Week 2: Discussion 2
Discussion Topic #2: How can communications, information management, and technologies bolster an emergency management system?
Required Reading
Canton, L. G. (2007). Emergency management: Concepts and strategies for effective programs. Hoboken, NJ. John Wiley & Sons, Inc.
1. National Incident Management System (NIMS) chapters 2 & 5.
The National Incident Management System
National Incident Management System
“…a consistent nationwide approach for federal, state, tribal, and local governments to work effectively and efficiently together to prepare for, prevent, respond to, and recover from domestic incidents, regardless of cause, size, or complexity.” -HSPD-5
*
Will have profound impact on the way we prepare for and respond to domestic incidents and disasters.
Nationwide, standardized approach to incident management and response.
Establishes a standard, consistent framework for federal, state, tribal and local governments to work together to respond to incidents, emergencies – no matter the cause or complexity.
Developed by Homeland Security at the request of the President – Homeland Security Presidential Directive—5.
Not only about response – also about preparedness, prevention, recovery and mitigation.
Built on the foundation of existing systems. Integrates best practices developed over the years.
Developed through collaborative process involving functional disciplines in emergency and incident management.
Represents a core set of doctrines, concepts, principles, terminologies and processes.
Not an operational plan or resource management plan. Not a plan specifically for terrorism or WMD.
HSPD-5 requires that federal departments & agencies adopt the NIMS and use to support state, local, tribal entities.
It also stipulates that federal departments & agencies require state and local entities to adopt the NIMS as a condition for federal preparedness assistance after a phase-in period.
*
NIMS: What It Is / What It’s Not
NIMS is…
Core set of:
Doctrine
Concepts
Principles
Terminology
Organizational processes
Applicable to all hazards
NIMS is not…
An operational incident management plan
A resource allocation plan
A terrorism / WMD-specific plan
Designed to address international events
*
NIMS
NIMS provides overall conceptual framework for incident management.
NRP
NRP an operational plan spelling out how efforts and resources of participants are integrated into a cohesive response operation.
Forms the basis of how the federal government interfaces with state, local, tribal governments and the private sector.
Includes planning assumptions, roles and responsibilities, concept of operations and preparedness guidelines.
Details missions, policies, structures, responsibilities of federal agencies responding to Incidents of National Significance.
Outlines functions of each Emergency Response Function coordinators, primary agencies and support agencies.
*
National Incident Management System
(NIMS)
Relationship: NIMS and NRP
Local
Response
State
Response or Support
Federal
Response or Support
NIMS aligns command, control, organization structure, terminology, communication protocols, resources and resource-typing for synchronization of response efforts at all echelons of government.
National Response Plan (NRP)
Incident
Activated for
incidents of national significance.
Resources, knowledge,
and abilities from
Federal departments & agencies.
DHS integrates
and applies Federal
resources both pre and
post incident.
Used for all events
*
National Incident Management System
Command and Management
Incident Command System
Multiagency Coordination System
Public Information System
Components of NIMS …
*
ICS and NIMS …
NIMS establishes ICS as the standardized incident organizational structure for responding to all incidents.
NIMS requires that states and locals institutionalize “ICS as taught by DHS” across entire response system.
This means that ICS training must be consistent with concepts, principles, characteristics of DHS ICS training.
Does not mean that ICS training must be provided by a DHS employee or DHS training facility.
NIMS ICS training developed by FEMA/EMI is available:
ICS-100, Introduction
ICS-200, Basic
ICS-300, Intermediate
ICS-400, Advanced
NIMS ICS is based on FIRESCOPE and NIIMS – training developed or provided by FIRESCOPE or NIIMS is consistent with DHS NIMS ICS.
As critical components of NIMS ICS are modified by the NIC over time, training providers will need to update accordingly.
ICS training should encourage and support integrated training opportunities where law enforcement, fire, public health emergency medical, public works, emergency management train together.
MACS
A multiagency coordination system involves the integration of personnel, procedures, equipment and facilities into a common system that manages the incident.
Response activities are typically coordinated at an Emergency Operations Center, while the Incident Command Post is located at the site of the incident.
Public Information Systems
Public Information Systems involve the systems and protocols for communicating information to the public during a crisis or emergency situation.
National Incident Management System
Preparedness
Planning
Training and Exercises
Standards and Certification
Mutual Aid
Information and Publications
Components of NIMS …
*
Preparedness involves a continuous cycle of planning, training, equipping, exercising, evaluating and taking action to correct and mitigate.
Involves guidelines, protocols, standards for planning, training, [personnel qualification and certification, equipment certification and publications…
Linked to HSPD-8
Processes for providing guidelines; protocols; standards for planning, training, qualifications and certification; and publication management
Mitigation activities are important elements of preparedness
“National-level preparedness standards related to the NIMS will be maintained and managed through a multijurisdictional, multidiscipline center, using a collaborative process.”
National Incident Management System
Resource Management
Identify and type resources
Certify and credential personnel
Inventory, acquire, mobilize, track and
recover
Components of NIMS …
*
Concept and Principles
NIMS resource management involves typing resources; credentialing personnel; identifying resource requirements; and acquiring, tracking and recovering resources
Effective resource management utilizes mutual aid
Provides a uniform way to identify and track resources
Requires standardized classification of the kinds and types of resources needed in incident management
Credentialing system tied to training and standards
Coordinated by EOC or Multiagency Coordination System or through ICS structure
National Incident Management System
Communications and Information Management
Supporting Technologies
Ongoing NIMS Management
Components of NIMS …
*
Communications and Information Management
NIMS requires a common operating picture that is accessible across jurisdictions and agencies.
A common operating picture will help ensure consistency at all levels and among those who respond to or manage incident response.
Common communications and data standards are fundamental. Effective communications within and outside the response structure are enhanced by adherence to standards.
Supporting Technologies
NIMS supporting technology standards are based on:
Interoperability and compatibility
Technology support
Broad-based requirements
Strategic planning and R&D
The NIMS Integration Center will provide ongoing NIMS management.
The NIMS Integration Center
Mission …
“To provide strategic direction for and oversight of the NIMS, supporting … routine maintenance and the continuous refinement of the system and its components over the long term.”
HSPD-5
*
The NIMS Integration Center is a multi-jurisdictional, multidisciplinary entity.
It will oversee all aspects of the NIMS, including the development of NIMS-related standards and guidelines and the provision of guidance and support to incident management and responder organizations as they implement the system.
The Center also will validate compliance with the NIMS responsibilities, standards and requirements.
The Center is organized around the following:
Standards and Resources
Training and Exercises
System Evaluation and Compliance
Technology, Research and Development
Publications Management
NIMS Integration Center Initiatives – Resource Typing
National Mutual Aid Glossary of Terms and Definitions
Resource Typing Definitions – II
www.fema.gov/nims/
*
Enhanced resource management tools designed to help incident managers identify, obtain and track needed resources during an incident or disaster.
National Mutual Aid Glossary of Terms and Definitions provides terms for equipment, teams and personnel used in disasters, and
Resource Typing Definitions – II, categorizes equipment and teams by functional grouping and then ‘types’ or organizes them according to capability and/or capacity.
Resource management is a key component of the new National Incident Management System.
Federal, state and local officials should use the 120 typed definitions as they develop or update their inventories of response assets.
Will help ensure that equipment and personnel deployed through NIMS are compatible with those of jurisdictions that work together through mutual aid agreement.
The glossary and resource typing definitions may be downloaded from the FEMA.GOV Web site at www.fema.gov/nims/.
The resource definitions were developed by federal, state, and local experts from the following disciplines: Animal Health, Emergency Management, Emergency Medical Fire/Hazardous Materials, Emergency Medical Services, Health and Medical, Law Enforcement, Public Works, and Search and Rescue.
Also … FEMA developed a model Intrastate mutual aid agreement for use by states and local jurisdictions – www.emacweb.org
NIMS Integration Center Initiatives – Credentialing
NIMS calls for a nationwide system for credentialing personnel and equipment …
*
A documentation and database system for qualification, certification and credentialing of incident management personnel and organizations.
Specify and standardize roles and responsibilities of first responders operating in emergencies.
Ensure that personnel responding to an incident are properly trained and qualified.
Provides uniform certification programs so responders can provide mutual aid assistance nationwide.
Work with existing entities to establish national recognition for multi-jurisdictional response under mutual aid agreements.
The NIMS Integration Center Resources – System Evaluation
NIMS
Capability Assessment Support Tool
*
A Web-based self-assessment system that state and local governments can use to evaluate their incident response and management capabilities and comply with NIMS requirements.
A field test of the the NIMCAST system will be conducted with states.
Based on field test results, the instrument will be available for voluntary use nationwide.
National Incident Management System
FY 2005 Compliance: States
Letter from Secretary Ridge to Governors, Sept. 8, 2004
Incident Command System
NIMS into Emergency Operations Plans
NIMS into training, exercises
Intrastate mutual aid agreements
Technical assistance
*
Institutionalize use of Incident Command System
Incorporate NIMS concepts into Emergency Operations Plans
Incorporate NIMS concepts into existing training programs and exercises
Promote intrastate mutual aid agreements
Coordinate, provide technical assistance to local entities
Use federal preparedness funding supports implementation at state and local levels (Homeland Security Grant Program, Urban Area Security Initiative funds)
National Incident Management System
FY 2005 Compliance: State, Local, Tribal
Letter from Secretary Ridge to Governors, Sept. 8, 2004
Complete EMI Course – NIMS, An Introduction
Formally recognize NIMS
Establish NIMS baseline
Establish strategy for implementing NIMS
Institutionalize use of ICS
*
Institutionalize use of Incident Command System
Incorporate NIMS concepts into Emergency Operations Plans
Incorporate NIMS concepts into existing training programs and exercises
Promote intrastate mutual aid agreements
Coordinate, provide technical assistance to local entities regarding NIMS
Use federal preparedness funding to support NIMS implementation at state and local levels (DHS Homeland Security Grant Program, Urban Area Security Initiative funds)
FY 2006: Certify completion of FY 2005 requirements in grant application.
FY 2007: Full Compliance Required
The NIMS Integration Center
Gil Jamieson, Acting Director
Web Page: www.fema.gov/nims
E-Mail: NIMS-Integration-Center@dhs.gov
NIMS Training: http://training.fema.gov/emiweb/IS/is700.asp
Main Number: 202-646-3850
Mailing Address: NIMS Integration Center, 500 C Street SW, Suite 707, Washington, DC 20472
SecretGl:l’
U.S. Department of Homeland Security
Washington, DC 20528
Homeland
Security
December 18, 2008
Dear NIMS Stakeholders:
Homeland Security Presidential Directive (HSPD)-5, Management of Domestic Incidents,
directed the development and administration of the National Incident Management
System (NIMS). Originally issued on March 1, 2004, by the Department of Homeland
Security (DHS), NIMS provides a consistent nationwide template to enable Federal,
State l , tribal, and 10cal2governments, nongovernmental organizations (NGOs), and the
private sector to work together to prevent, protect against, respond to, recover from, and
mitigate the effects of incidents, regardless of cause, size, location, or complexity.
HSPD-5 also required DHS to establish a mechanism for ongoing coordination to provide
strategic direction for, and oversight of, NIMS. The National Integration Center’s (NIC)
Incident Management Systems Integration Division (lMSI)-formerly the NIMS
Integration Center-was established to support both routine maintenance and the
continuous refinement ofNIMS.
Since 2006, the NIMS document has been revised to incorporate best practices and
lessons learned from recent incidents. The NIMS revision also clarifies concepts and
principles, and refines processes and terminology throughout the document. A wide
range of feedback was incorporated while maintaining the core concepts ofNIMS and no
major policy changes were made to the document during the revision. Below is a
summary of changes to the NIMS document:
• Eliminated redundancy;
• Reorganized document to emphasize that NIMS is more than the Incident Command
System (ICS);
• Clarified ICS concepts;
• Increased emphasis on planning and added guidance on mutual aid;
• Clarified roles of private sector, NGOs, and chief elected and appointed officials;
As defined in the Homeland Security Act of 2002 P.L.I 07-296, the term “State” means any State of the United States, the District of
Columbia, the Commonwealth of Puerto Rico, Guam, American Samoa, the Commonwealth of the Northern Mariana Islands, and any
possession of the United States” 6 U.s.c. 101 (14)
2 As defined in the Homeland Security Act of 2002, Section 2( I0): the term “Iocal government” means “(A) county, municipality, city,
town, township, local public authority, school district, special district, intrastate district, council of governments … regional or
interstate government entity, or agency or instrumentality of a local government: an Indian tribe or authorized tribal organization, or in
Alaska a Native village or Alaska Regional Native Corporation: and a rural community, unincorporated town or village, or other
public entity” 6 U.s.c. 101(10)
www.dhs.gov
I
Sharon
Text Box
i
• Expanded the Intelligence/Investigation function; and
• Highlighted relationship between NIMS and National Response Framework.
I ask for your continued assistance as we implement NIMS. I look forward to continuing
our collective efforts to better secure the homeland and protect our citizens. Thank you
for your hard work in this important endeavor.
Sincerely,
Michael Chertoff
Sharon
Text Box
ii
CONTENTS
Transmittal Letter ………………………………………………………………………………………. i
List of Tables ……………………………………………………………………………………………. ix
List of Figures ………………………………………………………………………………………….. ix
What Is the National Incident Management System? ………………………………………. 1
PREFACE …………………………………………………………………………………………………… 3
INTRODUCTION AND OVERVIEW ………………………………………………………………….. 5
A. Introduction ………………………………………………………………………………… 5
B. Concepts and Principles …………………………………………………………………… 6
1. Flexibility ……………………………………………………………………………….. 6
2. Standardization ………………………………………………………………………… 7
C. Overview of NIMS Components …………………………………………………………. 7
1. NIMS Components …………………………………………………………………….. 7
COMPONENT I: PREPAREDNESS ………………………………………………………………….. 9
A. Concepts and Principles …………………………………………………………………… 9
1. Unified Approach ………………………………………………………………………. 9
2. Levels of Capability …………………………………………………………………… 10
B. Achieving Preparedness …………………………………………………………………. 10
1. Relationship Between NIMS and Other Preparedness Efforts …………………. 10
2. NIMS and Its Relationship to the National Response Framework …………….. 11
3. Preparedness Roles ………………………………………………………………….. 12
4. Preparedness Elements ……………………………………………………………… 16
5. Mitigation ………………………………………………………………………………. 21
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT ………….. 23
A. Concepts and Principles ………………………………………………………………….. 23
1. Common Operating Picture …………………………………………………………. 23
2. Interoperability ……………………………………………………………………….. 24
3. Reliability, Scalability, and Portability …………………………………………….. 24
4. Resiliency and Redundancy …………………………………………………………. 24
B. Management Characteristics ……………………………………………………………. 25
1. Standardized Communication Types ………………………………………………. 25
2. Policy and Planning …………………………………………………………………… 25
3. Agreements ……………………………………………………………………………. 26
4. Equipment Standards and Training ……………………………………………….. 26
C. Organization and Operations ……………………………………………………………. 27
1. Incident Information …………………………………………………………………. 27
2. Communications Standards and Formats ………………………………………… 28
December 2008 National Incident Management System iii
COMPONENT III: RESOURCE MANAGEMENT ………………………………………………… 31
A. Concepts and Principles ………………………………………………………………….. 32
1. Concepts ……………………………………………………………………………….. 32
2. Principles ………………………………………………………………………………. 32
B. Managing Resources ……………………………………………………………………… 34
1. Identify Requirements ……………………………………………………………….. 35
2. Order and Acquire ……………………………………………………………………. 37
3. Mobilize ………………………………………………………………………………… 37
4. Track and Report……………………………………………………………………… 38
5. Recover and Demobilize …………………………………………………………….. 38
6. Reimburse ……………………………………………………………………………… 39
7. Inventory ………………………………………………………………………………. 39
COMPONENT IV: COMMAND AND MANAGEMENT …………………………………………… 45
A. Incident Command System ……………………………………………………………… 45
1. Management Characteristics ……………………………………………………….. 46
2. Incident Command and Command Staff ………………………………………….. 49
3. General Staff ………………………………………………………………………….. 54
4. Incident Management Teams ………………………………………………………. 61
5. Incident Complex: Multiple Incident Management Within
a Single ICS Organization …………………………………………………………… 61
6. Area Command ……………………………………………………………………….. 62
B. Multiagency Coordination Systems …………………………………………………….. 64
1. Definition ………………………………………………………………………………. 64
2. System Elements …………………………………………………………………….. 65
3. Examples of System Elements ……………………………………………………… 66
4. Primary Functions of MACS …………………………………………………………. 67
5. Differences Between a MAC Group and Area Command ……………………….. 69
C. Public Information ………………………………………………………………………… 70
1. Introduction …………………………………………………………………………… 70
2. System Description and Components …………………………………………….. 70
3. Public Information Communications Planning ……………………………………. 74
D. Relationships Among Command and Management Elements ……………………… 74
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE ……………………….. 75
A. National Integration Center …………………………………………………………….. 75
1. Concepts and Principles ……………………………………………………………… 75
2. NIMS Revision Process ………………………………………………………………. 76
3. NIC Responsibilities ………………………………………………………………….. 76
B. Supporting Technologies ………………………………………………………………… 79
1. Concepts and Principles ……………………………………………………………… 79
2. Supporting Incident Management With Science and Technology …………….. 80
Appendix A: EXAMPLES OF RESOURCES FOR WHICH TYPING HAS
BEEN COMPLETED ……………………………………………………………………………………. 83
iv National Incident Management System December 2008
Appendix B: INCIDENT COMMAND SYSTEM …………………………………………………. 89
A. Purpose …………………………………………………………………………………….. 89
B. Organization of This Appendix ………………………………………………………….. 89
TAB 1—ICS ORGANIZATION ………………………………………………………………….. 91
A. Functional Structure ……………………………………………………………………… 91
B. Modular Expansion ……………………………………………………………………….. 91
1. Command Staff ……………………………………………………………………….. 92
TAB 2—THE OPERATIONS SECTION ………………………………………………………… 97
A. Operations Section Chief ………………………………………………………………… 97
B. Branches …………………………………………………………………………………… 97
1. Maintaining Recommended Span of Control for the Operations Section
Chief ……………………………………………………………………………………. 97
2. Incident Calls for a Functional Branch Structure ………………………………… 98
3. Incident Calls for a Multijurisdictional Branch Structure ……………………….. 99
C. Divisions and Groups …………………………………………………………………….. 99
1. Geographical Divisions …………………………………………………………….. 100
2. Functional Groups ………………………………………………………………….. 100
3. Combined Geographical Divisions and Functional Groups ……………………. 101
D. Resource Organization …………………………………………………………………. 101
1. Single Resources ……………………………………………………………………. 101
2. Task Forces ………………………………………………………………………….. 101
3. Strike Teams ………………………………………………………………………… 101
E. Air Operations Branch ………………………………………………………………….. 101
TAB 3—THE PLANNING SECTION ………………………………………………………….. 103
A. Planning Section Chief …………………………………………………………………. 103
B. Resources Unit …………………………………………………………………………… 103
1. Responsibilities ……………………………………………………………………… 103
2. Resource Status …………………………………………………………………….. 103
C. Situation Unit ……………………………………………………………………………. 104
D. Documentation Unit …………………………………………………………………….. 104
E. Demobilization Unit …………………………………………………………………….. 104
F. Technical Specialists ……………………………………………………………………. 105
TAB 4—THE LOGISTICS SECTION …………………………………………………………. 107
A. Supply Unit ………………………………………………………………………………. 108
B. Facilities Unit …………………………………………………………………………….. 108
C. Ground Support Unit ……………………………………………………………………. 108
D. Communications Unit …………………………………………………………………… 109
1. Command Net ………………………………………………………………………. 110
2. Tactical Nets …………………………………………………………………………. 110
3. Support Net ………………………………………………………………………….. 110
4. Air-to-Ground Net ………………………………………………………………….. 110
5. Air-to-Air Nets ………………………………………………………………………. 110
December 2008 National Incident Management System v
E. Food Unit …………………………………………………………………………………. 110
F. Medical Unit ……………………………………………………………………………… 111
TAB 5—THE FINANCE/ADMINISTRATION SECTION …………………………………. 113
A. Time Unit …………………………………………………………………………………. 113
B. Procurement Unit ……………………………………………………………………….. 113
C. Compensation and Claims Unit ……………………………………………………….. 114
D. Cost Unit………………………………………………………………………………….. 114
TAB 6—ESTABLISHING AN AREA COMMAND …………………………………………… 115
A. Responsibilities ………………………………………………………………………….. 115
B. Organization ……………………………………………………………………………… 115
1. Area Commander (Unified Area Command) ……………………………………. 115
2. Assistant Area Commander–Logistics …………………………………………… 116
3. Assistant Area Commander–Planning …………………………………………… 116
4. Area Command Aviation Coordinator ……………………………………………. 116
5. Area Command Support Positions ……………………………………………….. 116
C. Location …………………………………………………………………………………… 116
D. Reporting Relationships ………………………………………………………………… 117
TAB 7—FACILITIES AND LOCATIONS ……………………………………………………. 119
A. Incident Command Post ……………………………………………………………….. 119
B. Incident Base ……………………………………………………………………………. 119
C. Camps …………………………………………………………………………………….. 119
D. Staging Areas ……………………………………………………………………………. 119
TAB 8—THE PLANNING PROCESS AND THE IAP ………………………………………. 121
A. Overview …………………………………………………………………………………. 121
1. Understand the Situation ………………………………………………………….. 122
2. Establish Incident Objectives and Strategy …………………………………….. 122
3. Develop the Plan ……………………………………………………………………. 122
4. Prepare and Disseminate the Plan ……………………………………………….. 122
5. Execute, Evaluate, and Revise the Plan…………………………………………. 122
B. Responsibilities and Specific Planning Activities ……………………………………. 123
1. Operational Period Planning Cycle ……………………………………………….. 123
2. Planning Steps: Understanding the Situation and Establishing
Objectives and Strategy …………………………………………………………… 124
3. Conducting the Planning Meeting ………………………………………………… 125
TAB 9—ICS FORMS …………………………………………………………………………….. 129
A. ICS Forms ………………………………………………………………………………… 129
1. ICS 201 – Incident Briefing ……………………………………………………….. 129
2. ICS 202 – Incident Objectives ……………………………………………………. 129
3. ICS 203 – Organization Assignment List ……………………………………….. 129
4. ICS 204 – Assignment List ………………………………………………………… 129
5. ICS 205 – Incident Radio Communications Plan ………………………………. 130
6. ICS 206 – Medical Plan ……………………………………………………………. 130
7. ICS 209 – Incident Status Summary ……………………………………………. 130
vi National Incident Management System December 2008
8. ICS 211 – Incident Check-In List ………………………………………………… 130
9. ICS 215 – Operational Planning Worksheet ……………………………………. 130
10. ICS 215A – Hazard Risk Analysis ………………………………………………… 130
TAB 10—SUMMARY OF MAJOR ICS POSITIONS ………………………………………. 131
GLOSSARY OF KEY TERMS ……………………………………………………………………….. 135
ACRONYMS ……………………………………………………………………………………………. 151
INDEX ………………………………………………………………………………………………….. 153
December 2008 National Incident Management System vii
viii National Incident Management System December 2008
This page intentionally left blank.
