Command and control ics chapter 14. Incident Command & Resource Management

Introduction to Incident Command and Resource Management

• Effective incident commanders (IC) must predict events and forecast needs accurately.
• Experienced firefighters can usually handle room-and-contents fires, vehicle accidents, and EMS responses.
• Complex incidents like high-rise fires, wildland-urban interface fires, and hazmat spills require advanced IC skills.
• ICs need to anticipate support functions like rehab, planning, demobilization, and relief crews, not just suppression.
• There should be three support personnel for each active firefighter.
• ICs must analyze information from preplans, bystanders, and their observations to identify existing and potential problems.
• This analysis aids in determining the operational mode (offensive or defensive) and the intensity of resource needs.

Understanding Resource Capabilities

• Failing to understand resource capabilities or using minimal resources can be dangerous.
• ICs should account for potential injuries, the need for relief, structural collapse, and unforeseen demands.
• Excess resources can be returned, but insufficient resources can be critical.

Matching Resources to Tasks

• Effective management of tactical resources is crucial for safe and successful incident mitigation.
• ICs must thoroughly understand the capabilities of available resources.
• Matching resources to tasks ensures efficiency, safety, and cost-effectiveness.
• Shortfalls should be identified by considering what still needs to be done.
• Considerations include staffing levels, pumping capacities, off-road ability, ladder capabilities, special tools, and training levels.

Using Mutual Aid and Outside Agencies

• These considerations are important when mutual aid, automatic aid, or outside agencies are involved.
• ICs need to understand the capabilities of both personnel and equipment.
• Key personnel questions: What is their level of training? Are personnel trained in wildland firefighting? What level of hazmat training do they have?
• Standardized staffing levels and equipment configurations can be established through preplanning and mutual-aid agreements.
• National Incident Management System (NIMS) and Incident Command System (ICS) define resources by kind and type.
• This standardized system includes equipment, personnel, and capacities like pumping capability.
• Incident Management Consortium supports this method, which is used by local, state, and federal agencies for large incidents.

Resource Kind and Type

• Resource kind describes what a resource is (e.g., ladder truck, fuel truck).
• The definition of "kind" can be broad because different agencies use the same resource for different tasks.
• Resource type describes its performance capability (e.g., Type 3 bulldozer, Type 1 fire engine).
• Resources are typed using a number along with their kind designation.
• Type 1 indicates the greatest capability/capacity, Type 2 the next, and so on.
• Typing resources ensures the most appropriate resource is assigned.
• A Type 1 fire engine may not be suitable if off-road capability is needed; a resource with less pumping capacity but better ground clearance would be a better choice.

Benefits of Typing Resources

• Agencies predetermine resource type and kind for normal operations.
• Problems arise during large incidents needing mutual aid, which involves unfamiliar agencies and equipment.
• Incorrect resource choices can cause delays, unsafe situations, and increased costs.
• Typing resources enhances the effectiveness of the Planning Section.
• Planners can better match the type and quantity of resources needed for the incident action plan (IAP).
• A standard typing method saves time and reduces errors when ordering resources.

Categories of Resources

• Fire department resources are categorized into:
  • Personnel
  • Organization
  • Apparatus and equipment
  • Logistical support

Personnel as Resources

• Personnel are the most valuable, but often overlooked, resource.
• Evaluate personnel capabilities to determine if they meet incident needs.
• Questions include meeting national/state requirements and ICS qualifications.
• Also important: Do they have the technical qualifications such as hazmat, confined-space rescue, or dive team?
• Agencies should maintain an updated list of human resources and their capabilities.

Organization as a Resource

• Organization refers to command and staff functions, not just firefighters.
• Understanding the agency's capability in strategic incident operations is key.
• Potential questions: Can the agency handle a second or third alarm? Are there enough command officers (COs) to staff an emergency operations center (EOC) and the incident?
• Are the COs trained for ICS positions? Where can additional fire officers be sourced, and what is their training level?

Apparatus and Equipment

• Many apparatus and equipment issues can be addressed in automatic-aid or mutual-aid agreements.
• Agreements should specify commitment quantity, staffing levels, certification levels, and minimum equipment levels.
• Larger incidents may require specialized equipment, such as US&R teams, hazmat vehicles, helicopters, and foam trucks.
• Some equipment may need to be sourced from other public agencies or private contractors.

