Understanding Incident Command System for Volunteer Responders

Ryan Garver

Founder

Volunteer responders play a vital role in supporting emergency services and providing aid to communities during crises. However, effectively coordinating response efforts across multiple agencies and organizations can be extremely challenging, especially during rapidly evolving, large-scale incidents. The Incident Command System (ICS) and National Incident Management System (NIMS) were developed to enable more structured and streamlined emergency response through consistent terminology, standardized organizational structures, unified command, and more.

For volunteer groups collaborating with professional response agencies, having a solid understanding of ICS and NIMS is critical. This allows volunteer responders to seamlessly integrate into the broader response framework. It also ensures efficient communication and coordination between volunteers and served agencies.

This article provides a comprehensive overview of key ICS and NIMS concepts and practices. It will equip volunteer responders with the knowledge to improve coordination and interoperability when supporting response efforts. Whether managing a small-scale incident or scaling up for a complex disaster, applying ICS/NIMS principles as a volunteer responder can optimize outcomes for those affected.

History & Motivation

The Incident Command System (ICS) was developed in the 1970s following a series of catastrophic fires in California’s urban interface. The fires demonstrated that the command and control systems used by municipal fire departments were inadequate for handling complex, multi-agency emergency responses.

To address these gaps, federal, state, and local officials came together to create a standardized emergency management system that could be used across jurisdictions. This new system needed to allow for integrated communications, a manageable span of control, comprehensive resource management, and a clear chain of command.

In the early 2000s, following the terrorist attacks of September 11, 2001 and later reinforced by large-scale natural disasters like Hurricane Katrina, the need for a comprehensive national incident management system was recognized. This led to the creation of the National Incident Management System (NIMS) in 2004. NIMS provides a consistent nationwide approach for federal, state, local, and tribal governments to work together during incidents.

ICS is a core component of NIMS, providing the organizational structure and coordination mechanisms. The motivation behind ICS and NIMS was to enable integrated management of incidents by multiple agencies, jurisdictions, and levels of government. Key reasons for their creation include:

• Standardization - ICS provides a common framework, terminology and processes to enable coordination between disparate organizations. This facilitates efficient incident management.
• Scalability - The ICS organizational structure can grow or shrink based on incident needs. This scalable approach allows effective management of simple or complex incidents.
• Interoperability - Consistent use of ICS across agencies and jurisdictions enables different organizations to interoperate and integrate efforts seamlessly.
• Accountability - ICS has built-in accountability with a clear chain of command and unity of command principles. This supports effective resource coordination and management.

The implementation of ICS and NIMS has enabled more effective emergency management across the country. Their principles facilitate scalable, flexible, and adaptable coordination during incidents involving single or multiple jurisdictions and agencies. For volunteer responders, understanding ICS and NIMS is crucial for seamlessly integrating with professional response efforts when major emergencies occur.

ICS Organizational Structure

The Incident Command System (ICS) provides a standardized hierarchical structure for managing incidents of any size or complexity. At the top is the Incident Commander (IC), who has overall responsibility for managing the incident. The IC may have a deputy, who can take over IC responsibilities if needed.

Under the IC are four sections that can be activated as needed:

• Operations - Responsible for directing all tactical actions to carry out the plan and achieve the incident objectives. This includes deploying resources and overseeing operations.
• Planning - Develops the Incident Action Plan to drive response activities. Collects and evaluates information, tracks resources, and looks ahead to anticipate future needs.
• Logistics - Provides resources and services like facilities, transportation, supplies, equipment maintenance and fueling, food services, communications, and medical services for incident personnel.
• Finance/Administration - Monitors costs related to the incident, provides accounting, procurement, time recording, cost analyses, and overall fiscal guidance.

In addition, Command Staff positions report directly to the IC:

• Public Information Officer (PIO) - Communicates with external audiences to provide incident updates.
• Safety Officer (SO) - Monitors safety conditions and develops measures to ensure responder safety.
• Liaison Officer (LNO) - Serves as the primary contact for supporting agencies assisting with an incident.

This structure provides a modular and scalable framework that can expand or contract to match the size and complexity of the incident. Roles can be staffed or merged as needed. It establishes a clear chain of command and enables effective, coordinated response.