LIST OF TABLES
Table 1. Overview of NIMS ………………………………………………………………………. 6
Table 2. Example Categories for National Resource Typing ……………………………….. 42
Table 3. Example of a Resource With Multiple Components (Firefighting Engine
Company) ………………………………………………………………………………………. 42
Table 4. Example of a Resource With Multiple Types (Coast Guard Oil Skimmer) …….. 43
Table 5. Sample IAP Outline ……………………………………………………………………. 57
Table 6. Differences Between a MAC Group and Area Command …………………………. 69
Table 7. Types of Joint Information Centers …………………………………………………. 72
Table A-1. Single Resource (Track Dozer) That Has Been Typed …………………………. 83
Table A-2. Team Resource (Swiftwater/Flood Search and Rescue Team) That
Has Been Typed ……………………………………………………………………………….. 85
Table B-1. ICS Organization ……………………………………………………………………. 92
Table B-2. The IAP and Typical Attachments ………………………………………………. 126
Table B-3. ICS Forms That Can Aid the Planning Process ……………………………….. 128
Table B-4. Summary Table of Major ICS Positions ………………………………………… 131
LIST OF FIGURES
Figure 1. Resource Management During an Incident ……………………………………….. 35
Figure 2. Flow of Requests and Assistance During Large-Scale Incidents ………………. 36
Figure 3. Recommended NIMS Personnel Credentialing Process …………………………. 41
Figure 4. Incident Command System: Command Staff and General Staff ……………… 53
Figure 5. Major Organizational Elements of Operations Section ………………………….. 54
Figure 6. Planning Section Organization ………………………………………………………. 56
Figure 7. Logistics Section Organization ………………………………………………………. 58
Figure 8. Finance/Administration Section Organization …………………………………….. 59
Figure 9. Chain of Command and Reporting Relationships ………………………………… 63
Figure 10. Multiagency Coordination System (MACS) ………………………………………. 65
Figure B-1. Example of the Role of Safety Officer and Assistant Safety Officers
in ICS in a Multibranch Incident ……………………………………………………………. 94
Figure B-2. Geographic Branch Organization ………………………………………………… 98
Figure B-3. Deputy Operations With Functional Branch Structure ……………………….. 99
Figure B-4. Multijurisdictional Incident ……………………………………………………….. 99
Figure B-5. Use of Geographical Divisions ………………………………………………….. 100
Figure B-6. Use of Functional Groups ……………………………………………………….. 100
Figure B-7. Air Operations Organization …………………………………………………….. 102
Figure B-8. Logistics Section With Branch Organizational Structure …………………… 107
Figure B-9. Operational Period Planning Cycle …………………………………………….. 123
December 2008 National Incident Management System ix
x National Incident Management System December 2008
This page intentionally left blank.
What Is the National Incident
Management System?
The National Incident Management System (NIMS) provides a systematic,
proactive approach to guide departments and agencies at all levels of
government, nongovernmental organizations, and the private sector to work
seamlessly to prevent, protect against, respond to, recover from, and mitigate
the effects of incidents, regardless of cause, size, location, or complexity, in
order to reduce the loss of life and property and harm to the environment.
NIMS works hand in hand with the National Response Framework (NRF). NIMS
provides the template for the management of incidents, while the NRF provides
the structure and mechanisms for national-level policy for incident
management.
National Incident Management System 1 December 2008
This page intentionally left blank.
2 National Incident Management System December 2008
PREFACE
On February 28, 2003, the President issued Homeland Security Presidential Directive 5
(HSPD–5), “Management of Domestic Incidents,” which directed the Secretary of Homeland
Security to develop and administer a National Incident Management System (NIMS). This
system provides a consistent nationwide template to enable Federal, State, tribal, and local
governments, nongovernmental organizations (NGOs), and the private sector to work
together to prevent, protect against, respond to, recover from, and mitigate the effects of
incidents, regardless of cause, size, location, or complexity. This consistency provides the
foundation for utilization of NIMS for all incidents, ranging from daily occurrences to
incidents requiring a coordinated Federal response.
NIMS is not an operational incident management or resource allocation plan. NIMS
represents a core set of doctrines, concepts, principles, terminology, and organizational
processes that enables effective, efficient, and collaborative incident management.
HSPD–5 also required the Secretary of Homeland Security to develop the National Response
Plan, which has been superseded by the National Response Framework (NRF). The NRF is a
guide to how the Nation conducts all-hazards response. The NRF identifies the key
principles, as well as the roles and structures, that organize national response. In addition,
it describes special circumstances where the Federal Government exercises a larger role,
including incidents where Federal interests are involved and catastrophic incidents where a
State would require significant support.
HSPD–5 requires all Federal departments and agencies to adopt NIMS and to use it in their
individual incident management programs and activities, as well as in support of all actions
taken to assist State, tribal, and local governments. The directive requires Federal
departments and agencies to make adoption of NIMS by State, tribal, and local
organizations a condition for Federal preparedness assistance (through grants, contracts,
and other activities). NIMS recognizes the role that NGOs and the private sector have in
preparedness and activities to prevent, protect against, respond to, recover from, and
mitigate the effects of incidents.
Building on the foundation provided by existing emergency management and incident
response systems used by jurisdictions, organizations, and functional disciplines at all
levels, NIMS integrates best practices into a comprehensive framework for use nationwide
by emergency management/response personnel1 in an all-hazards context. These best
practices lay the groundwork for the components of NIMS and provide the mechanisms for
the further development and refinement of supporting national standards, guidelines,
protocols, systems, and technologies. NIMS fosters the development of specialized
technologies that facilitate emergency management and incident response activities, and
allows for the adoption of new approaches that will enable continuous refinement of the
system over time.
The Secretary of Homeland Security, through the National Integration Center (NIC),
Incident Management Systems Integration Division (formerly known as the NIMS
Integration Center), publishes the standards, guidelines, and compliance protocols for
determining whether a Federal, State, tribal, or local government has implemented NIMS.
1 Emergency management/response personnel include Federal, State, territorial, tribal, substate regional, and local
governments, nongovernmental organizations, private-sector organizations, critical infrastructure owners and
operators, and all other organizations and individuals who assume an emergency management role.
National Incident Management System 3 December 2008
PREFACE
4 National Incident Management System
Additionally, the Secretary, through the NIC, manages publication and collaboratively, with
other departments and agencies, develops standards, guidelines, compliance procedures,
and protocols for all aspects of NIMS.
This document was developed through a collaborative intergovernmental partnership with
significant input from the incident management functional disciplines, NGOs, and the private
sector. Originally published on March 1, 2004, the document was revised in 2008 to reflect
contributions from stakeholders and lessons learned during recent incidents.
December 2008
INTRODUCTION AND OVERVIEW
A. INTRODUCTION
The September 11, 2001, terrorist attacks and the 2004 and 2005 hurricane seasons
highlighted the need to focus on improving emergency management, incident response
capabilities, and coordination processes across the country. A comprehensive national
approach, applicable at all jurisdictional levels and across functional disciplines, improves
the effectiveness of emergency management/response personnel2 across the full spectrum
of potential incidents and hazard scenarios (including but not limited to natural hazards,
terrorist activities, and other manmade disasters). Such an approach improves coordination
and cooperation between public and private agencies/organizations in a variety of
emergency management and incident response activities. The National Incident
Management System (NIMS) framework sets forth the comprehensive national approach
(see Table 1).
Incidents typically begin and end locally, and are managed on a daily basis at the lowest
possible geographical, organizational, and jurisdictional level. However, there are instances
in which successful incident management operations depend on the involvement of multiple
jurisdictions, levels of government, functional agencies, and/or emergency responder
disciplines. These instances require effective and efficient coordination across this broad
spectrum of organizations and activities.
NIMS uses a systematic approach to integrate the best existing processes and methods into
a unified national framework for incident management. Incident management refers to how
incidents are managed across all homeland security activities, including prevention,
protection, and response, mitigation, and recovery.
This framework forms the basis for interoperability and compatibility that will, in turn,
enable a diverse set of public and private organizations to conduct well-integrated and
effective emergency management and incident response operations. Emergency
management is the coordination and integration of all activities necessary to build, sustain,
and improve the capability to prepare for, protect against, respond to, recover from, or
mitigate against threatened or actual natural disasters, acts of terrorism, or other manmade
disasters. It does this through a core set of concepts, principles, procedures, organizational
processes, terminology, and standard requirements applicable to a broad community of
NIMS users.
2 Emergency management/response personnel include Federal, State, territorial, tribal, substate regional, and local
governments, nongovernmental organizations, private-sector organizations, critical infrastructure owners and
operators, and all other organizations and individuals who assume an emergency management role.
National Incident Management System 5 December 2008
INTRODUCTION AND OVERVIEW
Table 1. Overview of NIMS
What NIMS Is: What NIMS Is NOT:
• A comprehensive, nationwide,
systematic approach to incident
management, including the Incident
Command System, Multiagency
Coordination Systems, and Public
Information
• A set of preparedness concepts and
principles for all hazards
• Essential principles for a common
operating picture and interoperability of
communications and information
management
• Standardized resource management
procedures that enable coordination
among different jurisdictions or
organizations
• Scalable, so it may be used for all
incidents (from day-to-day to large-
scale)
• A dynamic system that promotes
ongoing management and
maintenance
• A response plan
• Only used during large-scale
incidents
• A communications plan
• Only applicable to certain
emergency management/incident
response personnel
• Only the Incident Command
System or an organization chart
• A static system
B. CONCEPTS AND PRINCIPLES
NIMS is based on the premise that utilization of a common incident management framework
will give emergency management/response personnel a flexible but standardized system for
emergency management and incident response activities. NIMS is flexible because the
system components can be utilized to develop plans, processes, procedures, agreements,
and roles for all types of incidents; it is applicable to any incident regardless of cause, size,
location, or complexity. Additionally, NIMS provides an organized set of standardized
operational structures, which is critical in allowing disparate organizations and agencies to
work together in a predictable, coordinated manner.
1. FLEXIBILITY
The components of NIMS are adaptable to any situation, from routine, local incidents to
incidents requiring the activation of interstate mutual aid to those requiring a coordinated
Federal response, whether planned (e.g., major sporting or community events), notice
(e.g., hurricane) or no-notice (e.g., earthquake). This flexibility is essential for NIMS to be
applicable across the full spectrum of potential incidents, including those that require
multiagency, multijurisdictional (such as incidents that occur along international borders),
and/or multidisciplinary coordination. Flexibility in the NIMS framework facilitates scalability
of emergency management and incident response activities. NIMS also provides the
6 National Incident Management System December 2008
INTRODUCTION AND OVERVIEW
flexibility for unique implementation in specified areas around the Nation. The National
Integration Center (NIC), as appropriate, will review and support implementation plans,
which reflect these individual requirements and organizational structures, for consistency
with NIMS concepts and principles.
2. STANDARDIZATION
Flexibility to manage incidents of any size requires coordination and standardization among
emergency management/response personnel and their affiliated organizations. NIMS
provides a set of standardized organizational structures that improve integration and
connectivity among jurisdictions and disciplines, starting with a common foundation of
preparedness and planning. Personnel and organizations that have adopted the common
NIMS framework are able to work together, thereby fostering cohesion among the various
organizations involved in all aspects of an incident. NIMS also provides and promotes
common terminology, which fosters more effective communication among agencies and
organizations responding together to an incident.
C. OVERVIEW OF NIMS COMPONENTS
NIMS integrates existing best practices into a consistent, nationwide, systematic approach
to incident management that is applicable at all levels of government, nongovernmental
organizations (NGOs), and the private sector, and across functional disciplines in an all-
hazards context. Five major components make up this systems approach: Preparedness,
Communications and Information Management, Resource Management, Command and
Management, and Ongoing Management and Maintenance.
1. NIMS COMPONENTS
The components of NIMS were not designed to stand alone, but to work together in a
flexible, systematic manner to provide the national framework for incident management. A
more detailed discussion of each component is included in subsequent sections of this
document.
a. Preparedness
Effective emergency management and incident response activities begin with a host of
preparedness activities conducted on an ongoing basis, in advance of any potential incident.
Preparedness involves an integrated combination of assessment; planning; procedures and
protocols; training and exercises; personnel qualifications, licensure, and certification;
equipment certification; and evaluation and revision.
b. Communications and Information Management
Emergency management and incident response activities rely on communications and
information systems that provide a common operating picture to all command and
coordination sites. NIMS describes the requirements necessary for a standardized
framework for communications and emphasizes the need for a common operating picture.
This component is based on the concepts of interoperability, reliability, scalability, and
portability, as well as the resiliency and redundancy of communications and information
systems.
National Incident Management System 7 December 2008
INTRODUCTION AND OVERVIEW
8 National Incident Management System
c. Resource Management
Resources (such as personnel, equipment, or supplies) are needed to support critical
incident objectives. The flow of resources must be fluid and adaptable to the requirements
of the incident. NIMS defines standardized mechanisms and establishes the resource
management process to identify requirements, order and acquire, mobilize, track and
report, recover and demobilize, reimburse, and inventory resources.
d. Command and Management
The Command and Management component of NIMS is designed to enable effective and
efficient incident management and coordination by providing a flexible, standardized
incident management structure. The structure is based on three key organizational
constructs: the Incident Command System, Multiagency Coordination Systems, and Public
Information.
e. Ongoing Management and Maintenance
Within the auspices of Ongoing Management and Maintenance, there are two components:
the NIC and Supporting Technologies.
(1) National Integration Center
Homeland Security Presidential Directive 5 required the Secretary of Homeland Security to
establish a mechanism for ensuring the ongoing management and maintenance of NIMS,
including regular consultation with other Federal departments and agencies; State, tribal,
and local stakeholders; and NGOs and the private sector. The NIC provides strategic
direction, oversight, and coordination of NIMS and supports both routine maintenance and
the continuous refinement of NIMS and its components. The NIC oversees the program and
coordinates with Federal, State, tribal, and local partners in the development of compliance
criteria and implementation activities. It provides guidance and support to jurisdictions and
emergency management/response personnel and their affiliated organizations as they adopt
or, consistent with their status, are encouraged to adopt the system. The NIC also oversees
and coordinates the publication of NIMS and its related products. This oversight includes
the review and certification of training courses and exercise information.
(2) Supporting Technologies
As NIMS and its related emergency management and incident response systems evolve,
emergency management/response personnel will increasingly rely on technology and
systems to implement and continuously refine NIMS. The NIC, in partnership with the
Department of Homeland Security Science and Technology Directorate, oversees and
coordinates the ongoing development of incident management-related technology, including
strategic research and development.
December 2008
COMPONENT I:
PREPAREDNESS
NIMS provides the mechanisms for emergency management/response personnel3 and their
affiliated organizations to work collectively by offering the tools to enhance preparedness.
Preparedness is achieved and maintained through a continuous cycle of planning,
organizing, training, equipping, exercising, evaluating, and taking corrective action.
Ongoing preparedness efforts among all those involved in emergency management and
incident response activities ensure coordination during times of crisis. Moreover,
preparedness facilitates efficient and effective emergency management and incident
response activities.
This component describes specific measures and capabilities that emergency
management/response personnel and their affiliated organizations should develop and
incorporate into their overall preparedness programs to enhance the operational
preparedness necessary for all-hazards emergency management and incident response
activities. In developing, refining, and expanding preparedness programs and activities
within their jurisdictions and/or organizations, emergency management/response personnel
should leverage existing preparedness efforts and collaborative relationships to the greatest
extent possible. Personal preparedness, while an important element of homeland security,
is distinct from the operational preparedness of our Nation’s emergency management and
incident response capabilities and is beyond the scope of NIMS.
A. CONCEPTS AND PRINCIPLES
Within NIMS, preparedness focuses on the following elements: planning; procedures and
protocols; training and exercises; personnel qualifications, licensure, and certification; and
equipment certification. Effective adoption, implementation, and training of all NIMS
components in advance of an incident or planned event will facilitate collaborative
emergency management and incident response activities. Preparedness is a foundational
step in emergency management and incident response; therefore, the concepts and
principles that form the basis for preparedness are an integration of the concepts and
principles of all NIMS components.
1. UNIFIED APPROACH
Preparedness requires a unified approach to emergency management and incident response
activities. To achieve this, components of NIMS should be integrated within a jurisdiction’s
or organization’s emergency management and incident response structure. Specifically,
preparedness should be integrated into communications and information management,
resource management, and command and management to form an effective system.
Additionally, the unified-approach concept is at the core of the Command and Management
component, as it is based on chain of command, unity of command, unity of effort, and
when implemented, Unified Command. These characteristics allow organizations with
3 Emergency management/response personnel include Federal, State, territorial, tribal, substate regional, and local
governments, nongovernmental organizations, private-sector organizations, critical infrastructure owners and
operators, and all other organizations and individuals who assume an emergency management role.
National Incident Management System 9 December 2008
COMPONENT I: PREPAREDNESS
different jurisdictional, geographical, or functional responsibilities, authorities, and resources
to coordinate, plan, and interact effectively in support of a commonly recognized objective.
2. LEVELS OF CAPABILITY
Preparedness involves actions to establish and sustain necessary capabilities to execute a
full range of emergency management and incident response activities. For NIMS to function
effectively, jurisdictions and organizations should set expectations about the capabilities and
resources that will be provided before, during, and after an incident. The inventorying and
categorizing of resources available for an incident or planned event is a critical element of
preparedness, as it helps to establish and verify the level of capability needed. Additionally,
the concept of identifying this level of capability is woven throughout the components of
NIMS, including the credentialing system.
B. ACHIEVING PREPAREDNESS
Individual jurisdictions should prepare in advance of an incident, in coordination with and
supported by Federal and State partners, nongovernmental organizations (NGOs), and the
private sector, as appropriate. In order for successful emergency management and incident
response to occur, emergency management/response personnel and their affiliated
organizations must have a clear understanding of their roles and responsibilities. This
clarity is essential not only for emergency management/response personnel, but also for
those acting in a policy, coordination, or support role.
• Policy Role: Development, revision, signing, and/or formalization of policies,
procedures, mutual aid agreements, and assistance agreements and/or plans
relating to emergency management and incident response programs and activities.
• Coordination Role: Resource management or any other necessary coordination
efforts required for emergency management and incident response programs and
activities.
• Support Role: Provision of assistance for emergency management and incident
response programs and activities.
1. RELATIONSHIP BETWEEN NIMS AND OTHER PREPAREDNESS
EFFORTS
To achieve national preparedness and coordinated response, emergency management and
incident response activities should be coordinated at all levels of government and should
include NGOs and the private sector, where appropriate. Homeland Security Presidential
Directive 5 (HSPD–5) established a single, comprehensive approach to incident
management, with the objective of ensuring that all levels of government across the Nation
have the capability to work together efficiently and effectively. Several other Homeland
Security Presidential Directives are inextricably linked with HSPD–5, as they deal directly
with national preparedness and the protection of critical infrastructure. These directives are
discussed more fully below.
a. Homeland Security Presidential Directive 7, “Critical
Infrastructure Identification, Prioritization, and Protection”
HSPD–7 directed the Department of Homeland Security (DHS) to establish a national policy
for Federal departments and agencies to identify and prioritize critical infrastructure and key
10 National Incident Management System December 2008
COMPONENT I: PREPAREDNESS
resources (CIKR) in order to prevent, deter, and mitigate the effects of deliberate efforts to
destroy, incapacitate, or exploit them. Federal departments and agencies are to work with
State, tribal, and local governments, NGOs, and the private sector to accomplish this
objective. This effort includes the development, implementation, and ongoing management
and maintenance of the National Infrastructure Protection Plan (NIPP). The NIPP and its
complementary Sector-Specific Plans provide the unifying structure for integrating existing
and future CIKR protection activities.
b. Homeland Security Presidential Directive 8, “National
Preparedness”
HSPD–8 directed DHS to lead a national initiative to develop a National Preparedness
System—a common, unified approach to “strengthen the preparedness of the United States
to prevent and respond to threatened or actual domestic terrorist attacks, major disasters,
and other emergencies.” The requirements of HSPD–8 led to the National Preparedness
Guidelines, which were developed to provide the means for the Nation to answer three
fundamental questions:
• How prepared do we need to be?
• How prepared are we?
• How do we prioritize efforts to close the gap?
HSPD–8 also required DHS to develop mechanisms for the improved delivery of Federal
preparedness assistance to State, tribal, and local governments and to strengthen the
Nation’s preparedness capabilities. Annex I to HSPD-8, titled “National Planning,”
establishes a comprehensive approach to national planning and provides guidance for
conducting planning in accordance with the National Strategy for Homeland Security. Annex
I calls for the development and updating of an Integrated Planning System (IPS). Fifteen
National Planning Scenarios were developed to illustrate the range, scope, magnitude, and
complexity of incidents for which the Nation should prepare. Using this wide range of
possible scenarios, including terrorism, natural disasters, and health emergencies, helps
reduce uncertainty in planning.
After identifying the most important performance needs across the scenarios, DHS then
developed the Target Capabilities List (TCL), designed to guide efforts to build a national
network of capabilities that will be available when and where they are needed. The TCL
outlines an all-hazards approach to development of capabilities that will be needed for
natural or manmade disasters or other major incidents, and defines the primary roles that
all levels of government, NGOs, the private sector, and individuals have in national
preparedness. The capabilities provide the means to accomplish a mission and achieve
desired outcomes by performing critical tasks, under specified conditions, to target levels of
performance. Capabilities are delivered by appropriate combinations of properly planned,
organized, equipped, trained, and exercised personnel.
2. NIMS AND ITS RELATIONSHIP TO THE NATIONAL RESPONSE
FRAMEWORK
NIMS provides the template for the management of incidents, regardless of cause, size,
location, or complexity. This template establishes the structure, concepts, principles,
processes, and language for the effective employment of capabilities nationally, whether
those capabilities reside with Federal, State, tribal, or local jurisdictions or with the private
sector or NGOs.