Logistical Support

• A Logistics Section Chief should be appointed when logistical needs become complex.
• Logistical demands vary based on the incident type, complexity, and duration.
• Logistical needs include:
  • Facilities (base area with sleeping, feeding, security, showers, toilets, etc.)
  • Food (order 125% of the number of personnel being fed)
  • Medical care (separate from civilian casualty care, for responders)
  • Maintenance (for apparatus, equipment, and communications systems)
  • Sources of resupply (planned before the incident)

Ordering Resources

• Ordering systems and procedures must be established before an incident.
• Single-point ordering is preferable for tighter control and less error.
• This method requires advance agreement through an operational plan or memorandum of understanding.
• Cost apportionment is handled by the ordering system and agreed upon by all parties.
• The apportionment can be based on dollar loss, acres burned, or structures lost.

Single-Point Ordering

• Single-point ordering is used in smaller incidents or when automatic-aid agreements are in place.
• All resource requests are processed through one dispatch point, reducing miscommunication and duplication.
• Participating jurisdictions may have policies requiring their own dispatch centers to be involved.
• A representative from other involved disciplines can be assigned to the Logistics Section.

Multipoint Ordering

• Resources are ordered from several different dispatch centers or ordering points.
• This system is used when multiple agencies are involved.
• It is often utilized once an EOC is established.
• Multipoint ordering must be well-coordinated to prevent lost or duplicated orders.

Time Constraints

• The IC must consider response and operational time.
• Operational time includes the time from request to readiness, not just arrival.
• Personnel may need food or rest, and apparatus may need fuel or repairs.
• Resources can be classified as immediate need (ready in 1 hour or less) or planned need (more than 1 hour to respond).

Preplanning

• Sound preplanning enhances operational efficiency.
• Response assignments should be matched to the potential of the specific incident.
• Additional resources may be added for target hazards or potential hazmat situations.
• Contingencies should be developed for areas with poor water supply.
• Building construction and design may dictate resources.
• The composition of a facility may dictate a particular mode of operation.
• ICs must continually evaluate risk/benefit, considering structural integrity and firefighter safety.

Prearranged Agreements

• Mutual-aid and automatic-aid agreements must be developed, including numbers of apparatus, staffing levels, and training levels.
• Agreements can range from state-level mutual-aid pacts to local automatic-aid agreements.
• Agreements with private organizations (Amtrak, industrial facilities) or local contractors can be useful.
• Lists of equipment, facilities, and responsible persons should be kept in the dispatch center and updated regularly.

Interagency Resources

• Interagency assistance is needed to some degree at almost every incident.
• This assistance can range from traffic control to resources from other fire departments.
• Effective interagency cooperation is the cornerstone of a well-managed, large-scale incident.
• Disaster planning must involve all emergency services, public and private.
• COs must know which agencies are available, what help they can provide, and how to access them.
• Planning together facilitates a smooth and effective interface during control operations.
• Each jurisdiction needs complete and approved plans that clearly delineate the chain of command and functional responsibilities.

Interagency Cooperation

• Training should include other public and private agencies that are expected to provide support during emergency incidents.
• Joint-agency training scenarios should exercise all facets of the emergency plan.
• The emergency incident scene is not the place to train or to develop a plan.
• Interagency assistance increases with the size or complexity of the incident.
• The fire department may initially be in charge but subsequently relinquish command to another agency.
• Contingency plans should be developed to identify alternate sources of critical resource needs.
• Plans may include alternative courses of action and acceptance of a greater degree of community risk.

Joint Training

• Joint training exercises are the best methods to familiarize and evaluate everyone involved with emergency operations.
• This includes communication, documentation, and equipment use.

Methods of Obtaining Resources

• Cooperative agreements, assistance-by-hire, and voluntary assistance are the three methods.
• Cooperative agreements are made between governmental agencies and include mutual aid, automatic aid, and contract services.
• Assistance-by-hire agreements require the using agency to bear all costs involved.
• Voluntary assistance is used with service organizations (Red Cross, Salvation Army).
• Funding sources include all three levels of government, contingent on following specific guidelines.
• Several factors may come into play and should be addressed in all written agreements.
• The parameters include; liability, worker’s compensation, required training or skill level, required equipment, and duration of the incident.

