and are activated only when needed. Specialists may serve anywhere within the organization, including the Command Staff. No specific incident qualifications are prescribed or required, as technical specialists normally perform the same duties during an incident that they perform in their everyday jobs, and they are typically certified in their fields or professions.
Technical specialists are most often assigned to the specific area (Section, Branch, Unit, Division, etc.) where their services are needed and performed. In some situations they may be assigned to a separate Unit within the Planning Section, much like a talent pool, and assigned out to various jobs on a temporary basis. For example, a tactical specialist may be sent to the Operations Section to assist with tactical matters, a financial specialist may be sent to the Finance/Administration Section to assist with fiscal matters, or a legal specialist or legal counsel may be assigned directly to the Command Staff to advise the IC/UC on legal matters, such as emergency proclamations, legality of evacuation orders, isolation and quarantine, and legal rights and restrictions pertaining to media access. Generally, if the expertise is needed for only a short period and involves only one individual, that individual should be assigned to the Situation Unit. If the expertise will be required on a long- term basis and requires several persons, it is advisable to establish a separate Technical Unit in the Planning Section.
A specific example of the need to establish a distinct Technical Unit within the General Staff is the requirement to coordinate and manage large volumes of environmental samples or analytical data from multiple sources in the context of certain complex incidents, particularly those involving biological, chemical, or radiological hazards. To meet this requirement, an Environmental Unit could be established within the Planning Section to facilitate interagency environmental data managing, monitoring, sampling, analyzing, and assessing. The Environmental Unit would prepare environmental data for the Situation Unit and work in close coordination with other Units and Sections within the ICS structure to enable effective decision support to the IC or UC. Technical specialists assigned to the Environmental Unit might include a scientific support coordinator as well as technicians proficient in response technologies, weather forecast, resources at risk, sampling, cleanup assessment, and disposal.
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TAB 4—T HE L OGISTICS S ECTION
The Logistics Section provides for all the support needs for the incident, such as ordering resources and providing facilities, transportation, supplies, equipment maintenance and fuel, food service, communications, and medical services for incident personnel.
The Logistics Section is led by a Section Chief, who may also have one or more deputies. Having a deputy is encouraged when all designated Units are established at an incident site. When the incident is very large or requires a number of facilities with large numbers of equipment, the Logistics Section can be divided into Branches. This helps with span of control by providing more effective supervision and coordination among the individual Units. Conversely, in smaller incidents or when fewer resources are needed, a Branch configuration may be used to combine the task assignments of individual Units. Figure B- provides an example of the Logistics Section organized with Service and Support Branches.
Figure B-8. Logistics Section With Branch Organizational Structure
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A. S UPPLY U NIT
The Supply Unit orders, receives, processes, stores, inventories, and distributes all incident- related resources and supplies.
Once established, the Supply Unit also has the basic responsibility for all off-incident ordering, including the following:
- All tactical and support resources (including personnel).
- All expendable and nonexpendable supplies required for incident support.
The Supply Unit provides the support required to receive, process, store, and distribute all supply orders. The Unit also handles tool operations, which includes storing, disbursing, and servicing tools and portable, nonexpendable equipment. Additionally, the Supply Unit assists in projecting resource needs based on information provided in the IAP.
B. F ACILITIES U NIT
The Facilities Unit sets up, maintains, and demobilizes all facilities used in support of incident operations. The Unit also provides facility maintenance and law enforcement/security services required for incident support.
The Facilities Unit sets up the Incident Command Post (ICP), Incident Base, and Camps (including trailers or other forms of shelter for use in and around the incident area); it also provides the services associated with maintaining those functions. The Incident Base and Camps may be established in areas having existing structures, which are used in whole or in part. The Facilities Unit also provides and sets up necessary personnel support facilities, including areas for the following:
- Food and hydration service.
- Sleeping.
- Sanitation and showers.
- Staging.
This Unit also orders, through Supply, such additional support items as portable toilets, shower facilities, and lighting units.
C. GROUND S UPPORT U NIT
The Ground Support Unit:
- Maintains and repairs primary tactical vehicles and mobile ground support equipment.
- Records usage time for all ground equipment (including contract equipment) assigned to the incident.
- Supplies fuel for all mobile equipment.
- Provides transportation in support of incident operations (except aircraft).
- Develops and implements the incident Traffic Plan.
Providing shelter for victims is a critical operational activity, which should be incorporated into the IAP. Sheltering is normally conducted by appropriate nongovernmental organization staff, such as the American Red Cross or other similar entities.