National Incident Management System 11 December 2008
COMPONENT I: PREPAREDNESS
The National Response Framework (NRF), which
superseded the National Response Plan, is an all-
hazards framework that builds upon NIMS and
describes additional specific Federal roles and
structures for incidents in which Federal resources are
involved.
The NRF is a guide to how the
Nation conducts all-hazards
response.
The NRF provides the structure and mechanisms for national-level policy and operational
direction for incident management to ensure timely and effective Federal support to State,
tribal, and local related activities. The NRF is applicable to all Federal departments and
agencies that participate in operations requiring a coordinated Federal response.
NIMS and the NRF are designed to improve the
Nation’s incident management capabilities and overall
efficiency. During incidents requiring coordinated
Federal support, the NRF provides the guidelines and
procedures to integrate capabilities and resources into
a cohesive, coordinated, and seamless national
framework for incident management.
NIMS and the NRF are designed to
ensure that local jurisdictions
retain command, control, and
authority over response activities
for their jurisdictional areas.
A basic premise of both NIMS and the NRF is that
incidents typically be managed at the local level first. In the vast majority of incidents, local
resources and local mutual aid agreements and assistance agreements will provide the first
line of emergency management and incident response. If additional or specialized
resources or capabilities are needed, Governors may request Federal assistance; however,
NIMS is based on the concept that local jurisdictions retain command, control, and authority
over response activities for their jurisdictional areas. Adhering to NIMS allows local agencies
to better utilize incoming resources.
The fundamental role of preparedness in emergency management and incident response is
a universal concept incorporated in both NIMS and the NRF. Though the specific elements
of preparedness described within each document may vary slightly, the concepts remain
complementary. The key elements found within the Preparedness component of NIMS and
the NRF are described and organized in a fashion to best assist stakeholders in the
development of efficient, effective emergency management and incident response
capabilities.
3. PREPAREDNESS ROLES
Preparedness activities should be coordinated among all appropriate agencies and
organizations within the jurisdiction, as well as across jurisdictions. NGOs and the private
sector should be involved in these efforts, as they often provide incident-related services,
and are the owners and operators of critical infrastructure and key resources that may be
involved in emergency management and incident response. Though not integrated directly
into NIMS, individuals play a critical role in preparedness and are expected to prepare
themselves and their families for all types of potential incidents. Jurisdictions should have
outreach programs to promote and support individual and community preparedness (e.g.,
public education, training sessions, demonstrations), including preparedness of those with
special needs.
12 National Incident Management System December 2008
COMPONENT I: PREPAREDNESS
a. Preparedness Organizations
Preparedness organizations provide coordination for emergency management and incident
response activities before an incident or planned event. These organizations range from
groups of individuals to small committees to large standing organizations that represent a
wide variety of committees, planning groups, or other organizations (e.g., Citizen Corps,
Community Emergency Response Teams, Local Emergency Planning Committees, Critical
Infrastructure Sector Coordinating Councils). Preparedness organizations should meet
regularly and coordinate with one another to ensure an appropriate focus on helping
jurisdictions and groups of jurisdictions to meet their preparedness needs.
The needs of the jurisdictions involved will dictate how frequently such organizations should
conduct their business, as well as how they are structured. When preparedness activities
routinely need to be accomplished across jurisdictions, preparedness organizations should
be multijurisdictional and/or multiagency and include critical infrastructure owners and
operators, NGOs, and the private sector, when relevant. Memorandums or agreements
should be established between necessary parties so that each will be aware of the
capabilities, expectations, and roles of the others.
Preparedness organizations may take the following actions, among others:
• Establish and coordinate emergency operations plans, protocols, and procedures,
including public communications and awareness.
• Integrate and coordinate the activities and functions within their purview.
• Establish the standards, guidelines, and protocols necessary to promote
interoperability and consideration for responder safety.
• Adopt standards, guidelines, and procedures for requesting and providing resources.
• Identify resources and other requirements and set priorities for their use.
• Encourage training, exercises, evaluation, and corrective action programs.
• Ensure the establishment and maintenance of necessary mutual aid agreements and
assistance agreements and outreach to NGOs and the private sector.
• Use Multiagency Coordination Systems, as needed and where appropriate, for
planned events (such as parades or sporting events) or for specific types of incidents
(such as pandemic influenza or hurricanes).4
• Plan for operational scientific support, which can be done at each level of
government, and contribute ideas to ongoing research and development of new
technologies.5
• Conduct after-action reviews to strengthen future preparedness.
b. Elected and Appointed Officials
Elected and appointed officials should have a clear understanding of their roles and
responsibilities for successful emergency management and incident response. These
officials include administrative and political personnel, as well as department/agency
administrators who have leadership roles in a jurisdiction, including legislators and chief
executives, whether elected (e.g., Governors, mayors, sheriffs, tribal leaders, and county
executives) or appointed (e.g., county administrators and city managers). Although their
roles may require providing direction and guidance to constituents during an incident, their
4 See page 64, Component IV: Command and Management, Multiagency Coordination Systems.
5 See page 79, Component V: Ongoing Management and Maintenance, Supporting Technologies.
National Incident Management System 13 December 2008
COMPONENT I: PREPAREDNESS
day-to-day activities do not necessarily focus on emergency management and incident
response.
To better serve their constituents, elected and appointed officials should do the following:
• Understand, commit to, and receive training on NIMS and participate in exercises.
• Maintain an understanding of basic emergency management, continuity of operations
and continuity of government plans, jurisdictional response capabilities, and initiation
of disaster declarations.
• Lead and encourage preparedness efforts within the community, agencies of the
jurisdiction, NGOs, and the private sector, as appropriate.
• Help to establish relationships (including mutual aid agreements and assistance
agreements) with other jurisdictions and, as appropriate, NGOs and the private
sector.
• Support and encourage participation in mitigation efforts within the jurisdiction and,
as appropriate, with NGOs and the private sector.
• Provide guidance to their jurisdictions, departments, and/or agencies, with clearly
stated policies for NIMS implementation.
• Understand laws and regulations in their jurisdictions that pertain to emergency
management and incident response.
• Maintain awareness of CIKR within their jurisdictions, potential incident impacts, and
restoration priorities.
Elected and appointed officials may also be called upon to help shape and revise laws,
policies, and budgets to aid in preparedness efforts and to improve emergency management
and incident response activities.
An incident may have a mix of political, economic, social, environmental, public safety,
public health, and financial implications with potentially serious long-term effects.
Frequently, incidents require a coordinated response (across agencies, jurisdictions, and/or
including NGOs and the private sector), during which elected and appointed officials must
make difficult decisions under crisis conditions. Elected and appointed officials should be
aware of how NIMS can work to ensure cooperative response efforts, thereby minimizing
the potential implications of an incident.
(1) Elected and Appointed Officials During an Incident
Generally, elected and appointed officials are not at
the scene of the incident, but should have the
ability to communicate and meet with the Incident
Commander (IC)/Unified Command (UC), as
necessary. Depending on the nature of the incident
or level of the overall emergency, elected and
appointed officials could function from the following
locations:
Major Responsibilities of Elected
and Appointed Officials
• Clearly state agency/jurisdiction
policy
• Evaluate effectiveness and correct
deficiencies
• Support a multiagency approach
• The agency or jurisdictional offices.
• An Emergency Operations Center.
• A location housing multiagency coordination.
Elected and appointed officials should provide input on policy, direction, and authority to the
IC/UC. Proper coordination between elected and appointed officials and the IC/UC can be
crucial to the successful management of an incident. Elected and appointed officials should
14 National Incident Management System December 2008
COMPONENT I: PREPAREDNESS
clearly communicate views to the IC/UC. As time and agency policy dictate, the following
considerations should be clearly communicated, documented, and provided to the IC/UC:
• Safety considerations.
• Environmental issues.
• Legal and policy limitations.
• Issues relating to critical infrastructure services or restoration.
• Economic, political, and social concerns.
• Cost considerations.
In some circumstances, if information is not delineated in policies or laws, it should be
defined through a formal delegation of authority or letter of expectation.
c. Nongovernmental Organizations
NGOs, such as community-based, faith-based, or national organizations (e.g., the Salvation
Army, National Voluntary Organizations Active in Disaster, American Red Cross), play vital
roles in emergency management and incident response activities. NGOs that have the
capacity and desire to be involved should be fully integrated into a jurisdiction’s
preparedness efforts, especially in planning, training, and exercises. Furthermore,
memorandums of agreement should be established with NGOs prior to an incident so that
each organization is aware of the capabilities, expectations, and roles of others.
It is recommended that key executives and administrators of NGOs use NIMS for planned
events or incidents, because its use improves the organizations’ ability to integrate into
incident management. While compliance with NIMS is not mandated for NGOs, adhering to
NIMS procedures and terminology, and requiring staff with disaster-related missions to take
appropriate training, will support the continued integration of the NGOs into a jurisdiction’s
preparedness efforts.
d. Private Sector
The private sector plays a vital role in emergency management and incident response and
should be incorporated into all aspects of NIMS. Utilities, industries, corporations,
businesses, and professional and trade associations typically are involved in critical aspects
of emergency response and incident management. These organizations should prepare for
all-hazards incidents that may affect their ability to deliver goods and services. It is
essential that private-sector organizations directly involved in emergency management and
incident response, or identified as a component of critical infrastructure (e.g., hospitals,
public and private utility companies, schools), be included, as appropriate, in a jurisdiction’s
preparedness efforts. Although private-sector entities cannot be required to be NIMS
compliant, it is strongly encouraged that those private-sector organizations that are directly
involved in response operations have their response personnel receive NIMS training and
that the response elements of their organization be NIMS compliant.
Governments at all levels should work with the private sector to establish a common set of
expectations consistent with Federal, State, tribal, and local roles, responsibilities, and
methods of operations. These expectations should be widely disseminated and the
necessary training and practical exercises conducted so that they are thoroughly understood
in advance of an actual incident. These expectations are particularly important with respect
to private-sector organizations involved in CIKR areas. In addition, private-sector
organizations may wish to consider entering into assistance agreements with governments
or other private-sector organizations to clarify the respective capabilities, roles, and
National Incident Management System 15 December 2008
COMPONENT I: PREPAREDNESS
expectations of the parties involved in preparing for and responding to an incident. Finally,
the private sector may be a source for best practices in emergency management and
incident response.
Academia also plays a significant role in NIMS. Many academic institutions assist in
providing NIMS training to responders and community leaders. Additionally, many courses
of study include NIMS training and concepts in their curricula. The academic community is
also a primary vehicle for the development of new concepts and principles.
4. PREPAREDNESS ELEMENTS
Preparedness efforts should validate and maintain plans, policies, and procedures,
describing how they will prioritize, coordinate, manage, and support information and
resources. The elements described below build the foundation necessary for efficient and
effective response and recovery. Ongoing support is provided by the National Integration
Center (NIC) in the following areas: training and exercises; personnel qualifications,
licensure, and certification; and equipment certification.6
a. Preparedness Planning
Plans should be realistic, scalable, and applicable to all types of incidents, from daily
occurrences to incidents requiring the activation of interstate mutual aid to those requiring a
coordinated Federal response. Plans should form the basis of training and be exercised
periodically to ensure that all individuals involved in response are able to execute their
assigned tasks. It is essential that plans address training and exercising and allow for the
incorporation of after-action reviews, lessons learned, and corrective actions, with
responsibility agreements following any major incident or exercise. Plans should be updated
periodically to reflect changes in the emergency management and incident response
environment, as well as any institutional or organizational changes.
Plans should describe how personnel, equipment, and other governmental and
nongovernmental resources will be used to support emergency management and incident
response requirements. Plans are the operational core of preparedness and provide
mechanisms for setting priorities, integrating multiple jurisdictions/organizations and
functions, establishing collaborative relationships, and ensuring that communications and
other systems effectively support the full spectrum of emergency management and incident
response activities. Plans should also incorporate strategies for maintaining continuity of
government and continuity of operations during and after incidents, provide mechanisms to
ensure resiliency of critical infrastructure and economic stability of communities, and
incorporate the advance planning associated with responder protection, resource
management, and communications and information management.
Plans should integrate all relevant departments, agencies, and organizations (including
NGOs and the private sector, where appropriate) to facilitate coordinated emergency
management and incident response activities. Where appropriate, plans should incorporate
a clearly defined process for seeking and requesting assistance from necessary
departments, agencies, or organizations. While it is recognized that jurisdictions and
organizations will develop multiple types of plans, such as response, mitigation, and
recovery plans, it is essential that these plans be coordinated and complement one another.
State, tribal, and local governments are encouraged to comply with the Integrated Planning
6 See page 75, Component V: Ongoing Management and Maintenance, National Integration Center.
16 National Incident Management System December 2008
COMPONENT I: PREPAREDNESS
System (IPS) by using Comprehensive Preparedness Guide (CPG) 101, “Producing
Operations Plans for State, Territorial, Tribal, and Local Governments.” CPG 101 meets the
Annex I requirement that IPS include a “guide for all-hazards planning . . . that can be used
at Federal, State, local, and tribal levels to assist the planning process.” IPS is flexible
enough to accommodate the many planning formats, styles, and processes used by State,
tribal, and local governments. Over time, the use of IPS is expected to facilitate
standardization of plans across the United States at all levels of government and enhance
preparedness. Together IPS and CPG 101 support national vertical integration by clearly
articulating Federal planning procedures to State, tribal, and local governments and by
establishing a consistent planning process across all levels of government.
Each jurisdiction, in coordination with appropriate agencies and organizations, should
develop plans that define the scope of necessary activities for preparedness, emergency
management, and incident response for that jurisdiction. As appropriate, jurisdictions
should also develop scenario-specific plans or annexes derived from their threat
assessment. These plans should describe organizational structures, roles and
responsibilities, policies, and protocols for providing support; should be flexible enough for
use in all incidents; and should be comprehensive enough to meet the wide variety of public
needs that may arise. While preparedness of the public is generally beyond the scope of
NIMS, plans should also include public awareness, education, and communications plans
and protocols.
(1) Continuity Capability
Recent natural and manmade disasters have demonstrated the need for a robust continuity
capability at the Federal, State, territorial, tribal, and local levels, as well as within the
private sector, in order to ensure the preservation of our form of government under the
Constitution and the continuation of essential functions under all conditions. Ensuring that
the right leadership, support staff, communications, facilities, infrastructure, and other
resources with the right continuity planning and program management are available to
support a jurisdiction is critical to the success of emergency management and incident
response operations.
The goal of a robust continuity capability is to have the resiliency to confront any challenge,
threat, or vulnerability. Continuity planning should be instituted within all organizations—to
include all levels of government and the private sector—and especially within those
organizations that support the National Essential Functions found in National Security
Presidential Directive 51/Homeland Security Presidential Directive 20 (NSPD-51/HSPD-20),
“National Continuity Policy,” dated May 4, 2007. NSPD-51/HSPD-20 and Federal Continuity
Directive 1, dated February 4, 2007, outline the continuity requirements for all Federal
departments and agencies (with guidance for non-Federal organizations). These
requirements include such things as essential functions, orders of succession, delegations of
authority, continuity facilities, continuity communications, vital records management, and
human capital.
National Incident Management System 17 December 2008
COMPONENT I: PREPAREDNESS
(2) Mutual Aid Agreements and Assistance Agreements
Agreements, preferably written, should
include the following elements or
provisions:
• Definitions of key terms used in the
agreement
• Roles and responsibilities of individual
parties
• Procedures for requesting and providing
assistance
• Procedures, authorities, and rules for
payment, reimbursement, and allocation
of costs
• Notification procedures
• Protocols for interoperable
communications
• Relationships with other agreements
among jurisdictions
• Workers’ compensation
• Treatment of liability and immunity
• Recognition of qualifications, licensure,
and certifications
• Sharing agreements, as required
• Termination clause
Mutual aid agreements and assistance agreements are agreements between agencies,
organizations, and jurisdictions that provide a mechanism to quickly obtain emergency
assistance in the form of personnel, equipment,
materials, and other associated services. The
primary objective is to facilitate rapid, short-term
deployment of emergency support prior to,
during, and after an incident. A signed
agreement does not obligate the provision or
receipt of aid, but rather provides a tool for use
should the incident dictate a need. There are
several types of these kinds of agreements,
including but not limited to the following:
• Automatic Mutual Aid: Agreements that
permit the automatic dispatch and
response of requested resources without
incident-specific approvals. These
agreements are usually basic contracts;
some may be informal accords.
• Local Mutual Aid: Agreements between
neighboring jurisdictions or organizations
that involve a formal request for
assistance and generally cover a larger
geographic area than automatic mutual
aid.
• Regional Mutual Aid: Substate regional
mutual aid agreements between multiple
jurisdictions that are often sponsored by a
council of governments or a similar
regional body.
• Statewide/Intrastate Mutual Aid:
Agreements, often coordinated through the State, that incorporate both State and
local governmental and nongovernmental resources in an attempt to increase
preparedness statewide.
• Interstate Agreements: Out-of-State assistance through the Emergency
Management Assistance Compact (EMAC) or other formal State-to-State agreements
that support the response effort.
• International Agreements: Agreements between the United States and other
nations for the exchange of Federal assets in an emergency.
• Other Agreements: Any agreement, whether formal or informal, used to request
or provide assistance and/or resources among jurisdictions at any level of
government (including foreign), NGOs, or the private sector.
Jurisdictions should be party to agreements with the appropriate jurisdictions and/or
organizations (including NGOs and the private sector, where appropriate) from which they
expect to receive, or to which they expect to provide, assistance. States should participate
in interstate compacts and look to establish intrastate agreements that encompass all local
jurisdictions. Authorized officials from each of the participating jurisdictions and/or
organizations should collectively approve all mutual aid agreements and assistance
agreements.
18 National Incident Management System December 2008
COMPONENT I: PREPAREDNESS
Memorandums of understanding and memorandums of agreement are needed with the
private sector and NGOs, including community-based, faith-based, and national
organizations such as the American Red Cross and the Salvation Army, to facilitate the
timely delivery of assistance during incidents.
b. Procedures and Protocols
Procedures and protocols should detail the specific actions to implement a plan or system.
All emergency management/response personnel and their affiliated organizations should
develop procedures and protocols that translate into specific, action-oriented checklists for
use during incident response operations.
Procedures are documented and implemented with checklists; resource listings; maps,
charts, and other pertinent data; mechanisms for notifying staff; processes for obtaining
and using equipment, supplies, and vehicles; methods of obtaining mutual aid agreements
and assistance agreements; mechanisms for reporting information to Department
Operations Centers and Emergency Operations Centers; and communications operating
instructions, including connectivity among governments, NGOs, and the private sector.
There are four standard levels of procedural documents:
• Standard Operating Procedure or Operations Manual: Complete reference
document that provides the purpose, authorities, duration, and details for the
preferred method of performing a single function or a number of interrelated
functions in a uniform manner.
• Field Operations Guide or Incident Management Handbook: Durable pocket or
desk guide that contains essential information required to perform specific
assignments or functions.
• Mobilization Guide: Reference document used by agencies/organizations outlining
agreements, processes, and procedures used by all participating organizations for
activating, assembling, and transporting resources.
• Job Aid: Checklist or other visual aid intended to ensure that specific steps for
completing a task or assignment are accomplished. Job aids serve as training aids to
teach individuals how to complete specific job tasks.
Protocols are sets of established guidelines for actions (which may be designated by
individuals, teams, functions, or capabilities) under various specified conditions.
Establishing protocols provides for the standing orders, authorizations, and delegations
necessary to permit the rapid execution of a task, function, or a number of interrelated
functions without having to seek permission. Protocols permit specific personnel—based on
training and delegation of authority—to assess a situation, take immediate steps to
intervene, and escalate their efforts to a specific level before further guidance or
authorizations are required.
c. Training and Exercises
Personnel with roles in emergency management and incident response at all levels of
government—including persons with leadership positions, such as elected and appointed
officials—should be appropriately trained to improve all-hazards capabilities nationwide.
Additionally, NGOs and private-sector entities with direct roles in response operations
should be strongly encouraged to participate in NIMS training and exercises. Standardized
NIMS training courses focused on the structure and operational coordination processes and
National Incident Management System 19 December 2008
COMPONENT I: PREPAREDNESS
systems, together with courses focused on discipline-specific and agency-specific expertise,
help to ensure that emergency management/response personnel can function together
effectively during an incident. Training and exercises should be specifically tailored to the
responsibilities of the personnel involved in incident management. Mentoring or shadowing
opportunities, to allow less experienced personnel to observe those with more experience
during an actual incident, should be incorporated to enhance training and exercising.
Additionally, exercises should be designed to allow personnel to simulate multiple
command, supervisory, or leadership roles whenever possible.
NIMS training levels are dependent on the individual’s, jurisdiction’s, or organization’s level
of involvement in emergency management and incident response activities.
Training should allow practitioners to:
• Use the concepts and principles of NIMS in exercises, planned events, and actual
incidents.
• Become more comfortable using NIMS, including the Incident Command System.
Exercises should contain a
mechanism for incorporating
corrective actions into the
planning process.
To improve NIMS performance, emergency
management/response personnel should also participate in
realistic exercises—including multidisciplinary,
multijurisdictional incidents, and NGO and private-sector
interaction—to improve coordination and interoperability.
Thorough exercising of NIMS components may be done using
a single exercise or a series of exercises, each of which
evaluates specific aspects of NIMS and its components.
Exercises should be conducted with parties identified in strategic and operational plans
(e.g., the emergency operations plan), including departments, agencies, partners in mutual
aid agreements and assistance agreements, NGOs, and the private sector. Exercises should
contain a mechanism for incorporating corrective actions and lessons learned from incidents
into the planning process. For guidance on exercise design, methodology, and evaluation,
refer to the Homeland Security Exercise and Evaluation Program or other exercise
development tools. Exercises should also cover the following:
• All aspects of a plan, particularly the processes and procedures for activating local,
intrastate, and/or interstate mutual aid agreements and assistance agreements.
• Knowledge needed to activate those agreements.
d. Personnel Qualifications and Certification
A critical element of NIMS preparedness is the use of national standards that allow for
common or compatible structures for the qualification, licensure, and certification of
emergency management/response personnel.7 Standards will help ensure that these
personnel possess the minimum knowledge, skills, and experience necessary to execute
incident management and emergency response activities safely and effectively. Standards
typically include training, experience, credentialing, validation, and physical and medical
fitness. Federal, State, tribal, and local certifying agencies, and professional and private
organizations with personnel involved in emergency management and incident response,
are encouraged to credential those individuals in their respective disciplines or jurisdictions.