Key principles that guide the ICS structure include establishing command, setting objectives, maintaining a manageable span of control, and using common terminology. The scalable and modular nature of ICS makes it adaptable across incidents of varying types and complexity.

Unified Command

Unified Command allows agencies with different legal, geographic, and functional authorities and responsibilities to work together effectively without affecting individual agency authority, responsibility, or accountability.

Under Unified Command, leaders from agencies or organizations that share responsibility for the incident collectively develop a common set of incident objectives and strategies. The Unified Command allows agencies to mix together to create an integrated approach without losing their individual accountability, responsibility, and authority.

Unified Command is highly recommended when:

• The incident is within multiple agencies’ jurisdictions or an event impacts multiple agencies’ jurisdictions.
• There are a number of agencies with legal responsibility for major aspects of the incident strategy.

Some of the advantages of using Unified Command include:

• One set of objectives is developed for the entire incident.
• Collective approach utilizes all agency resources efficiently and effectively.
• No agency’s legal authorities or responsibilities are compromised or neglected.
• The combined efforts of all agencies are optimized as they perform their respective assignments under a single Incident Action Plan.
• Duplicative efforts are reduced or eliminated, improving cost-effectiveness.

The exact composition of the Unified Command depends on the location(s), conditions, and requirements for responding to that particular incident. Generally, Unified Command will include a command representative from each jurisdiction involved, as well as representatives from agencies with functional responsibility.

Unified Command allows agencies to have a voice in how incidents are managed, exchange information quickly, make collaborative decisions, and speak with a unified voice. This leads to improved coordination and more efficient use of resources during cross-jurisdictional or complex incidents involving multiple agencies and jurisdictions. As such, it is an integral component of implementing ICS successfully.

Incident Action Planning Process

The Incident Action Planning Process is a critical component of ICS that provides a structured process for developing incident objectives and tactics. The planning process typically includes the following steps:

• Understanding the situation: The Incident Commander and Planning Section gather information about the current status of the incident, including resources on hand, weather, terrain, etc.
• Establishing incident objectives: The Incident Commander establishes incident objectives based on the overall priorities for managing the incident. Objectives should follow the SMART model - Specific, Measurable, Achievable, Relevant, and Time-Bound.
• Developing the plan: The Planning Section develops an Incident Action Plan (IAP) document that includes the incident objectives along with strategies and tactics for achieving them within the current operational period. The IAP outlines resource assignments, actions to be taken, reporting requirements, and provides other relevant information.
• Preparing and disseminating the plan: Once approved by the Incident Commander, the IAP is reproduced and distributed to all personnel involved in the incident.
• Executing, evaluating, and revising the plan: As the operational period is executed, personnel monitor progress against the IAP objectives and report issues. The planning process begins again for the next operational period, informed by evaluation of the current plan.

The Incident Action Plan provides crucial information needed throughout the ICS organization during an incident. It includes objectives, organization charts, assignments, radio communications plans, and other relevant information for that operational period. ICS relies on this planning process for establishing priorities, integrating operations, ensuring safety, and spending resources efficiently.

The Incident Action Planning Process enables the flexibility and scalability of ICS. As incidents evolve, the planning process adapts to changing priorities and objectives. The incident action plan is continually revised to reflect new information and shifting response strategies. This ongoing cycle of planning and execution is essential for coordinated, effective incident management.

ICS Forms: Structured Communication

The Incident Command System utilizes standardized forms to facilitate communication and information flow during an incident. These forms provide a consistent way to capture key incident details, resource needs, status updates, and other vital information. Some of the essential ICS forms include:

• ICS 201 - Incident Briefing: This form provides initial incident objectives, the current situation, and the incident organization in place or needed. It allows for a consistent briefing process when command is transferred.
• ICS 202 - Incident Objectives: This document describes the objectives to manage the incident. Objectives are ranked, measurable, and help drive the incident action plan.
• ICS 203 - Organization Assignment List: This form provides information on the incident organization and personnel staffing. It shows the hierarchy of the organization and the names of personnel in each position.
• ICS 204 - Assignment List: This form documents tactical assignments for operational resources. It details the instructions for managing resources and communicates supervisory roles.
• ICS 205 - Incident Radio Communications Plan: This form contains information on all radio frequencies assigned for the incident. It establishes incident radio communications and outlines call signs.
• ICS 213 - General Message: This form provides a standard template for message passing. This ensures that information is exchanged consistently and reaches the right people.