Types of Agreements: Mutual Aid

• Mutual aid is a system wherein organizations share resources in a time of need.
• Mutual-aid agreements are formal agreements between two or more agencies.
• They should address:
  • Initiation (who can request aid)
  • Response (what commitment is expected)
  • No response (conditions for denying aid)
  • Liability (legal responsibility)
  • Communication (system organization and terminology)
  • Command (who is in charge of what function)

Automatic Aid

• Automatic-aid agreements are becoming more popular for efficient and economical service delivery.
• Advantages include:
  • Dispatch of the closest available resource regardless of jurisdiction
  • Frequent use of resources, increasing each agency’s resource base
  • Reduced impact of emergencies by reducing response time
  • Reciprocal exchange does not have to involve like resources

Assistance by Hire and Other Agreements

• Assistance by Hire depends on payment of money by the receiving agency to the supplying agency.
• Assistance by hire can be conditions of a mutual-aid agreement after a specified period of time.
• Joint-powers agreements pool resources to create a base that no single agency could provide.
• Memorandum-of-understanding (MOU) agreements are informal agreements that do not require governing body authorization.
• Master agreements are multiyear pacts involving several agencies.
• State-to-state agreements provide for resources to cross state borders and normally involve special legislation.

Formal Agreements

• Today nearly every community participates in some form of mutual-aid or automatic-aid agreement.
• When drafting written agreements, it is prudent to have the assistance of legal counsel.
• Agreements should contain provisions for withdrawal by any of the parties with proper notification.
• Liability issues normally cause the greatest concern in drafting agreements.
• Standardized equipment and procedures are equally important for effective incident management.
• If command responsibilities are predetermined and followed, the question of who is in charge will be nonexistent.
• Responding units will report to a staging area for assignment, reducing the confusion.

Communications

• Communications may range from hand signals to multifrequency radio networks.
• The ability to quickly identify the capability of a responding resource will assist the IC.
• All resources in a mutual-aid plan should be identifiable by a simple numbering system.
• By developing and utilizing a system, we can improve the IC’s ability to communicate.

Training

• Training is unquestionably the backbone of an effective mutual-aid system.
• Without the training that develops skills and teamwork within your system, you will only have a paper system.
• Mutual aid can provide a savings for the taxpayers through resource sharing.
• It is important to request mutual aid only when it is needed.
• Each department must strive to provide quality, first-level protection at home.
• Only after this obligation is met will mutual-aid agreements be successful.

Resource and Situation Status Systems

• Using sample resources and situation-status systems can facilitate an effective decision-making process.

Readily Available Information

• Effective incident management requires accessible and accurate information.
• Essential questions include: What are the problems? Where are the resources located?

Decision-Making Process

• A resource and situation status system depicts resources on scene, those assigned, and those requested.
• By providing a visual picture of the incident, aids in determining strategy, tactics, and the required level of resources.
• It can depict the organizational command structure and identify functional assignments.
• An effective system allows for systematic evaluation of the IAP.
• It also provides accurate information for transfer of command and postincident activities.

Sample Status Systems

• Many different status tracking systems are being used effectively throughout the fire service.
• At a large-scale incident, record keeping should be delegated whenever possible.
• Maintaining status records is a planning function.
• Most status-tracking systems provide the following items:
  • A record of resources committed to the incident
  • Assignments that have been made
  • Resources available on scene
  • An area for creating a visual display of incident conditions
  • A functional checklist
• The size, color, or type of system is not important.
• What is important is that your agency develops a system that meets its needs and then utilizes it.

Summary

• Managing resources becomes more difficult as an incident increases in size.
• It is vital that the IC understand each resource's capability and its kind and type.
• The type of resource falls into the categories of personnel, organization, apparatus/ equipment, and logistical support.
• A preplan should indicate if there will be single-point or multipoint ordering of these resources.
• Interagency resources can be accessed with a with a developed interagency interface that will include the methods of obtaining these resources.
• Acquiring these resources will require some type of agreement.
• Communication and training will be very important for successful resource management.
• Therefore, preplanning with a sample resource and situation-status system will help ICs use their readily available information in the decision-making process.