7 See page 40, Component III: Resource Management, Credentialing.
20 National Incident Management System December 2008
COMPONENT I: PREPAREDNESS
The baseline criteria for this voluntary credentialing will be established by the NIC after
consultation with appropriate experts, partners, and/or recognized authoritative bodies,
which will detail the standards associated with the minimum thresholds for specific
emergency management positions, allowing those credentialed personnel to participate, as
needed, in national-level incidents.
e. Equipment Certification
Emergency management/response personnel and their affiliated organizations rely on
various types and kinds of equipment to perform essential tasks.8 A critical component of
preparedness is the acquisition of equipment that will perform to certain standards (as
designated by organizations such as the National Fire Protection Association or National
Institute of Standards and Technology), including the capability to be interoperable with
equipment used by other jurisdictions or participating organizations.9 Associated with this
is the need to have a common understanding of the abilities of distinct types of equipment,
to allow for better planning before an incident and rapid scaling and flexibility in meeting th
needs of an incident.
e
5. MITIGATION
Mitigation is an important element of emergency management and incident response. It
provides a critical foundation in the effort to reduce the loss of life and property and to
minimize damage to the environment from natural or manmade disasters by avoiding or
lessening the impact of a disaster. Mitigation provides value to the public by creating safer
communities and impeding the cycle of disaster damage, reconstruction, and repeated
damage. Mitigative actions should effectively be coordinated between the IC/UC and the
operator of the CIKR facilities. These activities or actions, in most cases, will have a long-
term sustained effect. Risk management—the process for measuring or assessing risk and
developing strategies to manage it—is an essential aspect of mitigation. Risk management
strategies may include avoiding the risk (e.g., removing structures in floodplains), reducing
the negative effect of the risk (e.g., hardening buildings by placing barriers around them),
or accepting some or all of the consequences of a particular risk.
Examples of mitigation activities include the following:
• Ongoing public education and outreach activities designed to reduce loss of life and
destruction of property.
• Complying with or exceeding floodplain management and land-use regulations.
• Enforcing stringent building codes, seismic design standards, and wind-bracing
requirements for new construction, or repairing or retrofitting existing buildings.
• Supporting measures to ensure the protection and resilience of CIKR designed to
ensure business continuity and the economic stability of communities.
• Acquiring damaged homes or businesses in flood-prone areas, relocating the
structures, and returning the property to open space, wetlands, or recreational uses.
• Identifying, utilizing, and refurbishing shelters and safe rooms to help protect people
in their homes, public buildings, and schools in hurricane- and tornado-prone areas.
• Implementing a vital records program at all levels of government to prevent loss of
crucial documents and records.
8 See page 31, Component III: Resource Management for more information on equipment certification.
9 See page 75, Component V: Ongoing Management and Maintenance, National Integration Center.
National Incident Management System 21 December 2008
COMPONENT I: PREPAREDNESS
22 National Incident Management System
• Intelligence sharing and linkage leading to other law enforcement activities, such as
infiltration of a terrorist cell to prevent an attack.
• Periodic remapping of hazard or potential hazard zones, using geospatial techniques.
• Management of data regarding historical incidents to support strategic planning and
analysis.
• Development of hazard-specific evacuation routes.
December 2008
COMPONENT II:
COMMUNICATIONS AND
INFORMATION MANAGEMENT
COMPONENT II:
COMMUNICATIONS AND
INFORMATION MANAGEMENT
Effective emergency management and incident response activities rely on flexible
communications and information systems that provide a common operating picture to
emergency management/response personnel10 and their affiliated organizations.
Establishing and maintaining a common operating picture and ensuring accessibility and
interoperability are the principal goals of the Communications and Information Management
component of NIMS. Properly planned, established, and applied communications enable the
dissemination of information among command and support elements and, as appropriate,
cooperating agencies and organizations.
Effective emergency management and incident response activities rely on flexible
communications and information systems that provide a common operating picture to
emergency management/response personnel10 and their affiliated organizations.
Establishing and maintaining a common operating picture and ensuring accessibility and
interoperability are the principal goals of the Communications and Information Management
component of NIMS. Properly planned, established, and applied communications enable the
dissemination of information among command and support elements and, as appropriate,
cooperating agencies and organizations.
Incident communications are facilitated through the development and use of common
communications plans and interoperable communications equipment, processes, standards,
and architectures. During an incident, this integrated approach links the operational and
support units of the various organizations to maintain communications connectivity and
situational awareness. Communications and information management planning should
address the incident-related policies, equipment, systems, standards, and training
necessary to achieve integrated communications.
Incident communications are facilitated through the development and use of common
communications plans and interoperable communications equipment, processes, standards,
and architectures. During an incident, this integrated approach links the operational and
support units of the various organizations to maintain communications connectivity and
situational awareness. Communications and information management planning should
address the incident-related policies, equipment, systems, standards, and training
necessary to achieve integrated communications.
A. CONCEPTS AND PRINCIPLES A. CONCEPTS AND PRINCIPLES
The underlying concepts and principles of this component reinforce the use of a flexible
communications and information system in which emergency management/response
personnel can maintain a constant flow of information during an incident. These concepts
and principles emphasize the need for and maintenance of a common operating picture;
interoperability; reliability, scalability, and portability; and resiliency and redundancy of any
system and its components.
1. COMMON OPERATING PICTURE
A common operating picture is established and
maintained by gathering, collating, synthesizing, and
disseminating incident information to all appropriate
parties. Achieving a common operating picture allows
on-scene and off-scene personnel—such as those at the
Incident Command Post, Emergency Operations Center
(EOC), or within a Multiagency Coordination Group—to
have the same information about the incident, including
the availability and location of resources and the status
of assistance requests. Additionally, a common
operating picture offers an incident overview that enables the Incident Commander (IC),
Common Operating Picture
An overview of an incident created
by collating and gathering
information—such as traffic,
weather, actual damage, resource
availability—of any type (voice, data,
etc.) from agencies/organizations in
order to support decisionmaking
10 Emergency management/response personnel include Federal, State, territorial, tribal, substate regional, and
local governments, nongovernmental organizations, private-sector organizations, critical infrastructure owners and
operators, and all other organizations and individuals who assume an emergency management role.
National Incident Management System 23 23 December 2008
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
Unified Command (UC), and supporting agencies and organizations to make effective,
consistent, and timely decisions. In order to maintain situational awareness,
communications and incident information must be updated continually. Having a common
operating picture during an incident helps to ensure consistency for all emergency
management/response personnel engaged in an incident.
2. INTEROPERABILITY
Communications interoperability allows emergency management/response personnel and
their affiliated organizations to communicate within and across agencies and jurisdictions via
voice, data, or video in real time, when needed, and when authorized. It is essential that
these communications systems be capable of interoperability, as successful emergency
management and incident response operations require the continuous flow of critical
information among jurisdictions, disciplines, organizations, and agencies.
Interoperability planning requires accounting for emergency management and incident
response contingencies and challenges. Interoperability plans should include considerations
of governance, standard operating procedures (SOPs), technology, training and exercises,
and usage within the context of the stress and chaos of a major response effort.
Coordinated decisionmaking between agencies and jurisdictions is necessary to establish
proper and coherent governance and is critical to achieving interoperability. Agreements
and SOPs should clearly articulate the processes, procedures, and protocols necessary to
achieve interoperability.
3. RELIABILITY, SCALABILITY, AND PORTABILITY
Communications and information systems should be designed to be flexible, reliable, and
scalable in order to function in any type of incident, regardless of cause, size, location, or
complexity. They should be suitable for operations within a single jurisdiction or agency, a
single jurisdiction with multiagency involvement, or multiple jurisdictions with multiagency
involvement. Communications systems should be applicable and acceptable to users,
readily adaptable to new technology, and reliable in the context of any incident to which
emergency management/response personnel would be expected to respond.
Portability of radio technologies, protocols, and frequencies among emergency
management/response personnel will allow for the successful and efficient integration,
transport, and deployment of communications systems when necessary. Portability includes
the standardized assignment of radio channels across jurisdictions, which allows responders
to participate in an incident outside their jurisdiction and still use familiar equipment.
Scalability differs from portability in that scalability allows responders to increase the
number of users on a system, while portability facilitates the interaction of systems that are
normally distinct.
4. RESILIENCY AND REDUNDANCY
Resiliency is the ability of communications systems to withstand and continue to perform
after damage or loss of infrastructure. It requires communications systems to avoid relying
solely on a sophisticated but vulnerable network of support systems. Prudent resiliency
practices could include hardened dispatch centers and transmission systems or
infrastructure that can withstand known risks. Repeater antenna sites, for example, are
24 National Incident Management System December 2008
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
equipped with independent power systems to ensure their continued functionality during a
power failure.
Redundancy is another essential element of a jurisdiction’s/organization’s communications
structure. Although the duplication of identical services is one method of achieving
redundancy, it also derives from the ability to communicate through diverse, alternative
methods when standard capabilities suffer damage. For example, a public safety agency
might have a high-tech voice 400-megahertz system that is used as the primary dispatch
system, but maintain a redundant VHF system in its vehicles that would be able to contact
the dispatch center in the event that the primary system is rendered inoperable. Resiliency
and redundancy are critical to ensuring communications flow during an incident.
B. MANAGEMENT CHARACTERISTICS
Emergency management/response personnel should be able to manage incident
communications and information effectively. Regardless of the communications method or
the information being transmitted, procedures and protocols should be followed. As
technologies change and the methods of exchanging information improve, management
procedures likewise should evolve.
1. STANDARDIZED COMMUNICATION TYPES
Successful communications and information management require that emergency
management/response personnel and their affiliated organizations use standardized
communications types. The determination of the individual or agency/organization
responsible for these communications is discussed in the Command and Management
component and in Appendix B. The following is a list of standardized communication
types:11
• Strategic Communications: High-level directions, including resource priority
decisions, roles and responsibilities determinations, and overall incident response
courses of action.
• Tactical Communications: Communications between command and support
elements and, as appropriate, cooperating agencies and organizations.
• Support Communications: Coordination in support of strategic and tactical
communications (for example, communications among hospitals concerning resource
ordering, dispatching, and tracking from logistics centers; traffic and public works
communications).
• Public Address Communications: Emergency alerts and warnings, press
conferences, etc.12
2. POLICY AND PLANNING
Coordinated communications policy and planning provides the basis for effective
communications and information management. Although communications and information
management is important during routine operations, well-established procedures and
protocols become critical during incident response activities. Careful planning should
11 See page 70, Component IV: Command and Management, Public Information, and page 103, Appendix B:
Incident Command System, Planning Section Chief.
12 See page 70, Component IV, Command and Management, Public Information.
National Incident Management System 25 December 2008
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
determine what communications systems and platforms will be used, who can use them,
what information is essential in different environments, the technical parameters of all
equipment and systems, and other relevant considerations.
Information flow among all stakeholders is crucial, but interoperability presents additional
challenges when nongovernmental organizations (NGOs), the private sector, and critical
infrastructure owners and operators are considered. All relevant stakeholders should be
involved in meetings and planning sessions in order to formulate more thorough and
integrated communications plans and strategies. Technology and equipment standards also
should be shared when appropriate, to provide stakeholders with the opportunity to be
interoperable and compatible.
Sound communications management policies and plans should include information about the
following aspects of communications and information management:
• Information needs should be defined by the jurisdiction/organization. These needs
are often met at the Federal, State, tribal, and local levels, in concert with NGOs and
the private sector, and primarily through preparedness organizations.
• The jurisdiction’s or organization’s information management system should provide
guidance, standards, and tools to enable the integration of information needs into a
common operating picture when needed.
• Procedures and protocols for the release of warnings, incident notifications, public
communications, and other critical information are disseminated through a defined
combination of networks used by EOCs. Notifications are made to the appropriate
jurisdictional levels and to NGOs and the private sector through defined mechanisms
specified in emergency operations plans and Incident Action Plans.
• Agencies at all levels should plan in advance for the effective and efficient use of
information management technologies (e.g., computers, networks, and information-
sharing mechanisms) to integrate all command, coordination, and support functions
involved in incident management and to enable the sharing of critical information
and the cataloging of required corrective actions.
3. AGREEMENTS
All parties identified in the planning process used in a jurisdiction’s emergency operations
plan need to have agreements in place to ensure that the elements within plans and
procedures will be in effect at the time of an incident. The agreements should specify all of
the communications systems and platforms through which the parties agree to use or share
information.
4. EQUIPMENT STANDARDS AND TRAINING
Communications equipment used by emergency management/response personnel often
consists of components and systems that may be connected through common interfaces,
many of which rely on the private sector to provide their operational backbone.
Public/private communication systems and associated equipment should be regularly
enhanced and updated, as their maintenance is essential to effective emergency
management and incident response activities. The wide range of conditions under which
communications systems will be used should be considered when developing standards
26 National Incident Management System December 2008
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
associated with the systems and equipment. Training and exercises that employ
interoperable systems and equipment are necessary for personnel to understand their
capabilities and limitations before an incident. In addition, the need for “hardened” laptops
and/or personal digital assistants should be considered in the communications plan.
C. ORGANIZATION AND OPERATIONS
1. INCIDENT INFORMATION
During the course of an incident, information is vital to assist the IC, UC, and supporting
agencies and organizations in making decisions. Much of the information is used for diverse
functions within the Incident Command System. For example, the same piece of
information may:
• Aid in the planning process to develop an Incident Action Plan (IAP).
• Be a key point in the release of public information.
• Assist the Finance/Administration Section in determining incident cost.
• Determine the need for additional involvement of NGO or private-sector resources.
• Identify a safety issue.
• Follow up on an information request.
The following are examples of information generated by an incident that can be used for
decisionmaking purposes.
a. Incident Notification, Situation, and Status Reports
Incident reporting and documentation procedures should be standardized to ensure that
situational awareness is maintained and that emergency management/response personnel
have easy access to critical information. Situation reports offer a snapshot of the past
operational period and contain confirmed or verified information regarding the explicit
details (who, what, when, where, and how) relating to the incident. Status reports, which
may be contained in situation reports, relay information specifically related to the status of
resources (e.g., availability or assignment of resources).
The information contained in incident notification, situation, and status reports must be
standardized in order to facilitate its processing; however, the standardization must not
prevent the collection or dissemination of information unique to a reporting organization.
Transmission of data in a common format enables the passing of pertinent information to
appropriate jurisdictions and organizations and to a national system that can handle data
queries and information/intelligence assessments and analysis.
b. Analytical Data
Data, such as information on public health and environmental monitoring, should be
collected in a manner that observes standard data collection techniques and definitions.
The data should then be transmitted using standardized analysis processes. During
incidents that require public health and environmental sampling, multiple organizations at
different levels of government often collect data, so standardization of data collection and
analysis is critical. Additionally, standardization of sampling and data collection enables
more reliable analysis and improves the quality of assessments provided to decisionmakers.
National Incident Management System 27 December 2008
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
c. Geospatial Information
Geospatial information is defined as information pertaining to the geographic location and
characteristics of natural or constructed features and boundaries. It is often used to
integrate assessments, situation reports, and incident notification into a common operating
picture and as a data fusion and analysis tool to synthesize many kinds and sources of data
and imagery. The use of geospatial data (and the recognition of its intelligence capabilities)
is increasingly important during incidents. Geospatial information capabilities (such as
nationally consistent grid systems or global positioning systems based on lines of longitude
and latitude) should be managed through preparedness efforts and integrated within the
command, coordination, and support elements of an incident, including resource
management and public information.
The use of geospatial data should be tied to consistent standards, as it has the potential to
be misinterpreted, transposed incorrectly, or otherwise misapplied, causing inconspicuous
yet serious errors. Standards covering geospatial information should also enable systems to
be used in remote field locations or devastated areas where telecommunications may not be
capable of handling large images or may be limited in terms of computing hardware.
2. COMMUNICATIONS STANDARDS AND FORMATS
Communications and data standards, related testing, and associated compliance
mechanisms are necessary to enable diverse organizations to work together effectively.
These include a standard set of organizational elements and functions, common “typing” of
resources to reflect specific capabilities, and common identifiers for facilities and operational
locations used to support incident operations.13 Common terminology, standards, and
procedures should be established and detailed in plans and agreements, where possible.
Jurisdictions may be required to comply with national interoperable communications
standards, once developed. Standards appropriate for NIMS users will be designated by the
National Integration Center (NIC) in partnership with recognized standards development
organizations.
a. Radio Usage Procedures
During incident response activities,
radio traffic should be restricted to
those messages necessary for the
effective execution of emergency
management/response personnel
tasks.
Procedures and protocols for incident-specific communications and other critical incident
information should be set forth in agreements or plans prior to an incident, where possible.
These procedures and protocols form the foundation for the development of the
communications plan during an incident. The receiving
center should be required to acknowledge receipt of the
emergency information. Additionally, each
agency/organization should be responsible for
disseminating this information to its respective
personnel.
All emergency management/response personnel
participating in emergency management and incident
response activities should follow recognized procedures
and protocols for establishing interoperability,
coordination, and command and control.
13 See page 41, Component III: Resource Management, Identifying and Typing Resources.
28 National Incident Management System December 2008
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
b. Common Terminology, Plain Language (Clear Text), Compatibility
The ability of emergency management/response personnel from different disciplines,
jurisdictions, organizations, and agencies to work together depends greatly on their ability
to communicate with each other. Common terminology enables emergency
management/response personnel to communicate clearly with one another and effectively
coordinate activities, no matter the size, scope, location, or complexity of the incident.
The use of plain language (clear text) in emergency management and incident response is a
matter of public safety, especially the safety of emergency management/response personnel
and those affected by the incident. It is critical that all those involved with an incident know
and use commonly established operational structures, terminology, policies, and
procedures. This will facilitate interoperability across agencies/organizations, jurisdictions,
and disciplines.
All communications between organizational elements during an incident, whether oral or
written, should be in plain language; this ensures that information dissemination is timely,
clear, acknowledged, and understood by all intended recipients. Codes should not be used,
and all communications should be confined to essential messages. The use of acronyms
should be avoided during incidents requiring the participation of multiple agencies or
organizations. Policies and procedures that foster compatibility should be defined to allow
information sharing among all emergency management/response personnel and their
affiliated organizations to the greatest extent possible.
c. Encryption or Tactical Language
When necessary, emergency management/response personnel and their affiliated
organizations need to have a methodology and the systems in place to encrypt information
so that security can be maintained. Although plain language may be appropriate during
response to most incidents, tactical language is occasionally warranted due to the nature of
the incident (e.g., during an ongoing terrorist event). The use of specialized encryption and
tactical language should be incorporated into any comprehensive IAP or incident
management communications plan.
d. Joint Information System and Joint Information Center
The Joint Information System (JIS) and the Joint Information Center (JIC)14 are designed to
foster the use of common information formats. The JIS integrates incident information and
public affairs into a cohesive organization designed to provide consistent, coordinated,
accurate, accessible, and timely information during crisis or incident operations.
The JIC provides a structure for developing and delivering incident-related coordinated
messages. It develops, recommends, and executes public information plans and strategies;
advises the IC, UC, and supporting agencies or organizations concerning public affairs issues
that could affect a response effort; and controls rumors and inaccurate information that
could undermine public confidence in the emergency response effort. It is the central point
of contact for all news media at the scene of an incident. Public information officials from all
participating agencies/organizations should co-locate at the JIC.
14 See pages 70–71, Component IV: Command and Management, Joint Information System and Joint Information
Center.
National Incident Management System 29 December 2008
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
30 National Incident Management System
e. Internet/Web Procedures
The Internet and other Web-
based tools can be used, as
appropriate, during incidents
to help with situational
awareness and crisis
information management.
The Internet and other Web-based tools can be resources for
emergency management/response personnel and their
affiliated organizations. For example, these tools can be used
prior to and during incidents as a mechanism to offer
situational awareness to organizations/agencies involved in
the incident or to the public, when appropriate.
Procedures for use of these tools during an incident should be
established to leverage them as valuable communications
system resources. Information posted or shared during an incident through these
applications should follow planned and standardized methods and generally conform with
the overall standards, procedures, and protocols.
f. Information Security
Procedures and protocols must be established to ensure information security. Inadequate
information security can result in the untimely, inappropriate, and piecemeal release of
information, which increases the likelihood of misunderstanding and can compound already
complicated public safety issues. The release of inappropriate classified or sensitive public
health or law enforcement information can jeopardize national security, ongoing
investigations, or public health. Misinformation can place persons in danger, cause public
panic, and disrupt the critical flow of proper information. Correcting misinformation wastes
the valuable time and effort of incident response personnel.
Individuals and organizations that have access to incident information and, in particular,
contribute information to the system (e.g., situation reports) must be properly
authenticated and certified for security purposes. This requires a national authentication
and security certification standard that is flexible and robust enough to ensure that
information can be properly authenticated and protected. Although the NIC is responsible
for facilitating the development of these standards, all levels of government, NGOs, and the
private sector should collaborate on the authentication process.
December 2008
COMPONENT III:
RESOURCE MANAGEMENT
Emergency management and incident response activities require carefully managed
resources (personnel, teams, facilities, equipment, and/or supplies) to meet incident needs.
Utilization of the standardized resource management concepts such as typing, inventorying,
organizing, and tracking will facilitate the dispatch, deployment, and recovery of resources
before, during, and after an incident. Resource management should be flexible and scalable
in order to support any incident and be adaptable to changes. Efficient and effective
deployment of resources requires that resource management concepts and principles be
used in all phases of emergency management and incident response.
From routine, local incidents to incidents that
require a coordinated Federal response, resource
management involves the coordination, oversight,
and processes that provide timely and appropriate
resources during an incident. Resources may
support on-scene and command operations through
the Incident Command Post (ICP) or function within
the Multiagency Coordination System(s)15 (MACS)
serving at an Emergency Operations Center (EOC)
or similar site.
For certain kinds of incidents, resource
needs may be anticipated well enough to
develop a deployment strategy,
incorporating all elements of resource
management.
• Preincident assignment: Assigning
personnel and teams to specific tasks in
anticipation of incident response
• “Move-up” or “backfill” strategy:
Moving resources nearest to an incident
into the incident area, with more distant
resources filling the void by backfilling
behind the deploying resources
• Regional pre-positioning of resources:
Using designated areas for final
preparation of resources prior to
mobilization and for recovery of
resources during demobilization
As incident priorities are established, needs are
identified, and resources are ordered, resource
management systems are used to process the
resource requests. In the initial stages of an
incident, most of the resources requested are
addressed locally or through mutual aid agreements
and/or assistance agreements. As an incident
grows in size or complexity, or if it starts on a large
scale, resource needs may be met by other sources.