The standardized ICS forms enable diverse organizations and agencies to work together seamlessly. They provide clear documentation of incident details, actions taken, and resources allocated. Understanding these forms is critical for volunteer responders plugging into the wider ICS structure during an emergency. A full list of ICS forms and related resources can be found on FEMA’s website.

Putting it All Together: Scaling with Complexity

The Incident Command System is designed to be flexible and scale up or down seamlessly to match the needs of an incident. To see this in action, let’s look at how the ICS structure adapts in two different incident scenarios.

Small Incident Scenario

For a minor incident with limited impact, the ICS can remain small and simple. For example, a dispatcher acting as the Incident Commander and a single police officer on-scene handling operations would be sufficient. The IC remains in the dispatch center, communicating with the officer by radio and handling any needed logistics or planning there. In this streamlined ICS structure, the Incident Commander takes on multiple responsibilities and the span of control remains very manageable. Only the essential functions and roles are filled.

Scaling to a Larger Incident

For a complex incident involving multiple jurisdictions and agencies, the ICS will need to expand accordingly. Consider a large fire spreading rapidly as an example. There may be an on-scene Incident Commander from the fire department commanding multiple teams. Operations would be broken into divisions like fire suppression, search & rescue, and medical aid. Logistics would handle equipment, facilities, and resources for all personnel. Planning prepares the Incident Action Plans, manages information, and tracks resources. Finance administers procurement contracts and cost analysis.

In this scenario, many sections are filled out and new ones are added as needed. The ICS seamlessly grows from just a few roles to a large, coordinated effort. Yet the fundamental structure and principles remain the same, enabling smooth communication and operations.

This ability to scale up or down is a key advantage of ICS that maximizes both incident management effectiveness and efficiency.

Further Learning: FEMA ICS Courses

For those looking to gain a more comprehensive understanding of ICS and NIMS, FEMA offers several online independent study courses:

• ICS-100 Introduction to the Incident Command System: This course provides an overview of ICS, including its history, key principles, organization, and application. It is designed for entry-level personnel who may be first responders or disaster workers involved in ICS implementation.
• ICS-200 Basic Incident Command System for Initial Response: Building on ICS-100, this course focuses on the application of ICS for supervisors and expanding incidents. It covers ICS fundamentals, organizational overview, incident facilities, and resources.
• ICS-700 An Introduction to the National Incident Management System: This course provides an introduction to NIMS concepts, principles, and components. It explains the purpose, principles, key components, and benefits of NIMS.

These courses are free, self-paced, and available online through the FEMA Emergency Management Institute. They provide a more in-depth look at ICS and NIMS for those seeking additional training and certification. Taking these courses can strengthen the ability of volunteers and organizations to implement ICS and interface with other agencies during emergencies.

Conclusion

The Incident Command System provides a standardized structure for managing incidents of any size or complexity. Its scalable and modular organization allows responder agencies to coordinate effectively, facilitating an efficient response. For volunteer responders who may interface with professional response organizations, having a solid understanding of ICS principles is critical.

Key takeaways include:

• ICS enables a scalable and modular organization that can expand and contract as needed for the incident. This flexibility allows ICS to be applied to incidents of any type or size.
• Unity of command, chain of command, and a manageable span of control are core principles of ICS that enable clear leadership and efficient management.
• Standard ICS tools like common terminology, unified command, and the Incident Action Planning process facilitate coordination between multiple agencies and jurisdictions.
• ICS training courses like ICS 100, 200, and 700 are available through FEMA to help volunteer responders gain ICS knowledge.

By leveraging ICS, volunteer agencies can seamlessly integrate into the larger response framework during emergencies. Equipped with this knowledge, volunteers can provide crucial support safely and efficiently when their communities need them the most.