In a case of competition for critical resources, MACS
may be used to prioritize and coordinate resource
allocation and distribution according to resource
availability, needs of other incidents, and other
constraints and considerations.
15 See page 64, Component IV: Command and Management, for more information on MACS.
National Incident Management System 31 December 2008
COMPONENT III: RESOURCE MANAGEMENT
A. CONCEPTS AND PRINCIPLES
1. CONCEPTS
The underlying concepts of resource management are as follows:
• Consistency: Provision of a standard method for identifying, acquiring, allocating,
and tracking resources.
• Standardization: Resource classification to improve the effectiveness of mutual aid
agreements or assistance agreements.
• Coordination: Facilitation and integration of resources for optimal benefit.
• Use: Incorporating available resources from all levels of government,
nongovernmental organizations (NGOs), and the private sector, where appropriate,
in a jurisdiction’s resource management planning efforts.
• Information Management: Provisions for the thorough integration of
communications and information management elements into resource management
organizations, processes, technologies, and decision support.
• Credentialing: Use of criteria that ensure consistent training, licensure, and
certification standards.
2. PRINCIPLES
The foundations of resource management are based on the following five interwoven
principles.
a. Planning
Coordinated planning, training to common standards, and inclusive exercises provide a
foundation for the interoperability and compatibility of resources throughout an incident.
Jurisdictions should work together in advance of an incident to develop plans for identifying,
ordering, managing, and employing resources. The planning process should include
identifying resource needs based on the threats to and vulnerabilities of the jurisdiction and
developing alternative strategies to obtain the needed resources.
Planning may include the creation of new policies to encourage positioning of resources near
the expected incident site in response to anticipated resource needs. Plans should
anticipate conditions or circumstances that may trigger a specific reaction, such as the
restocking of supplies when inventories reach a predetermined minimum. Organizations
and jurisdictions should continually assess the status of their resources in order to have an
accurate list of resources available at any given time. Additionally, emergency
Management/response personnel16 should be familiar with the National Response
Framework and should be prepared to integrate and/or coordinate with Federal resources.
16 Emergency management/response personnel include Federal, State, territorial, tribal, substate regional, and
local governments, nongovernmental organizations, private-sector organizations, critical infrastructure owners and
operators, and all other organizations and individuals who assume an emergency management role.
32 National Incident Management System December 2008
COMPONENT III: RESOURCE MANAGEMENT
b. Use of Agreements
Agreements among all parties providing or requesting resources are necessary to enable
effective and efficient resource management during incident operations. This includes
developing and maintaining standing agreements and contracts for services and supplies
that may be needed during an incident.
c. Categorizing Resources
Resources are organized by category, kind, and type, including size, capacity, capability,
skill, and other characteristics. This makes the resource-ordering and dispatch process
within and across jurisdictions, and among all levels of governments, NGOs, and the private
sector, more efficient and ensures that needed resources are received.
d. Resource Identification and Ordering
The resource management process uses standardized methods to identify, order, mobilize,
and track the resources required to support incident management activities. Those with
resource management responsibilities perform these tasks either at the request of the
Incident Commander (IC) or in accordance with planning requirements. Identification and
ordering of resources are intertwined. In some cases, the identification and ordering
process is compressed, where an IC has determined the resources necessary for the task
and specifies a resource order directly. However, in larger, more complex incidents, the IC
may not be fully aware of resources available. At this point, the IC may identify needs
based on incident objectives and use the resource management process to fill these needs.
e. Effective Management of Resources
Resource management involves acquisition procedures, management information, and
redundant systems and protocols for ordering, mobilizing, dispatching, and demobilizing
resources.
(1) Acquisition Procedures
Acquisition procedures are used to obtain resources
to support operational requirements. Examples
include mission tasking, contracting, drawing from
existing stocks, and making small purchases. A key
aspect of the inventorying process is determining
whether an organization needs to warehouse specific
items prior to an incident. Material resources may be
acquired in advance and stockpiled or obtained “just
in time” through appropriate preincident contracts.
Those with resource management responsibilities
make this decision by considering the urgency of the
need, whether sufficient quantities of required items
are on hand, and whether the required items can be
produced quickly enough to meet demand.
Stockpiling vs. Just in Time
Resources may be acquired in advance
and stored in a warehouse (i.e.,
stockpiled) or supplied “just in time,”
typically using a preincident contract.
Planning and resource accounting
procedures should accommodate both
types of resource supply.
Another important part of the process is managing inventories with shelf-life or special
maintenance considerations. Strict reliance on stockpiling raises issues concerning shelf life
National Incident Management System 33 December 2008
COMPONENT III: RESOURCE MANAGEMENT
and durability; however, strict reliance on “just in time” resources raises its own concerns
related to timely delivery. Assets that are counted on for “just in time” need to be
accurately accounted for to ensure that multiple jurisdictions or private-sector organizations
are not relying solely on the same response asset, which can lead to shortages during a
response. Those with resource management responsibilities should build sufficient funding
into their budgets for periodic replenishments, preventive maintenance, and capital
improvements. An integral part of acquisition procedures is developing methods and
protocols for the handling and distribution of donated resources.
(2) Management Information Systems
These systems are used to provide decision support information to managers by collecting,
updating, and processing data, and tracking resources. They enhance resource status
information flow and provide real-time data in a fast-paced environment where different
jurisdictions, emergency management/response personnel, and their affiliated organizations
are managing different aspects of the incident and should coordinate their efforts.
Examples of management information systems include resource tracking, transportation
tracking, inventory management, reporting, and geographical information systems. The
selection and use of systems for resource management should be based on the identification
of the information needs within a jurisdiction.
(3) Redundant Information Systems
Those with resource management responsibilities should be able to identify and activate
backup systems to manage resources in the event that the primary resource management
information system is disrupted or unavailable. Management information systems should
also have sufficiently redundant and diverse power supplies and communication capabilities.
If possible, the backup storage should not be co-located, and the information should be
backed up at least every 24 hours during the incident.
(4) Ordering, Mobilization, and Demobilization Protocols
Protocols are followed when requesting resources, prioritizing requests, activating and
mobilizing resources to incidents, and returning resources to normal status. Preparedness
organizations develop standard protocols for use within their jurisdictions. Examples include
tracking systems that identify the location and status of mobilized or dispatched resources,
and procedures to demobilize resources and return them to their original locations and
status.
B. MANAGING RESOURCES
To implement these concepts and principles in the primary tasks of resource management,
NIMS includes standardized procedures, methodologies, and functions in its seven-step
resource management process. This process reflects functional considerations, geographic
factors, and validated practices within and across disciplines and is continually adjusted as
new lessons are learned.
Resource maintenance is important throughout all aspects of resource management.
Maintenance prior to resource deployment ensures availability and capability. Maintenance
during the deployment phase ensures continued capabilities, such as adequate fuel supplies
during use. Postoperational inspection and maintenance ensures future availability.
34 National Incident Management System December 2008
COMPONENT III: RESOURCE MANAGEMENT
The foundation for resource management provided in this component will be expanded and
refined over time in a collaborative cross-jurisdictional, cross-disciplinary effort led by the
National Integration Center (NIC).
The resource management process can be separated into two parts: resource management
as an element of preparedness and resource management during an incident. The
preparedness activities (resource typing, credentialing, and inventorying) are conducted on
a continual basis to help ensure that resources are ready to be mobilized when called to an
incident. Resource management during an incident is a finite process, as shown in Figure 1,
with a distinct beginning and ending specific to the needs of the particular incident.
Figure 1. Resource Management During an Incident
1. IDENTIFY REQUIREMENTS
When an incident occurs, those with resource management responsibilities should
continually identify, refine, and validate resource requirements. This process involves
accurately identifying what and how much is needed, where and when it is needed, and who
will be receiving or using it. Resources to be identified in this way include equipment,
supplies, facilities, and personnel or emergency response teams. If a requestor is unable to
describe an item by resource type or classification, those with resource management
responsibilities should provide technical advice to enable the requirements to be defined and
National Incident Management System 35 December 2008
COMPONENT III: RESOURCE MANAGEMENT
translated into a specification. Specific resources for critical infrastructure and key
resources may need to be identified and coordinated through mutual aid agreements or
assistance agreements unique to those sectors, and should be accessible through
preparedness organizations and/or MACS.
Resource availability and requirements will constantly change as the incident evolves.
Consequently, all emergency management/response personnel and their affiliated
organizations participating in an operation should coordinate closely throughout this
process. Coordination should begin as early as possible, preferably prior to the need for
incident response activities.
In instances when an incident is projected to have catastrophic implications (e.g., a major
hurricane or flooding), States and/or the Federal Government may position resources in the
anticipated incident area. In cases where there is time to assess the requirements and plan
for a catastrophic incident, the Federal response will be coordinated with State, tribal, and
local jurisdictions, and the positioning of Federal resources will be tailored to address the
specific situation. The flow of requests and assistance is shown in Figure 2.
Figure 2. Flow of Requests and Assistance During Large-Scale Incidents
36 National Incident Management System December 2008
COMPONENT III: RESOURCE MANAGEMENT
2. ORDER AND ACQUIRE
Requests for resources that cannot be obtained locally are submitted using standardized
resource-ordering procedures. These requests are generally forwarded first to an adjacent
locality or substate region and then to the State.
The decision cycles for placing and filling
resource orders are different for field/incident
personnel with resource management
responsibilities and resource coordination
processes such as MACS. The IC will develop
resource requests based on priorities that
consider current and successive operational
periods. Decisions about resource allocation are
based on organization or agency protocol and
possibly the resource demands of other
incidents. Requested resources will be
mobilized only with the consent of the
jurisdiction that is being asked to provide the
resources. Discrepancies between requested
resources and those available for delivery must
be communicated to the requestor.
Avoid Bypassing Systems
All of those with responsibilities for
managing resources, including public
officials, should recognize the limitations
inherent in requesting resources by
circumventing the official resource
coordination process within the multiagency
coordination system supporting the
incident(s). These requests do not proceed
within the context of orderly resource
management systems, and typically lead to
inefficient use and/or lack of accounting of
resources.
3. MOBILIZE
Emergency management/response personnel begin mobilizing when notified through
established channels. At the time of notification, they are given the date, time, and place of
departure; mode of transportation to the incident; estimated date and time of arrival;
reporting location (address, contact name, and phone number); anticipated incident
assignment; anticipated duration of deployment; resource order number; incident number;
and applicable cost and funding codes. The resource-tracking and mobilization processes
are directly linked. When resources arrive on scene, they must be formally checked in.
This starts the on-scene check-in process and validates the order requirements. Notification
that the resources have arrived is made through the appropriate channels.
The mobilization process may include deployment planning based on existing interagency
mobilization guidelines; equipping; training; designating assembly points that have facilities
suitable for logistical support; and obtaining transportation to deliver resources to the
incident most quickly, in line with priorities and budgets. Mobilization plans should also
recognize that some resources are fixed facilities, such as laboratories, hospitals, EOCs,
shelters, and waste management systems. These facilities assist operations without moving
into the incident area in the way that other resources are mobilized. Plans and systems to
monitor resource mobilization status should be flexible enough to adapt to both types of
mobilization.
Managers should plan and prepare for the demobilization process at the same time that
they begin the resource mobilization process. Early planning for demobilization facilitates
accountability and makes the transportation of resources as efficient as possible—in terms
of both costs and time of delivery.
National Incident Management System 37 December 2008
COMPONENT III: RESOURCE MANAGEMENT
4. TRACK AND REPORT
Resource tracking is a standardized, integrated process conducted prior to, during, and after
an incident by all emergency management/response personnel and their affiliated
organizations, as appropriate. This process provides a clear picture of where resources are
located; helps staff prepare to receive resources; protects the safety and security of
equipment, supplies, and personnel; and enables their coordination and movement. Those
with resource management responsibilities use established procedures to track resources
continuously from mobilization through demobilization. Managers should follow all
procedures for acquiring and managing resources, including reconciliation, accounting,
auditing, and inventorying.
5. RECOVER AND DEMOBILIZE
Recovery involves the final disposition of all resources, including those located at the
incident site and at fixed facilities. During this process, resources are rehabilitated,
replenished, disposed of, and/or retrograded.
Demobilization is the orderly, safe, and efficient return of an incident resource to its original
location and status. It can begin at any point of an incident, but should begin as soon as
possible to facilitate accountability. The demobilization process should coordinate between
incident(s) and MACS to reassign resources, if necessary, and to prioritize critical resource
needs during demobilization.
The Demobilization Unit in the Planning Section develops an Incident Demobilization Plan,
containing specific demobilization instructions, as part of the Incident Action Plan.
Demobilization planning and processes should include provisions addressing the safe return
of resources to their original location and status, and notification of return. Demobilization
should also include processes for tracking resources and for addressing applicable
reimbursement. Furthermore, documentation regarding the transportation of resources
should be collected and maintained for reimbursement, if applicable. Demobilization
provisions may need to meet specific organizational requirements.
a. Nonexpendable Resources
Nonexpendable resources (such as personnel, fire engines, and durable equipment) are fully
accounted for both during the incident and when they are returned to the providing
organization. The organization then restores the resources to fully functional capability and
readies them for the next mobilization. Broken or lost items should be replaced through the
appropriate resupply process by the organization with invoicing responsibility for the
incident, or as defined in existing agreements. It is critical that fixed-facility resources also
be restored to their full functional capability in order to ensure readiness for the next
mobilization. In the case of human resources, such as Incident Management Teams,
adequate rest and recuperation time and facilities should be provided. Important
occupational health and mental health issues should also be addressed, including monitoring
the immediate and long-term effects of the incident (chronic and acute) on emergency
management/response personnel.
38 National Incident Management System December 2008
COMPONENT III: RESOURCE MANAGEMENT
b. Expendable Resources
Expendable resources, such as water, food, fuel, and other one-time-use supplies, must be
fully accounted for. The incident management organization bears the costs of expendable
resources, as authorized in financial agreements executed by preparedness organizations.
Restocking occurs at the point from which a resource was issued. Returned resources that
are not in restorable condition, whether expendable or nonexpendable, must be declared as
excess according to established regulations and policies of the controlling jurisdiction,
agency, or organization. Waste management is of special note in the process of recovering
resources, as resources that require special handling and disposition (e.g., biological waste
and contaminated supplies, debris, and equipment) are handled according to established
regulations and policies.
6. REIMBURSE
Reimbursement provides a mechanism to recoup funds expended for incident-specific
activities. Processes for reimbursement play an important role in establishing and
maintaining the readiness of resources and should be in place to ensure that resource
providers are reimbursed in a timely manner. They should include mechanisms for
collecting bills, validating costs against the scope of the work, ensuring that proper
authorities are involved, and accessing reimbursement programs. Reimbursement
mechanisms should be included in preparedness plans, mutual aid agreements, and
assistance agreements. Some resources rendered may or may not be reimbursed, based
on agreements established before the incident.
7. INVENTORY
Resource management uses various resource inventory systems to assess the availability of
assets provided by jurisdictions. Preparedness organizations should inventory and maintain
current data on their available resources. The data are then made available to
communications/dispatch centers and EOCs and organizations within MACS. Resources
identified within an inventory system are not an indication of automatic availability. The
jurisdiction and/or owner of the resources has the final determination on availability.
Inventory systems for resource management should be adaptable and scalable and should
account for the potential of double-counting personnel and/or equipment. In particular,
resource summaries should clearly reflect any overlap of personnel across different resource
pools. Personnel inventories should reflect single resources with multiple skills, taking care
not to overstate the total resources. For example, many firefighters also have credentials
as emergency medical technicians (EMTs). A resource summary, then, could count a
firefighter as a firefighter or as an EMT, but not as both. The total should reflect the
number of available personnel, not simply the sum of the firefighter and EMT counts.
Deployable resources have different inventory, ordering, and response profiles depending on
their primary use during the response or recovery phases of an incident. Planning for
resource use, inventory, and tracking should recognize the fundamental difference in
resource deployment in the response and recovery phases. The response phase relies
heavily on mutual aid agreements and assistance agreements, while recovery resources are
typically acquired through contracts with NGOs and/or the private sector.
National Incident Management System 39 December 2008
COMPONENT III: RESOURCE MANAGEMENT
a. Credentialing
The credentialing process entails the objective evaluation and documentation of an
individual’s current certification, license, or degree; training and experience; and
competence or proficiency to meet nationally accepted standards, provide particular
services and/or functions, or perform specific tasks under specific conditions during an
incident.
For the purpose of NIMS, credentialing is the administrative process for validating personnel
qualifications and providing authorization to perform specific functions and to have specific
access to an incident involving mutual aid.
Figure 3 illustrates the following NIC-recommended process for credentialing under NIMS:
When a request for mutual aid is received, the potential supporting department or
agency evaluates its capacity to accommodate the anticipated loss of the resources that
would be deployed without compromising mission performance (e.g., can a fire
department allow 20 percent of its equipment and personnel to be deployed to another
jurisdiction for 30 days and still meet its own community’s needs?).
If the potential supporting department or agency determines that it can accommodate
the requested deployment of resources, it must next identify specific personnel who will
be deployed. The department or agency then submits applications for each member
selected for deployment to an authorized accrediting agency identified by the
credentialing authority of the State to which the mutual aid will be provided.
The accrediting agency evaluates each application and determines whether the applicant
meets the established criteria for the positions required by the mission. Applications
that the authorized accrediting agency determines fail to meet established criteria are
returned to the submitting department or agency, and may be resubmitted with
additional documentation or when the applicant’s qualifications change. For applications
that are approved by the authorized accrediting agency, the following steps are taken:
• The applicant’s department or agency is notified.
• A record is created on the individual in the official credentialing database.
• An identification card or other credential is issued to the individual. (The
identification card or credential should include an expiration date and be reissued
as appropriate.)
• Information on the applicant is uploaded to the incident management
infrastructure.
While credentialing includes the issuing of identification cards or credentials, it is separate
and distinct from the incident badging process. When access to a site is controlled through
special badging, the badging process must be based on verification of identity,
qualifications, and deployment authorization.
Organizations utilizing volunteers, especially spontaneous volunteers, are responsible for
ensuring each volunteer’s eligibility to participate in a response. These organizations—
governmental agencies responsible for coordinating emergency responses, volunteer
management agencies (e.g., Red Cross, Emergency System for Advance Registration of
Volunteer Health Professionals, Medical Reserve Corps, etc.), and other potential users of
volunteers (e.g., hospitals, fire and police departments, etc.)—must develop protocols
governing the activation and use of volunteers. Careful coordination is required to ensure
40 National Incident Management System December 2008
http://www.hhs.gov/aspr
http://www.hhs.gov/aspr
COMPONENT III: RESOURCE MANAGEMENT
the provision of services is not hindered by unaddressed safety and security considerations
or legal or regulatory issues.
Figure 3. Recommended NIMS Personnel Credentialing Process
b. Identifying and Typing Resources
Resource typing is categorizing, by capability, the resources requested, deployed, and used
in incidents.17 Measurable standards identifying resource capabilities and performance
levels serve as the basis for categories. Resource users at all levels use these standards to
identify and inventory resources. Resource kinds may be divided into subcategories to
define more precisely the capabilities needed to meet specific requirements. Resource
typing is a continuous process designed to be as simple as possible; it facilitates frequent
use and accuracy in obtaining needed resources. To allow resources to be deployed and
used on a national basis, the NIC (with input from Federal, State, tribal, local, private-
17 See pages 83–87, Appendix A, for more information on resource typing.
National Incident Management System 41 December 2008
COMPONENT III: RESOURCE MANAGEMENT
sector, nongovernmental, and national professional organizations) is responsible for
facilitating the development and issuance of national standards for resource typing and
ensuring that these typed resources reflect operational capabilities.18
(1) Category
This is the function for which a resource would be most useful. Table 2 lists examples of
categories used in a national resource-typing protocol.
Table 2. Example Categories for National Resource Typing
• Transportation
• Communications
• Public works and
engineering
• Firefighting
• Information and planning
• Law enforcement and
security
• Mass care
• Resource management
• Health and medical
• Search and rescue
• Hazardous materials
response
• Food and water
• Energy
• Public information
• Animals and agricultural
issues
• Volunteers and donations
(2) Kind
Kind refers to broad classes that characterize like resources, such as teams, personnel,
equipment, supplies, vehicles, and aircraft.
(a) Components
Components are the elements that make up a resource. For example, an engine company
may be listed as having the eight components shown in Table 3.
Table 3. Example of a Resource With Multiple Components
(Firefighting Engine Company)
(1) Pump (5) Water tank
(2) Hose 2½” (6) Ladder
(3) Hose 1¾” (7) Master stream
(4) Hand tools (8) Personnel
18 Proposals for additions to the NIMS Typed Resources Definitions may be submitted to the NIC, Incident
Management Systems Division, for consideration.
42 National Incident Management System December 2008
COMPONENT III: RESOURCE MANAGEMENT
National Incident Management System 43
As another example, urban search and rescue teams consist of two 31-person teams, four
canines, and a comprehensive equipment cache. The cache is divided into five separate
color-coded elements and is stored in containers that meet specific requirements.
(b) Measures
Measures are standards that identify capability and/or capacity. The specific measures used
will depend on the kind of resource being typed and the mission envisioned. Measures must
be useful in describing a resource’s capability to support the mission. As an example, one
measure for a disaster medical assistance team is the number of patients it can care for per
day. An appropriate measure for a hose might be the number of gallons of water per hour
that can flow through it.
(3) Type
Type refers to the level of resource capability. Assigning the Type 1 label to a resource
implies that it has a greater level of capability than a Type 2 of the same resource (for
example, due to its power, size, or capacity), and so on to Type 4. Typing provides
managers with additional information to aid in the selection and best use of resources. In
some cases, a resource may have fewer than or more than four types; in such cases, either
additional types will be identified, or the type will be described as “not applicable.” The type
assigned to a resource or a component is based on a minimum level of capability described
by the identified measure(s) for that resource. For example, the U.S. Coast Guard has
typed oil skimmers based on barrels per day, as outlined in Table 4.
Table 4. Example of a Resource With Multiple Types
(Coast Guard Oil Skimmer)
Type 1 9,600 bbls/day Type 3 480 bbls/day
Type 2 2,880 bbls/day Type 4 N/A
(4) Additional Information
The national resource-typing protocol will also provide the capability to use additional
information that is pertinent to resource decisionmaking. For example, if a particular set of
resources can be released to support an incident only under particular authorities or laws,
the protocol should alert responsible parties to such limitations.
December 2008
This page intentionally left blank.
44 National Incident Management System December 2008
COMPONENT IV:
COMMAND AND MANAGEMENT
The NIMS components discussed previously—Preparedness, Communications and
Information Management, and Resource Management—provide a framework to facilitate
clear response authority, resource acquisition, and effective management during incident
response. The Incident Command System (ICS), Multiagency Coordination System (MACS),
and Public Information are the fundamental elements of incident management. These
elements provide standardization through consistent terminology and established
organizational structures. Emergency management and incident response refer to the
broad spectrum of activities and organizations providing effective and efficient operations,
coordination, and support. Incident management, by distinction, includes directing specific
incident operations; acquiring, coordinating, and delivering resources to incident sites; and
sharing information about the incident with the public. Taken together, these elements of
Command and Management are the most visible aspects of incident management, typically
executed with a sense of urgency. This component describes the systems used to facilitate
incident Command and Management operations.
A. INCIDENT COMMAND SYSTEM
Most incidents are managed locally and are typically handled by local communications/
dispatch centers and emergency management/response personnel19 within a single
jurisdiction. The majority of responses need go no further. In other instances, incidents
that begin with a single response within a single jurisdiction rapidly expand to
multidisciplinary, multijurisdictional levels requiring significant additional resources and
operational support. ICS provides a flexible core mechanism for coordinated and
collaborative incident management, whether for incidents where additional resources are
required or are provided from different organizations within a single jurisdiction or outside
the jurisdiction, or for complex incidents with national implications (such as an emerging
infectious disease or a bioterrorism attack). When a single incident covers a large
geographical area, multiple local emergency management and incident response agencies
may be required. The responding “agencies” are defined as the governmental agencies,
though in certain circumstances nongovernmental organizations (NGOs) and private-sector
organizations may be included. Effective cross-jurisdictional coordination using processes
and systems is absolutely critical in this situation.
ICS is a widely applicable management system designed to enable effective, efficient
incident management by integrating a combination of facilities, equipment, personnel,
procedures, and communications operating within a common organizational structure. ICS
is a fundamental form of management established in a standard format, with the purpose of
enabling incident managers to identify the key concerns associated with the incident—often
under urgent conditions—without sacrificing attention to any component of the command
system.
19 Emergency management/response personnel include Federal, State, territorial, tribal, substate regional, and
local governments, nongovernmental organizations, private-sector organizations, critical infrastructure owners and
operators, and all other organizations and individuals who assume an emergency management role.
National Incident Management System 45 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
ICS is used to organize on-scene operations for a broad spectrum of emergencies from
small to complex incidents, both natural and manmade. The field response level is where
emergency management/response personnel, under the command of an appropriate
authority, carry out tactical decisions and activities in direct response to an incident or
threat. Resources from the Federal, State, tribal, or local levels, when appropriately
deployed, become part of the field ICS as prescribed by the local authority.
As a system, ICS is extremely useful; not only does it provide an organizational structure
for incident management, but it also guides the process for planning, building, and adapting
that structure. Using ICS for every incident or planned event helps hone and maintain skills
needed for the large-scale incidents.
ICS is used by all levels of government—Federal, State, tribal, and local—as well as by
many NGOs and the private sector. ICS is also applicable across disciplines. It is normally
structured to facilitate activities in five major functional areas: Command, Operations,
Planning, Logistics, and Finance/Administration. Intelligence/Investigations is an optional
sixth functional area that is activated on a case-by-case basis.
Acts of biological, chemical, radiological, and nuclear terrorism may present unique
challenges for the traditional ICS structure. Incidents that are not site specific, are
geographically dispersed, or evolve over longer periods of time will require extraordinary
coordination among all participants, including Federal, State, tribal, and local governments,
as well as NGOs and the private sector.
1. MANAGEMENT CHARACTERISTICS
ICS is based on 14 proven management characteristics, each of which contributes to the
strength and efficiency of the overall system.
a. Common Terminology
ICS establishes common terminology that allows diverse incident management and support
organizations to work together across a wide variety of incident management functions and
hazard scenarios. This common terminology covers the following:
(1) Organizational Functions
Major functions and functional units with incident management responsibilities are named
and defined. Terminology for the organizational elements is standard and consistent.
(2) Resource Descriptions
Major resources—including personnel, facilities, and major equipment and supply items—
that support incident management activities are given common names and are “typed” with
respect to their capabilities, to help avoid confusion and to enhance interoperability.20
(3) Incident Facilities
Common terminology is used to designate the facilities in the vicinity of the incident area
that will be used during the course of the incident.
20 See page 41, Component III, Resource Management, Identifying and Typing Resources.
46 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
b. Modular Organization
The ICS organizational structure develops in a modular fashion based on the size and
complexity of the incident, as well as the specifics of the hazard environment created by the
incident. When needed, separate functional elements can be established, each of which
may be further subdivided to enhance internal organizational management and external
coordination. Responsibility for the establishment and expansion of the ICS modular
organization ultimately rests with Incident Command, which bases the ICS organization on
the requirements of the situation. As incident complexity increases, the organization
expands from the top down as functional responsibilities are delegated. Concurrently with
structural expansion, the number of management and supervisory positions expands to
address the requirements of the incident adequately.
c. Management by Objectives
Management by objectives is communicated throughout the entire ICS organization and
includes:
• Establishing incident objectives.
• Developing strategies based on incident objectives.
• Developing and issuing assignments, plans, procedures, and protocols.
• Establishing specific, measurable tactics or tasks for various incident management
functional activities, and directing efforts to accomplish them, in support of defined
strategies.
• Documenting results to measure performance and facilitate corrective actions.
d. Incident Action Planning
Centralized, coordinated incident action planning should guide all response activities. An
Incident Action Plan (IAP) provides a concise, coherent means of capturing and
communicating the overall incident priorities, objectives, strategies, and tactics in the
context of both operational and support activities.
Every incident must have an action plan. However, not all incidents require written plans.
The need for written plans and attachments is based on the requirements of the incident
and the decision of the Incident Commander (IC) or Unified Command (UC). Most initial
response operations are not captured with a formal IAP. However, if an incident is likely to
extend beyond one operational period, become more complex, or involve multiple
jurisdictions and/or agencies, preparing a written IAP will become increasingly important to
maintain effective, efficient, and safe operations.
e. Manageable Span of Control
Span of control is key to effective and efficient
incident management. Supervisors must be able to
adequately supervise and control their subordinates,
as well as communicate with and manage all
resources under their supervision. The type of
incident, nature of the task, hazards and safety
factors, and distances between personnel and
resources all influence span-of-control
considerations.
Examples of Manageable
Span of Control
In ICS, the span of control of any individual
with incident management supervisory
responsibility should range from 3 to 7
subordinates, with 5 being optimal. During a
large-scale law enforcement operation, 8 to
10 subordinates may be optimal.
National Incident Management System 47 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
f. Incident Facilities and Locations
Various types of operational support facilities are established in the vicinity of an incident,
depending on its size and complexity, to accomplish a variety of purposes. The IC will direct
the identification and location of facilities based on the requirements of the situation.
Typically designated facilities include Incident Command Posts, Bases, Camps, Staging
Areas, mass casualty triage areas, point-of-distribution sites, and others as required.
g. Comprehensive Resource Management
Maintaining an accurate and up-to-date picture of resource utilization is a critical component
of incident management and emergency response. Resources to be identified in this way
include personnel, teams, equipment, supplies, and facilities available or potentially
available for assignment or allocation. Resource management is described in detail in
Component III.
h. Integrated Communications
Incident communications are facilitated through the development and use of a common
communications plan and interoperable communications processes and architectures. The
ICS 205 form is available to assist in developing a common communications plan. This
integrated approach links the operational and support units of the various agencies involved
and is necessary to maintain communications connectivity and discipline and to enable
common situational awareness and interaction. Preparedness planning should address the
equipment, systems, and protocols necessary to achieve integrated voice and data
communications.
i. Establishment and Transfer of Command
The command function must be clearly established from the beginning of incident
operations. The agency with primary jurisdictional authority over the incident designates
the individual at the scene responsible for establishing command. When command is
transferred, the process must include a briefing that captures all essential information for
continuing safe and effective operations.
j. Chain of Command and Unity of Command
Chain of command refers to the orderly line of authority within the ranks of the incident
management organization. Unity of command means that all individuals have a designated
supervisor to whom they report at the scene of the incident. These principles clarify
reporting relationships and eliminate the confusion caused by multiple, conflicting directives.
Incident managers at all levels must be able to direct the actions of all personnel under their
supervision.21
21 Concepts of “command” and “unity of command” have distinct legal meanings for military forces and operations.
For military forces, command runs from the President to the Secretary of Defense to the Commander of the
combatant command to the commander of the forces. The “Unified Command” concept utilized by civil authorities
is distinct from the military chain of command.
48 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
k. Unified Command
In incidents involving multiple jurisdictions, a single jurisdiction with multiagency
involvement, or multiple jurisdictions with multiagency involvement, 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.
l. Accountability
Effective accountability of resources at all jurisdictional levels and within individual
functional areas during incident operations is essential. To that end, Check-In/Check-Out,
Incident Action Planning, Unity of Command, Personal Responsibility, Span of Control, and
Resource Tracking are the principles of accountability, which must be adhered to.22
m. Dispatch/Deployment
Resources should respond only when requested or when dispatched by an appropriate
authority through established resource management systems. Resources not requested
must refrain from spontaneous deployment to avoid overburdening the recipient and
compounding accountability challenges.
n. Information and Intelligence Management
The incident management organization must establish a process for gathering, analyzing,
assessing, sharing, and managing incident-related information and intelligence.
2. INCIDENT COMMAND AND COMMAND STAFF
Incident Command is responsible for overall management of the incident. Overall
management includes Command Staff assignments required to support the command
function. The Command and General Staffs are typically located at the Incident Command
Post (ICP).
a. Incident Command
The command function may be conducted in one of two general ways:
(1) Single Incident Commander
When an incident occurs within a single jurisdiction and there is no jurisdictional or
functional agency overlap, a single IC should be designated with overall incident
management responsibility by the appropriate jurisdictional authority. (In some cases
where incident management crosses jurisdictional and/or functional agency boundaries, a
single IC may be designated if agreed upon.) Jurisdictions should consider designating ICs
for established Incident Management Teams (IMTs).
22 The principles of accountability are individually defined in the glossary.
National Incident Management System 49 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
The designated IC will develop the incident objectives on which subsequent incident action
planning will be based. The IC will approve the IAP and all requests pertaining to ordering
and releasing incident resources.
(2) Unified Command
UC is an important element in multijurisdictional
or multiagency incident management. It provides
guidelines to enable agencies with different legal,
geographic, and functional responsibilities to
coordinate, plan, and interact effectively. As a
team effort, UC allows all agencies with
jurisdictional authority or functional responsibility
for the incident to jointly provide management
direction through a common set of incident
objectives and strategies and a single IAP. Each
participating agency maintains its authority,
responsibility, and accountability.
Advantages of Using
Unified Command
• A single set of objectives is developed
for the entire incident.
• A collective approach is used to
develop strategies to achieve incident
objectives.
• Information flow and coordination are
improved between all jurisdictions and
agencies involved in the incident.
• All agencies with responsibility for the
incident have an understanding of
joint priorities and restrictions.
• No agency’s legal authorities will be
compromised or neglected.
• The combined efforts of all agencies
are optimized as they perform their
respective assignments under a single
IAP.
UC functions as a single integrated management
organization, which involves:
• Co-located command at the ICP.
• One Operations Section Chief to direct
tactical efforts.
• A coordinated process for resource
ordering.
• Shared planning, logistical, and
finance/administration functions, wherever
possible.
• Coordinated approval of information releases.
All agencies in the UC structure contribute to the process of:
• Selecting objectives.
• Determining overall incident strategies.
• Ensuring that joint planning for tactical activities is accomplished in accordance with
approved incident objectives.
• Ensuring the integration of tactical operations.
• Approving, committing, and making optimum use of all assigned resources.
The exact composition of the UC structure will depend on the location(s) of the incident
(i.e., which geographical jurisdictions or organizations are involved) and the type of incident
(i.e., which functional agencies of the involved jurisdiction(s) or organization(s) are
required). The designation of a single IC for some multijurisdictional incidents, if planned
for in advance, may be considered in order to promote greater unity of effort and efficiency.
50 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
The designated agency officials participating in the
UC represent different legal authorities and
functional areas of responsibility and use a
collaborative process to establish, identify, and rank
incident priorities and to determine appropriate
objectives consistent with the priorities. Agencies
that are involved in the incident but lack
jurisdictional responsibility or authorities are
defined as supporting and/or assisting agencies.
They are represented in the command structure and
effect coordination on behalf of their parent agency
through the Liaison Officer. Jurisdictional
responsibilities of multiple incident management
officials are consolidated into a single planning
process that includes:
Comparison of Single
IC and UC
Single Incident Commander:
The IC is solely responsible (within the
confines of his or her authority) for
establishing incident objectives and
strategies. The IC is directly responsible for
ensuring that all functional area activities
are directed toward accomplishment of the
strategy.
Unified Command:
The individuals designated by their
jurisdictional or organizational authorities (or
by departments within a single jurisdiction)
must jointly determine objectives, strategies,
plans, resource allocations, and priorities
and work together to execute integrated
incident operations and maximize the use of
assigned resources.
• Responsibilities for incident management.
• Incident objectives.
• Resource availability and capabilities.
• Limitations.
• Areas of agreement and disagreement
between agency officials.
Incidents are managed under a single collaborative
approach that includes:
• Common organizational structure.
• Single Incident Command Post.
• Unified planning process.
• Unified resource management.
Under UC, the IAP is assembled by the Planning Section and is approved by the UC. A
single individual, the Operations Section Chief, directs the tactical implementation of the
IAP. The Operations Section Chief will usually come from the organization with the greatest
jurisdictional involvement. UC participants will agree on the designation of the Operations
Section Chief.
UC works best when the participating members of the UC co-locate at the ICP and observe
the following practices:
• Select an Operations Section Chief for each operational period.
• Keep each other informed of specific requirements.
• Establish consolidated incident objectives, priorities, and strategies.
• Establish a single system for ordering resources.
• Develop a consolidated written or oral IAP to be evaluated and updated at regular
intervals.
• Establish procedures for joint decisionmaking and documentation.
b. Command Staff
In an incident command organization, the Command Staff typically includes a Public
Information Officer, a Safety Officer, and a Liaison Officer, who report directly to the IC/UC
and may have assistants as necessary (see Figure 4). Additional positions may be required,
National Incident Management System 51 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
depending on the nature, scope, complexity, and location(s) of the incident(s), or according
to specific requirements established by the IC/UC.
(1) Public Information Officer
The Public Information Officer is responsible for interfacing with the public and media and/or
with other agencies with incident-related information requirements. The Public Information
Officer gathers, verifies, coordinates, and disseminates accurate, accessible, and timely
information on the incident’s cause, size, and current situation; 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. 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 agencies,
departments, or organizations. The IC/UC must approve the release of all incident-related
information. In large-scale incidents or where multiple command posts are established, the
Public Information Officer should participate in or lead the Joint Information Center (JIC) in
order to ensure consistency in the provision of information to the public.
(2) Safety Officer
The Safety Officer monitors incident operations and advises the IC/UC 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/UC and supervisors at all levels of incident management. The
Safety Officer is, in turn, responsible to the IC/UC for the systems and procedures
necessary to ensure ongoing assessment of hazardous environments, including the incident
Safety Plan, coordination of multiagency safety efforts, and implementation of measures to
promote emergency responder safety as well as the general safety of incident operations.
The Safety Officer has immediate authority to stop and/or prevent unsafe acts during
incident operations. 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.
(3) Liaison Officer
The Liaison Officer is Incident Command’s point of contact for representatives of other
governmental agencies, NGOs, and the private sector (with no jurisdiction or legal
authority) to provide input on their agency’s policies, resource availability, and other
incident-related matters. Under either a single-IC or a UC structure, representatives from
assisting or cooperating agencies and organizations coordinate through the Liaison Officer.
Agency and organizational representatives assigned to an incident must have the authority
to speak for their parent agencies or organizations on all matters, following appropriate
consultations with their agency leadership. Assistants and personnel from other agencies or
organizations, public or private, involved in incident management activities may be assigned
to the Liaison Officer to facilitate coordination.
(4) 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 might 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
52 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
emergency proclamations, the legality of evacuation and quarantine orders, and legal rights
and restrictions pertaining to media access. Similarly, a medical advisor might be
designated to provide advice and recommendations to Incident Command about medical
and mental health services, mass casualty, acute care, vector control, epidemiology, or
mass prophylaxis considerations, particularly in response to a bioterrorism incident. In
addition, a special needs advisor might be designated to provide expertise regarding
communication, transportation, supervision, and essential services for diverse populations in
the affected area.23
Figure 4. Incident Command System: Command Staff and General Staff
c. Incident Command Organization
The incident Command and Management organization is located at the ICP. Incident
Command directs operations from the ICP, which is generally located at or in the immediate
vicinity of the incident site. Typically, one ICP is established for each incident. As
emergency management/response personnel deploy, they must, regardless of agency
affiliation, report to and check in at the designated Staging Area, Base, Camp, or location
and notify the IC/UC to receive an assignment in accordance with the procedures
established by the IC/UC.
23 See Tab 3, Section F, for more information on technical specialists.
National Incident Management System 53 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
3. GENERAL STAFF
The General Staff is responsible for the functional aspects of the incident command
structure. The General Staff typically consists of the Operations, Planning, Logistics, and
Finance/Administration Section Chiefs. The Section Chiefs may have one or more deputies
assigned, with the assignment of deputies from other agencies encouraged in the case of
multijurisdictional incidents. The functional Sections are discussed more fully below.
a. Operations Section
This Section is responsible for all tactical activities focused on reducing the immediate
hazard, saving lives and property, establishing situational control, and restoring normal
operations. Lifesaving and responder safety will always be the highest priorities and the
first objectives in the IAP.
Figure 5 depicts the organizational template for an Operations Section. Expansions of this
basic structure may vary according to numerous considerations and operational factors. In
some cases, a strictly functional approach may be used. In other cases, the organizational
structure will be determined by geographical/jurisdictional boundaries. In still others, a mix
of functional and geographical considerations may be appropriate. ICS offers flexibility in
determining the right structural approach for the specific circumstances of the incident at
hand.
Figure 5. Major Organizational Elements of Operations Section
(1) Operations Section Chief
The Operations Section Chief is responsible to Incident Command for the direct
management of all incident-related tactical activities. The Operations Section Chief will
establish tactics for the assigned operational period. An Operations Section Chief should be
54 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
designated for each operational period, and responsibilities include direct involvement in
development of the IAP.
(2) Branches
Branches may be functional, geographic, or both, depending on the circumstances of the
incident. In general, Branches are established when the number of Divisions or Groups
exceeds the recommended span of control. Branches are identified by the use of Roman
numerals or by functional area.
(3) Divisions and Groups
Divisions and/or Groups are established when the number of resources exceeds the
manageable span of control of Incident Command and the Operations Section Chief.
Divisions are established to divide an incident into physical or geographical areas of
operation. Groups are established to divide the incident into functional areas of operation.
For certain types of incidents, for example, Incident Command may assign evacuation or
mass-care responsibilities to a functional Group in the Operations Section. Additional levels
of supervision may also exist below the Division or Group level.
(4) Resources
Resources may be organized and managed in three different ways, depending on the
requirements of the incident.
• Single Resources: Individual personnel or equipment and any associated
operators.
• Task Forces: Any combination of resources assembled in support of a specific
mission or operational need. All resource elements within a Task Force must have
common communications and a designated leader.
• Strike Teams: A set number of resources of the same kind and type that have an
established minimum number of personnel. All resource elements within a Strike
Team must have common communications and a designated leader.
The use of Task Forces and Strike Teams is encouraged, when appropriate, to optimize the
use of resources, reduce the span of control over a large number of single resources, and
reduce the complexity of incident management coordination and communications.
b. Planning Section
The Planning Section collects, evaluates, and disseminates incident situation information
and intelligence to the IC/UC and incident management personnel. This Section then
prepares status reports, displays situation information, maintains the status of resources
assigned to the incident, and prepares and documents the IAP, based on Operations Section
input and guidance from the IC/UC.
As shown in Figure 6, the Planning Section is comprised of four primary Units, as well as a
number of technical specialists to assist in evaluating the situation, developing planning
options, and forecasting requirements for additional resources. Within the Planning Section,
the following primary Units fulfill functional requirements:
National Incident Management System 55 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
• Resources Unit: Responsible for recording the status of resources committed to
the incident. This Unit also evaluates resources committed currently to the incident,
the effects additional responding resources will have on the incident, and anticipated
resource needs.
• Situation Unit: Responsible for the collection, organization, and analysis of incident
status information, and for analysis of the situation as it progresses.
• Demobilization Unit: Responsible for ensuring orderly, safe, and efficient
demobilization of incident resources.
• Documentation Unit: Responsible for collecting, recording, and safeguarding all
documents relevant to the incident.
• Technical Specialist(s): Personnel with special skills that can be used anywhere
within the ICS organization.
Figure 6. Planning Section Organization
The Planning Section is normally responsible for gathering and disseminating information
and intelligence critical to the incident, unless the IC/UC places this function elsewhere. The
Planning Section is also responsible for assembling the IAP. The IAP includes the overall
incident objectives and strategies established by Incident Command. In the case of a UC,
the IAP must adequately address the mission and policy needs of each jurisdictional agency,
as well as interaction between jurisdictions, functional agencies, and private organizations.
The IAP also addresses tactics and support activities required for the planned operational
period, generally 12 to 24 hours.
56 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
The IAP should incorporate changes in strategies and tactics based on lessons learned
during earlier operational periods. A written IAP is especially important when:
• Resources from multiple agencies and/or jurisdictions are involved;
• The incident will span several operational periods;
• Changes in shifts of personnel and/or equipment are required; or
• There is a need to document actions and decisions.
The IAP will typically contain a number of components, as shown in Table 5.
Table 5. Sample IAP Outline
Component Normally Prepared By
Incident Objectives (Form: ICS 202) Incident Commander
Organization Assignment List or Chart
(Form: ICS 203)
Resources Unit
Assignment List (Form: ICS 204) Resources Unit
Incident Radio Communications Plan
(Form: ICS 205)
Communications Unit
Medical Plan (Form: ICS 206) Medical Unit
Incident Maps Situation Unit
General Safety Message/Site Safety Plan Safety Officer
Other Potential Components (incident dependent)
Air Operations Summary Air Operations
Traffic Plan Ground Support Unit
Decontamination Plan Technical Specialist
Waste Management or Disposal Plan Technical Specialist
Demobilization Plan Demobilization Unit
Site Security Plan Law Enforcement, Technical
Specialist, or Security Manager
Investigative Plan Law Enforcement
Evidence Recovery Plan Law Enforcement
Evacuation Plan As required
Sheltering/Mass Care Plan As required
Other (as required) As required
c. Logistics Section
The Logistics Section (see Figure 7) is responsible for all service support requirements
needed to facilitate effective and efficient incident management, including ordering
National Incident Management System 57 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
resources from off-incident locations. This Section also provides facilities, security (of the
incident command facilities and personnel), transportation, supplies, equipment
maintenance and fuel, food services, communications and information technology support,
and emergency responder medical services, including inoculations, as required. Within the
Logistics Section, six primary Units fulfill functional requirements:
• Supply Unit: Orders, receives, stores, and processes all incident-related resources,
personnel, and supplies.
• Ground Support Unit: Provides all ground transportation during an incident. In
conjunction with providing transportation, the Unit is also responsible for maintaining
and supplying vehicles, keeping usage records, and developing incident Traffic Plans.
• Facilities Unit: Sets up, maintains, and demobilizes all facilities used in support of
incident operations. The Unit also provides facility maintenance and security
services required to support incident operations.
• Food Unit: Determines food and water requirements, plans menus, orders food,
provides cooking facilities, cooks, serves, maintains food service areas, and manages
food security and safety concerns.
• Communications Unit: Major responsibilities include effective communications
planning as well as acquiring, setting up, maintaining, and accounting for
communications equipment.
• Medical Unit: Responsible for the effective and efficient provision of medical
services to incident personnel.
Figure 7. Logistics Section Organization
d. Finance/Administration Section
A Finance/Administration Section is established when the incident management activities
require on-scene or incident-specific finance and other administrative support services.
Some of the functions that fall within the scope of this Section are recording personnel time,
maintaining vendor contracts, administering compensation and claims, and conducting an
overall cost analysis for the incident. If a separate Section is established, close coordination
58 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
with the Planning Section and Logistics Section is also essential so that operational records
can be reconciled with financial documents.
The Finance/Administration Section is a critical part of ICS in large, complex incidents
involving significant funding originating from multiple sources. In addition to monitoring
multiple sources of funds, the Section Chief must track and report to Incident Command the
accrued cost as the incident progresses. This allows the IC/UC to forecast the need for
additional funds before operations are negatively affected. Figure 8 illustrates the basic
organizational structure for a Finance/Administration Section. When such a Section is
established, the depicted Units may be staffed as required. Within the
Finance/Administration Section, four primary Units fulfill functional requirements:
• Compensation/Claims Unit: Responsible for financial concerns resulting from
property damage, injuries, or fatalities at the incident.
• Cost Unit: Responsible for tracking costs, analyzing cost data, making estimates,
and recommending cost savings measures.
• Procurement Unit: Responsible for financial matters concerning vendor contracts.
• Time Unit: Responsible for recording time for incident personnel and hired
equipment.
Figure 8. Finance/Administration Section Organization
e. Intelligence/Investigations Function
The collection, analysis, and sharing of incident-related intelligence are important elements
of ICS. Normally, operational information and situational intelligence are management
functions located in the Planning Section, with a focus on three incident intelligence areas:
situation status, resource status, and anticipated incident status or escalation (e.g., weather
forecasts and location of supplies). This information and intelligence is utilized for incident
management decisionmaking. In addition, technical specialists in the Planning Section may
be utilized to provide specific information that supports tactical decisions.
Incident management organizations must also establish a system for the collection,
analysis, and sharing of information developed during intelligence/investigation efforts.
Some incidents require intelligence and investigative information, which is defined in either
of two ways. First, it is defined as information that leads to the detection, prevention,
apprehension, and prosecution of criminal activities or the individuals involved, including
National Incident Management System 59 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
terrorist incidents. Second, it is defined as information that leads to determination of the
cause, projection of spread, assessment of impact, or selection of countermeasures for a
given incident (regardless of the source) such as public health events, disease outbreaks, or
fires with unknown origins.
ICS allows for organizational flexibility, so the Intelligence/Investigations Function can be
embedded in several different places within the organizational structure.
• Within the Planning Section: This is the traditional placement for this function
and is appropriate for incidents with little or no investigative information
requirements nor a significant amount of specialized information.
• As a Separate General Staff Section: This option may be appropriate when a
there is a significant intelligence/investigations component to the incident for
criminal or epidemiological purposes or when multiple investigative agencies are
involved. A separate Intelligence/Investigations Section may be needed when highly
specialized information requiring technical analysis is both critical and time sensitive
to lifesaving operations (e.g., chemical, biological, radiological, or nuclear incidents)
or when there is a need for classified intelligence.
• Within the Operations Section: This option may be appropriate for incidents that
require a high degree of linkage and coordination between the investigative
information and the operational tactics that are being employed.
• Within the Command Staff: This option may be appropriate for incidents with
little need for tactical information or classified intelligence and where supporting
Agency Representatives are providing real-time information to the IC/UC.
The mission of the Intelligence/Investigations Function is to ensure that all investigative and
intelligence operations, functions, and activities within the incident response are properly
managed, coordinated, and directed in order to:
• Prevent/deter additional activity, incidents, or attacks.
• Collect, process, analyze, and appropriately disseminate intelligence information.
• Conduct a thorough and comprehensive investigation.
• Identify, process, collect, create a chain of custody for, safeguard, examine/analyze,
and store all probative evidence.
• Determine source or cause and control spread and impact, in the investigation of
emerging incidents (fire, disease outbreak, etc.).
The Intelligence/Investigations Function has responsibilities that cross all interests of
departments involved during an incident; however, certain functions remain specific to law
enforcement response and mission areas. Two examples of these are to expeditiously
identify and apprehend all perpetrators, and to successfully prosecute all defendants.
Regardless of how the Intelligence/Investigations Function is organized, a close liaison will
be maintained, and information will be transmitted to Incident Command, the Operations
Section, and the Planning Section. However, classified information requiring a security
clearance, sensitive information, or specific investigative tactics that would compromise the
investigation will be shared only with those who have the appropriate security clearance or
a need to know.
60 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
The Intelligence/Investigations Function can be organized in a variety of ways. The
following are examples of Groups that may be activated if needed:
• Investigative Operations Group: Responsible for overall investigative effort.
• Intelligence Group: Responsible for obtaining unclassified, classified, and open
source intelligence.
• Forensic Group: Responsible for collection and integrity of forensic evidence, and
in incidents of a criminal nature, the integrity of the crime scene.
• Investigative Support Group: Responsible for ensuring that required investigative
personnel are made available expeditiously and that the necessary resources are
properly distributed, maintained, safeguarded, stored, and returned, when
appropriate.
Other Groups may be created to handle the following responsibilities: ensuring that missing
or unidentified persons and human remains are investigated and identified expeditiously and
that required notifications are made in a timely manner. These responsibilities include the
collection of ante mortem information and exemplars in a family assistance center.
4. INCIDENT MANAGEMENT TEAMS
An IMT is an incident command organization made up of the Command and General Staff
members and other appropriate personnel in an ICS organization and can be deployed or
activated, as needed. National, State, and some local IMTs have formal certification and
qualification, notification, deployment, and operational procedures in place. In other cases,
IMTs are formed at an incident or for specific events. The level of training and experience
of the IMT members, coupled with the IMT’s identified formal response requirements and
responsibilities, are factors in determining an IMT’s type, or level.
5. INCIDENT COMPLEX: MULTIPLE INCIDENT MANAGEMENT
WITHIN A SINGLE ICS ORGANIZATION
a. Description
An Incident Complex refers to two or more individual incidents located in the same general
area that are assigned to a single IC or a UC. When an Incident Complex is established
over several individual incidents, the general guideline is that the previously identified
incidents become Branches within the Operations Section of the IMT. This provides greater
potential for future expansion if required. Each Branch thus has the increased flexibility to
establish Divisions or Groups. Additionally, because Divisions and Groups may already have
been established at each of the incidents, the same basic structure can be propagated. If
any of the incidents within a complex has the potential to become a large-scale incident, it
is best to establish it as a separate incident with its own ICS organization.
The following are examples where a complex may be appropriate:
• An earthquake, tornado, flood, or other situation where many separate incidents are
occurring in close proximity.
• Several similar incidents are occurring in close proximity to one another.
• One incident underway with an IMT assigned, with other smaller incidents occurring
in the same area.
National Incident Management System 61 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
A complex may be managed under a single IC or a UC. The following are additional
considerations for the use of a complex:
• The incidents are close enough to be managed by the same IMT.
• A combined management approach could achieve some staff or logistical support
economies.
• The number of overall incidents within the jurisdiction requires consolidations
wherever possible to conserve staff and reduce costs.
• A single Incident Command can adequately provide Planning, Logistics, and
Finance/Administration activities to the complex.
6. AREA COMMAND
a. Description
Area Command is an organization to oversee the management of multiple incidents handled
individually by separate ICS organizations or to oversee the management of a very large or
evolving incident engaging multiple IMTs. An Agency Administrator/Executive or other
public official with jurisdictional responsibility for the incident usually makes the decision to
establish an Area Command. An Area Command is activated only if necessary, depending
on the complexity of the incident and incident management span-of-control considerations.
Area Commands are particularly relevant to incidents that are typically not site specific, are
not immediately identifiable, are geographically dispersed, and evolve over longer periods of
time (e.g., public health emergencies, earthquakes, tornadoes, civil disturbances, and any
geographic area where several IMTs are being used and these incidents are all requesting
similar resources). Incidents such as these, as well as acts of biological, chemical,
radiological, and nuclear terrorism, require a coordinated intergovernmental, NGO, and
private-sector response, with large-scale coordination typically conducted at a higher
jurisdictional level. Area Command is also used when a number of incidents of the same
type in the same area are competing for the same resources, such as multiple hazardous
material incidents, spills, or fires.
When incidents are of different types and/or do not have similar resource demands, they
are usually handled as separate incidents or are coordinated through an Emergency
Operations Center (EOC) or Multiagency Coordination Group (MAC Group). If the incidents
under the authority of the Area Command span multiple jurisdictions, a Unified Area
Command should be established (see Figure 9). This allows each jurisdiction to have
appropriate representation in the Area Command.
Area Command should not be confused with the functions performed by MACS: Area
Command oversees management coordination of the incident(s), while a MACS element,
such as a communications/dispatch center, EOC, or MAC Group, coordinates support.
62 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
Figure 9. Chain of Command and Reporting Relationships
b. Responsibilities
For incidents under its authority, an Area Command has the following responsibilities:
• Develop broad objectives for the impacted area(s).
• Coordinate the development of individual incident objectives and strategies.
• (Re)allocate resources as the established priorities change.
• Ensure that incidents are properly managed.
• Ensure effective communications.
• Ensure that incident management objectives are met and do not conflict with each
other or with agency policies.
• Identify critical resource needs and report them to the established EOC/MAC Groups.
• Ensure that short-term “emergency” recovery is coordinated to assist in the
transition to full recovery operations.
National Incident Management System 63 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
B. MULTIAGENCY COORDINATION SYSTEMS
Multiagency coordination is a process that allows all levels of
government and all disciplines to work together more efficiently
and effectively. Multiagency coordination occurs across the
different disciplines involved in incident management, across
jurisdictional lines, or across levels of government.
MACS is a system . . .
not simply a facility.
Multiagency coordination can and does occur on a regular basis whenever personnel from
different agencies interact in such activities as preparedness, prevention, response,
recovery, and mitigation. Often, cooperating agencies develop a MACS to better define how
they will work together and to work together more efficiently; however, multiagency
coordination can take place without established protocols. MACS may be put in motion
regardless of the location, personnel titles, or organizational structure. MACS includes
planning and coordinating resources and other support for planned, notice, or no-notice events.
MACS defines business practices, standard operating procedures, processes, and protocols by
which participating agencies will coordinate their interactions. Integral elements of MACS are
dispatch procedures and protocols, the incident command structure, and the coordination and
support activities taking place within an activated EOC. Fundamentally, MACS provide support,
coordination, and assistance with policy-level decisions to the ICS structure managing an
incident.
Written agreements allow agencies within the system to conduct activities using established
rules and are often self-defined by the participating organizations. A fully implemented
MACS is critical for seamless multiagency coordination activities and essential to the success
and safety of the response whenever more than one jurisdictional agency responds.
Moreover, the use of MACS is one of the fundamental components of Command and
Management within NIMS, as it promotes scalability and flexibility necessary for a
coordinated response.
1. DEFINITION
The primary function of MACS is to coordinate activities above the field level and to
prioritize the incident demands for critical or competing resources, thereby assisting the
coordination of the operations in the field. MACS consists of a combination of elements:
personnel, procedures, protocols, business practices, and communications integrated into a
common system. For the purpose of coordinating resources and support between multiple
jurisdictions, MACS can be implemented from a fixed facility or by other arrangements
outlined within the system.
In some instances, MACS is informal and based on oral agreements between jurisdictions,
but usually it is more formalized and supported by written agreements, operational
procedures, and protocols. The formal process, where issues are addressed before an
incident occurs, is the preferred and recommended approach, as it streamlines the
coordination function. While ad hoc arrangements between jurisdictions may result in
effective multiagency coordination on relatively minor incidents, coordination on larger,
more complex incidents is most successful when it takes place within a planned and well-
established system.
Figure 10 illustrates an overview of MACS as it transitions over the course of an incident.
The graphic shows how an incident begins, with the on-scene single command; as it grows
64 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
in size and complexity, potentially developing into a Unified Command, the incident may
require off-scene coordination and support.
2. SYSTEM ELEMENTS
MACS includes a combination of facilities, equipment, personnel, and procedures integrated
into a common system with responsibility for coordination of resources and support to
emergency operations.
Figure 10. Multiagency Coordination System (MACS)
a. Facilities
The need for location(s)—such as a communications/dispatch center, EOC, city hall, virtual
location—to house system activities will depend on the anticipated functions of the system.
b. Equipment
To accomplish system activities, equipment (such as computers and phones) must be
identified and procured.
December 2008 National Incident Management System 65
COMPONENT IV: COMMAND AND MANAGEMENT
c. Personnel
Typical personnel include Agency Administrators/Executives, or their appointed
representatives, who are authorized to commit agency resources and funds in a coordinated
response effort. Personnel can also be authorized representatives from supporting
agencies, NGOs, and the private sector who assist in coordinating activities above the field
level.
d. Procedures
Procedures include processes, protocols, agreements, and business practices that prescribe
the activities, relationships, and functionality of the MACS. Identifying the interactive
communications activities and associated implementation plans are critical components of
the system.
3. EXAMPLES OF SYSTEM ELEMENTS
The two most commonly used elements of
the Multiagency Coordination System are
EOCs and MAC Groups.
An EOC is activated:
• To support the on-scene response during an
escalating incident by relieving the burden of
external coordination and securing additional
resources.
An EOC is:
• A physical location.
• Staffed with personnel trained for and authorized
to represent their agency/discipline.
• Equipped with mechanisms for communicating
with the incident site and obtaining resources and
potential resources.
• Managed through protocols.
• Applicable at different levels of government.
An EOC consists of:
• Personnel and equipment appropriate to the level
of incident.
An EOC is used:
• In varying ways within all levels of government
and the private sector.
• To provide coordination, direction, and support
during emergencies.
An EOC may:
• Facilitate MACS functions and may be needed to
support Area Command, IC, or UC when resource
needs exceed local capabilities.
An EOC does not:
• Command the on-scene level of the incident.
a. Emergency Operations Center
EOCs may be organized by major discipline
(e.g., fire, law enforcement, or emergency
medical services); by emergency support
function (e.g., transportation,
communications, public works and
engineering, or resource support); by
jurisdiction (e.g., city, county, or region);
or, more likely, by some combination
thereof. ICPs need good communication
links to EOCs to ensure effective and
efficient incident management.
Often, agencies within a political jurisdiction
will establish coordination, communications,
control, logistics, etc., at the department
level for conducting overall management of
their assigned resources. Governmental
departments (or agencies, bureaus, etc.) or
private organizations may also have
operations centers (referred to here as
Department Operations Centers, or DOCs)
that serve as the interface between the
ongoing operations of that organization and
the emergency operations it is supporting.
The DOC may directly support the incident
and receive information relative to its
operations. In most cases, DOCs are
66 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
physically represented in a combined agency EOC by authorized agent(s) for the
department or agency.
EOCs may be staffed by personnel representing multiple jurisdictions and functional
disciplines and a wide variety of resources. For example, a local EOC established in
response to a bioterrorism incident would likely include a mix of law enforcement,
emergency management, public health, and medical personnel (local, State, or Federal
public health officials and possibly representatives of health care facilities, emergency
medical services, etc.).
The physical size, staffing, and equipping of an EOC will depend on the size of the
jurisdiction, resources available, and anticipated incident management workload. EOCs may
be organized and staffed in a variety of ways. Regardless of its specific organizational
structure, an EOC should include the following core functions: coordination;
communications; resource allocation and tracking; and information collection, analysis, and
dissemination.
Upon activation of a local EOC, communications and coordination must be established
between Incident Command and the EOC. ICS field organizations must also establish
communications with the activated local EOC, either directly or through their parent
organizations. Additionally, EOCs at all levels of government and across functional agencies
must be capable of communicating appropriately with other EOCs, including those
maintained by private organizations. Communications between EOCs must be reliable and
contain built-in redundancies. The efficient functioning of EOCs most frequently depends on
the existence of mutual aid agreements and joint communications protocols among
participating agencies.
b. MAC Group
Typically, Agency Administrators/Executives, or their designees, who are authorized to
represent or commit agency resources and funds are brought together to form MAC Groups.
MAC Groups may also be known as multiagency committees, emergency management
committees, or as otherwise defined by the system. Personnel assigned to the EOC who
meet the criteria for participation in a MAC Group may be asked to fulfill that role.
A MAC Group does not have any direct incident involvement and will often be located some
distance from the incident site(s). In many cases a MAC Group can function virtually to
accomplish its assigned tasks.
A MAC Group may require a support organization for its own logistics and documentation
needs; to manage incident-related decision support information such as tracking critical
resources, situation status, and intelligence or investigative information; and to provide
public information to the news media and public. The number and skills of its personnel will
vary by incident complexity, activity levels, needs of the MAC Group, and other factors
identified through agreements or by preparedness organizations. A MAC Group may be
established at any level (e.g., national, State, or local) or within any discipline (e.g.,
emergency management, public health, critical infrastructure, or private sector).
4. PRIMARY FUNCTIONS OF MACS
The Multiagency Coordination System should be both flexible and scalable to be efficient
and effective. MACS will generally perform common functions during an incident; however,
National Incident Management System 67 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
not all of the system’s functions will be performed during every incident, and functions may
not occur in any particular order.
a. Situation Assessment
This assessment includes the collection, processing, and display of all information needed.
This may take the form of consolidating situation reports, obtaining supplemental
information, and preparing maps and status boards.
b. Incident Priority Determination
Establishing the priorities among ongoing incidents within the defined area of responsibility
is another component of MACS. Typically, a process or procedure is established to
coordinate with Area or Incident Commands to prioritize the incident demands for critical
resources. Additional considerations for determining priorities include the following:
• Life-threatening situations.
• Threat to property.
• High damage potential.
• Incident complexity.
• Environmental impact.
• Economic impact.
• Other criteria established by the Multiagency Coordination System.
c. Critical Resource Acquisition and Allocation
Designated critical resources will be acquired, if possible, from the involved agencies or
jurisdictions. These agencies or jurisdictions may shift resources internally to match the
incident needs as a result of incident priority decisions. Resources available from incidents
in the process of demobilization may be shifted, for example, to higher priority incidents.
Resources may also be acquired from outside the affected area. Procedures for acquiring
outside resources will vary, depending on such things as the agencies involved and written
agreements.
d. Support for Relevant Incident Management Policies and
Interagency Activities
A primary function of MACS is to coordinate, support, and assist with policy-level decisions
and interagency activities relevant to incident management activities, policies, priorities,
and strategies.
e. Coordination With Other MACS Elements
A critical part of MACS is outlining how each system element will communicate and
coordinate with other system elements at the same level, the level above, and the level
below. Those involved in multiagency coordination functions following an incident may be
responsible for incorporating lessons learned into their procedures, protocols, business
practices, and communications strategies. These improvements may need to be
coordinated with other appropriate preparedness organizations.
68 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
f. Coordination With Elected and Appointed Officials
Another primary function outlined in MACS is a process or procedure to keep elected and
appointed officials at all levels of government informed. Maintaining the awareness and
support of these officials, particularly those from jurisdictions within the affected area, is
extremely important, as scarce resources may need to move to an agency or jurisdiction
with higher priorities.
g. Coordination of Summary Information
By virtue of the situation assessment function, personnel implementing the multiagency
coordination procedures may provide summary information on incidents within their area of
responsibility as well as provide agency/jurisdictional contacts for media and other
interested agencies.
5. DIFFERENCES BETWEEN A MAC GROUP AND AREA
COMMAND
MAC Groups are often confused with Area Command (as defined earlier in Component IV).
Table 6 highlights some of the primary differences between the two.
Table 6. Differences Between a MAC Group and Area Command
MAC Group Area Command
Off-scene coordination and support
organization with no direct incident authority or
responsibility.
Management function of ICS with oversight
responsibility and authority of IMTs assigned at
multiple incidents. Area Command may be
established as Unified Area Command.
Members are Agency Administrators/
Executives or designees from the agencies
involved or heavily committed to the incident.
Members are the most highly skilled incident
management personnel.
Organization generally consists of multiagency
coordination personnel (including Agency
Administrators/Executives), MAC Group
coordinator, and an intelligence and information
support staff.
Organization generally consists of an
Area Commander, Assistant Area
Commander—Planning, and Assistant Area
Commander—Logistics.
Members are Agency Administrators/
Executives or designees.
Authority for specific incident(s) is delegated
from the Agency Administrator/Executive.
Allocates and reallocates critical resources
through the communications/dispatch system
by setting incident priorities.
Assigns and reassigns critical resources
allocated to it by MACS or the normal
communications/dispatch system organization.
Makes coordinated decisions at the Agency
Administrator/Executive level on issues that
affect multiple agencies.
Ensures that incident objectives and strategies
are complementary between IMTs.
National Incident Management System 69 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
C. PUBLIC INFORMATION
1. INTRODUCTION
Public Information consists of the processes, procedures, and systems to communicate
timely, accurate, and accessible information on the incident’s cause, size, and current
situation to the public, responders, and additional stakeholders (both directly affected and
indirectly affected). Public information must be coordinated and integrated across
jurisdictions, agencies, and organizations; among Federal, State, tribal, and local
governments; and with NGOs and the private sector. Well-developed public information,
education strategies, and communications plans help to ensure that lifesaving measures,
evacuation routes, threat and alert systems, and other public safety information are
coordinated and communicated to numerous audiences in a timely, consistent manner.
2. SYSTEM DESCRIPTION AND COMPONENTS
a. Public Information Officer
The Public Information Officer supports the incident
command structure as a member of the Command staff.
The Public Information Officer advises the IC/UC on all
public information matters relating to the management of
the incident. The Public Information Officer also handles
inquiries from the media, the public, and elected officials;
emergency public information and warnings; rumor
monitoring and response; media relations; and other
functions required to gather, verify, coordinate, and
disseminate accurate, accessible, and timely information
related to the incident. Information on public health,
safety, and protection is of particular importance.
Roles of Public
Information Officer
The Public Information Officer
gathers, verifies, coordinates, and
disseminates accurate, accessible,
and timely information on the
incident’s cause, size, and current
situation; resources committed;
and other matters of general
interest for both internal and
external use. Public Information Officers are able to create coordinated
and consistent messages by collaborating to:
• Identify key information that needs to be
communicated to the public.
• Craft messages conveying key information that are clear and easily understood by
all, including those with special needs.
• Prioritize messages to ensure timely delivery of information without overwhelming
the audience.
• Verify accuracy of information through appropriate channels.
• Disseminate messages using the most effective means available.
b. Joint Information System
The Joint Information System (JIS) provides the mechanism to organize, integrate, and
coordinate information to ensure timely, accurate, accessible, and consistent messaging
across multiple jurisdictions and/or disciplines with NGOs and the private sector. The JIS
includes the plans, protocols, procedures, and structures used to provide public information.
Federal, State, tribal, territorial, regional, or local Public Information Officers and
70 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
established JICs are critical supporting elements of the JIS. Key elements include the
following:
established JICs are critical supporting elements of the JIS. Key elements include the
following:
• Interagency coordination and integration. • Interagency coordination and integration.
• Gathering, verifying, coordinating, and disseminating consistent messages. • Gathering, verifying, coordinating, and disseminating consistent messages.
• Support for decisionmakers. • Support for decisionmakers.
• Flexibility, modularity, and adaptability. • Flexibility, modularity, and adaptability.
c. Joint Information Center
c. Joint Information Center
The JIC is a central location that facilitates
operation of the JIS, where personnel with public
information responsibilities perform critical
emergency information functions, crisis
communications, and public affairs functions. JICs
may be established at various levels of government
or at incident sites, or can be components of
Federal, State, tribal, territorial, regional, or local
MACS (e.g., MAC Groups or EOCs). Depending on
the requirements of the incident, an incident-
specific JIC is typically established at a single, on-
scene location in coordination with Federal, State,
and local agencies, or at the national level if the
situation warrants. Releases are cleared through
the IC/UC, EOC/MAC Group, and/or Federal officials
in the case of federally coordinated incidents to
ensure consistent messages, avoid release of conflicting information, and prevent negative
impact on operations. This formal process for releasing information ensures the protection
of incident-sensitive information. Agencies may issue their own releases related to their
policies, procedures, programs, and capabilities; however, these should be coordinated with
the incident-specific JIC(s).
The JIC is a central location that facilitates
operation of the JIS, where personnel with public
information responsibilities perform critical
emergency information functions, crisis
communications, and public affairs functions. JICs
may be established at various levels of government
or at incident sites, or can be components of
Federal, State, tribal, territorial, regional, or local
MACS (e.g., MAC Groups or EOCs). Depending on
the requirements of the incident, an incident-
specific JIC is typically established at a single, on-
scene location in coordination with Federal, State,
and local agencies, or at the national level if the
situation warrants. Releases are cleared through
the IC/UC, EOC/MAC Group, and/or Federal officials
in the case of federally coordinated incidents to
ensure consistent messages, avoid release of conflicting information, and prevent negative
impact on operations. This formal process for releasing information ensures the protection
of incident-sensitive information. Agencies may issue their own releases related to their
policies, procedures, programs, and capabilities; however, these should be coordinated with
the incident-specific JIC(s).
Possibility of a Virtual JIC
A JIC may involve real-time, constant
links to other sites, thus creating a virtual
JIC. All participants should be fully
integrated and linked into the JIC so that
it functions as a single-site operation.
Advantages include:
• Rapid establishment of the JIC
functions.
• Access to expanded resources.
• Relationship building.
A single JIC location is preferable, but the system is flexible and adaptable enough to
accommodate multiple physical or virtual JIC locations. For example, multiple JICs may be
needed for a complex incident spanning a wide geographic area or multiple jurisdictions. In
instances when multiple JICs are activated, information must be coordinated among all
appropriate JICs; each JIC must have procedures and protocols to communicate and
coordinate effectively with one another. Whenever there are multiple JICs, the final release
authority must be the senior command, whether using Unified or Area Command structures.
A national JIC may be used when an incident requires Federal coordination and is expected
to be of long duration (e.g., weeks or months) or when the incident affects a large area of
the country.
A single JIC location is preferable, but the system is flexible and adaptable enough to
accommodate multiple physical or virtual JIC locations. For example, multiple JICs may be
needed for a complex incident spanning a wide geographic area or multiple jurisdictions. In
instances when multiple JICs are activated, information must be coordinated among all
appropriate JICs; each JIC must have procedures and protocols to communicate and
coordinate effectively with one another. Whenever there are multiple JICs, the final release
authority must be the senior command, whether using Unified or Area Command structures.
A national JIC may be used when an incident requires Federal coordination and is expected
to be of long duration (e.g., weeks or months) or when the incident affects a large area of
the country.
In light of the need for real-time communications, JICs can be organized in many ways,
depending on the nature of the incident.
Table 7 identifies several types of JICs.
In light of the need for real-time communications, JICs can be organized in many ways,
depending on the nature of the incident.
Table 7 identifies several types of JICs.
National Incident Management System 71 71 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
Table 7. Types of Joint Information Centers
Incident • Optimal physical location for local and IC-assigned Public Information
Officers to co-locate
• Easy media access is paramount to success
Virtual • Established when physical co-location is not feasible
• Incorporates technology and communication protocols
Satellite • Smaller in scale than other JICs
• Established primarily to support the incident JIC
• Operates under the control of the primary JIC for that incident
• Is not independent of that direction
Area • Supports wide-area multiple-incident ICS structures
• Could be established on a local or statewide basis
• Media access is paramount
Support • Established to support several incident JICs in multiple States
• Offers supplemental staff and resources outside of the disaster area
National • Established for long-duration incidents
• Established to support Federal response activities
• Staffed by numerous Federal departments and/or agencies
• Media access is paramount
d. Organizational Independence
Organizations participating in incident management retain their independence. Incident
Command and MACS are responsible for establishing and overseeing JICs, including
processes for coordinating and clearing public communications. In the case of Unified
Command, the departments, agencies, organizations, or jurisdictions that contribute to joint
public information management do not lose their individual identities or responsibility for
their own programs or policies. Rather, each agency/organization contributes to the overall
unified message.
e. Getting Information to the Public and Additional Stakeholders
The process of getting information to the public and additional stakeholders during an
incident is an ongoing cycle that involves four steps.
(1) Gathering Information
Gathering information is the first step in the process of getting information to the public and
additional stakeholders. Information is collected from:
• On-Scene Command: A source of ongoing, official information on the response
effort.
• On-Scene Public Information Officers: Report to the JIC what they are
observing and hearing at the incident from the news media, elected officials and
their staff, and the public.
72 National Incident Management System December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
• Media Monitoring: Used to assess the accuracy and content of news media
reports. It also helps to identify trends and breaking issues.
• News Media: A valuable source of developing information and current issues.
• Public and Elected/Appointed Officials: Inquiries from elected/appointed
officials, community leaders, and the general public point to the specific concerns of
those in the affected areas.
(2) Verifying Information
The next step in the process is to verify the accuracy of the information that has been
collected, by consulting the following sources:
• Other Public Information Officers in the JIC: Comparing notes—especially with
the lead Public Information Officer and Public Information Officers who are liaisons to
the various assistance programs or response/recovery partners—is one way to verify
information accuracy.
• EOC Sources: Including program leads, who should be asked to confirm
information.
• On-Scene Public Information Officers: A valuable source for checking the
accuracy of information reported to the EOC with reports from the news media, the
offices of elected officials, and people on the scene.
(3) Coordinating Information
The next step in the process is to coordinate with other Public Information Officers who are
part of the JIS. These Public Information Officers include both those represented in the JIC
and those working from another location who are part of the JIS. Coordinating information
involves:
• Establishing Key Message(s): After gathering information from all sources,
unified messages are crafted that address all informational needs and are prioritized
according to the overall Federal, State, tribal, and local response/recovery strategy.
The mission includes getting accurate, consistent information to the right people at
the right time so they can make informed decisions.
• Obtaining Approval/Clearance From Those With Authority: Ensuring that the
information is consistent, accurate, and accessible. The approval process should be
streamlined, however, to ensure that the information is released in a timely manner.
(4) Disseminating Information
The next step in the process is to disseminate information to the public and additional
stakeholders. This step involves:
• Using Multiple Methods: In an emergency, there may not be many options.
Phone calls and interviews might be the primary means of getting information to the
news media. Personal visits or town meetings may be the most effective avenue for
the public, elected/appointed officials, or other stakeholders. These outreach efforts
can be supported by providing talking points and fliers to on-scene Public
Information Officers.
• Monitoring the Media: Media monitoring is invaluable for ensuring that the
message is understood by the news media and reported accurately and completely.
Important inaccuracies should be addressed before they are reported incorrectly a
second time.
National Incident Management System 73 December 2008
COMPONENT IV: COMMAND AND MANAGEMENT
74 National Incident Management System
3. PUBLIC INFORMATION COMMUNICATIONS PLANNING
Information communications strategies and planning are essential to all aspects of public
information. Plans should include processes, protocols, and procedures that require the
development of draft news releases; media lists; and contact information for
elected/appointed officials, community leaders, private-sector organizations, and public
service organizations to facilitate the dissemination of accurate, consistent, accessible, and
timely public information. Public information communications should be a critical
component of training and exercises.
D. RELATIONSHIPS AMONG COMMAND AND MANAGEMENT
ELEMENTS
ICS, MACS, and Public Information have been described herein as separate elements of
Command and Management within NIMS. However, NIMS relies on the relationships among
these elements along with the elements themselves.
Some relationships are specifically defined. For example, an Area Command or Incident
Command coordinates with Public Information on incident-specific public information
through an incident Public Information Officer within the JIS. The relationship between Area
Command or Incident Command and MACS is primarily defined by a communications link
between Command and/or field-level personnel with resource management responsibilities
and a particular staff position within multiagency coordination.
These relationships—along with other relationships among Command and Management
elements that are not as clearly defined in advance—must be clearly defined and
documented as each element evolves during an incident.
December 2008
COMPONENT V:
ONGOING MANAGEMENT AND
MAINTENANCE
The Ongoing Management and Maintenance component of NIMS contains two subsections:
the National Integration Center (NIC) and Supporting Technologies. The NIC section of the
document sets forth the responsibilities of the NIC. The Supporting Technologies Section
discusses principles necessary to leverage science and technology to improve capabilities
and lower costs.
A. NATIONAL INTEGRATION CENTER
Homeland Security Presidential Directive 5 required the Secretary of Homeland Security to
establish a mechanism for ensuring the ongoing management and maintenance of NIMS,
including regular consultation with other Federal departments and agencies; State, tribal,
and local stakeholders; nongovernmental organizations (NGOs); and the private sector. To
this end, the Secretary established the NIC to serve as an informational assistance resource
for government agencies at all levels, NGOs, and the private sector that are implementing
NIMS. The NIC provides strategic direction for and oversight of NIMS, supporting routine
maintenance and continuous refinement of the system and its components over the long
term. The NIC solicits participation from Federal departments and agencies; State, tribal,
and local governments; and emergency management/response personnel,24 including those
from NGOs and the private sector. Revisions to NIMS and other issues can be proposed by
all NIMS users (including Federal, State, tribal, substate regional, and local governments, as
well as the private sector, voluntary organizations, academia, nonprofit organizations, and
other NIMS-related professional associations).
Additionally, the NIC administers NIMS compliance requirements, facilitates the
development of guidance standards for typing and credentialing, supports NIMS training and
exercises, and manages the publication of various NIMS-related materials.
1. CONCEPTS AND PRINCIPLES
The process for managing and maintaining NIMS ensures that all users and stakeholders—
including all levels of government, functional disciplines, NGOs, and the private sector—are
given the opportunity to participate in NIC activities. The NIMS management and
maintenance process relies heavily on lessons learned from actual incidents and incident
management training and exercises, as well as recognized best practices across jurisdictions
and functional disciplines.
24 Emergency management/response personnel include Federal, State, territorial, tribal, substate regional, and
local governments, nongovernmental organizations, private-sector organizations, critical infrastructure owners and
operators, and all other organizations and individuals who assume an emergency management role.
National Incident Management System 75 December 2008
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE
2. NIMS REVISION PROCESS
The NIMS document will be reviewed on a 2-year cycle and revised to incorporate new
Presidential directives, legislative changes, and procedural changes based on lessons
learned from exercises, actual incidents, and planned events. Proposed changes to NIMS
will be submitted to the NIC for consideration, approval, and publication.
The Secretary is responsible for publishing revisions and modifications to NIMS-related
documents, including supplementary standards, procedures, and other materials, and will
do so with regular consultation with other Federal departments and agencies and State and
local governments.
3. NIC RESPONSIBILITIES
a. Administration and Compliance
To manage ongoing administration and implementation of NIMS, including specification of
compliance measures, the NIC is responsible for working toward the following:
• Developing and maintaining a national program for NIMS education and awareness,
including specific instruction on the purpose and content of this document and NIMS
in general.
• Promoting compatibility between national-level standards for NIMS and those
developed by other public, private, and professional groups.
• Facilitating the establishment and maintenance of a documentation and database
system related to qualification, certification, and credentialing of emergency
management/response personnel and organizations that includes reviewing and
approving discipline-specific requirements (with input from Federal, State, tribal,
local, private-sector, nongovernmental, and national professional organizations, as
appropriate).
• Developing assessment criteria for the various components of NIMS, as well as
compliance requirements and timelines for Federal, State, tribal, and local
governments regarding NIMS standards and guidelines.
• Integrating into the national research and development (R&D) agenda—in
coordination with the Department of Homeland Security (DHS) Under Secretary for
Science and Technology—the NIMS-related science and technology needs of
departments, agencies, disciplines, NGOs, and the private sector operating within
NIMS.
b. Standards and Credentialing
The NIC will work with appropriate standards development organizations (SDOs) to ensure
the adoption of common national standards and credentialing systems that are compatible
and aligned with the implementation of NIMS. Identification, adoption, and development of
common standards and credentialing programs include the following:
76 National Incident Management System December 2008
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE
• Facilitating the development and publication of national standards, guidelines, and
protocols for the qualification, licensure, and certification of emergency
management/response personnel, as appropriate.
• Facilitating the development and publication of national standards, guidelines, and
protocols for the qualification, licensure, and certification of emergency
management/response personnel, as appropriate.
• Reviewing and approving discipline-
specific qualification and certification
requirements (with input from Federal,
State, tribal, local, nongovernmental,
private-sector, and national professional
organizations, as appropriate).
• Reviewing and approving discipline-
specific qualification and certification
requirements (with input from Federal,
State, tribal, local, nongovernmental,
private-sector, and national professional
organizations, as appropriate).
The NIC recommends that State and local
governments voluntarily adopt the following
National Fire Protection Association (NFPA)
standards: NFPA 1600, “Standard on
Disaster/Emergency Management and
Business Continuity Programs,” and NFPA
1561, “Standard on Emergency Services
Incident Management System.” These
standards, if adopted by the jurisdiction, can
assist in NIMS implementation. For
information regarding the latest NIC-
recommended standards, please visit the
NIMS guidance section of the NIC Web site.
Other standards may be issued periodically
by the NIC and recommended for voluntary
adoption.
• Establishing a data maintenance system
to provide incident managers with the
detailed qualification, experience, and
training information needed to credential
personnel for prescribed national incident
management positions.
• Establishing a data maintenance system
to provide incident managers with the
detailed qualification, experience, and
training information needed to credential
personnel for prescribed national incident
management positions.
• Coordinating minimum professional
certification standards and facilitating the
design and implementation of a
nationwide credentialing system.
• Coordinating minimum professional
certification standards and facilitating the
design and implementation of a
nationwide credentialing system.
• Facilitating—with input from Federal,
State, tribal, local, nongovernmental, private-sector, and national professional
organizations—the establishment of standards for the performance, compatibility,
and interoperability of incident management equipment and communications
systems, including the following:
• Facilitating—with input from Federal,
State, tribal, local, nongovernmental, private-sector, and national professional
organizations—the establishment of standards for the performance, compatibility,
and interoperability of incident management equipment and communications
systems, including the following:
– Facilitating the development and publication of national standards, guidelines,
and protocols for equipment certification, including the incorporation of
existing standards and certification programs used by incident management
and emergency response organizations nationwide.
– Facilitating the development and publication of national standards, guidelines,
and protocols for equipment certification, including the incorporation of
existing standards and certification programs used by incident management
and emergency response organizations nationwide.
– Reviewing and approving lists of equipment that meet these established
equipment certification requirements.
– Reviewing and approving lists of equipment that meet these established
equipment certification requirements.
– Collaborating with organizations responsible for emergency-responder
equipment evaluation and testing.
– Collaborating with organizations responsible for emergency-responder
equipment evaluation and testing.
• Facilitating the development and issuance of national standards for resource typing.
• Facilitating the development and issuance of national standards for resource typing.
• Facilitating the definition and maintenance of the information framework required for
the development of NIMS information systems, including the development of data
standards.
• Facilitating the definition and maintenance of the information framework required for
the development of NIMS information systems, including the development of data
standards.
• Coordinating the establishment of technical and technology standards for NIMS users
in concert with the DHS Under Secretary for Science and Technology and recognized
SDOs.
• Coordinating the establishment of technical and technology standards for NIMS users
in concert with the DHS Under Secretary for Science and Technology and recognized
SDOs.
National Incident Management System 77 77 December 2008
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE
c. Training and Exercise Support
To lead the development of training and exercises that further appropriate agencies’ and
organizations’ knowledge, adoption, and implementation of NIMS, the NIC will coordinate
with them to do the following:
• Facilitate the definition of general training requirements and the development of
national-level training standards and course curricula associated with NIMS, including
the following:
– The use of modeling and simulation capabilities for training and exercise
programs.
– Field-based training, specification of mission-essential tasks, requirements for
specialized instruction and instructor training, and course completion
documentation for all NIMS users.
– The review and recommendation (in coordination with Federal, State, tribal,
local, nongovernmental, private-sector, and national professional
organizations) of discipline-specific NIMS training courses.
• Facilitate the development of national standards, guidelines, and protocols for
incident management training and exercises, including consideration of existing
exercise and training programs at all jurisdictional levels.
• Facilitate the development of training necessary to support the incorporation of NIMS
across all jurisdictional levels.
• Establish and maintain a repository for reports and lessons learned from actual
incidents, training, and exercises, as well as for best practices, model structures, and
processes for NIMS-related functions.
d. Publication Management
Publication management for NIMS includes the development of naming and numbering
conventions, the review and certification of publications, development of methods for
publications control, identification of sources and suppliers for publications and related
services, management of publication distribution, and assurance of product accessibility.25
NIMS publication management includes the following types of products:
• Qualifications information.
• Training course and exercise information.
• Task books.
• Incident Command System training, forms, and templates (and other necessary
forms).
• Job aids and guides.
• Computer programs.
• Audio and video resources.
• Best-practices manuals/models/recommendations.
25 47 U.S.C. § 794, Rehabilitation Act of 1973.
78 National Incident Management System December 2008
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE
To manage NIMS-related publications, the NIC will coordinate with appropriate agencies and
organizations and take the lead on the following:
• Facilitating the establishment and maintenance of a publication management system
for NIMS-related publications and materials, including the development or
coordination of general publications for all NIMS users.
• Issuing documents or information by means of the NIMS publication management
system.
• Facilitating the development and publication of standardized templates and
materials, such as supplementary documentation and desk guides, to support the
implementation and continuous refinement of NIMS.
• Reviewing discipline-specific publication management requirements (with input from
Federal, State, tribal, and local governments, as well as nongovernmental, private-
sector, and national professional organizations).
B. SUPPORTING TECHNOLOGIES
Ongoing development of science and technology is integral to the continual improvement
and refinement of NIMS. Strategic R&D ensures that this development takes place. NIMS
also relies on scientifically based technical standards that support incident management.
Maintaining a focus on appropriate science and technology solutions will necessitate a long-
term collaborative effort among NIMS partners.
To ensure the effective development of incident-management science and technology
solutions, the NIC must work in coordination with the DHS Under Secretary for Science and
Technology to assess the needs of emergency management/response personnel and their
affiliated organizations.
1. CONCEPTS AND PRINCIPLES
NIMS leverages science and technology to improve capabilities and lower costs. It observes
the five key principles defined below.
a. Interoperability and Compatibility
Systems operating in an incident management environment must be able to interact
smoothly across disciplines and jurisdictions. Interoperability and compatibility are
achieved through the use of tools such as common communications and data standards,
digital data formats, equipment standards, and design standards.
b. Technology Support
Technology support is the use and incorporation of new and existing technologies to
improve efficiency and effectiveness in all aspects of incident management. Technology
support permits organizations using NIMS to enhance all aspects of emergency
management and incident response. Technology support facilitates incident operations and
sustains the R&D programs that underpin the long-term investment in the Nation’s future
incident management capabilities.
National Incident Management System 79 December 2008
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE
c. Technology Standards
Supporting systems and technologies are based on requirements developed in collaboration
with Federal, State, tribal, and local governments, as well as NGOs, the private sector, and
national professional organizations. National standards may be required to facilitate the
interoperability and compatibility of key systems across jurisdictions and/or disciplines.
d. Broad-Based Requirements
Needs for new technologies, procedures, protocols, and standards to facilitate incident
management are identified before, during, and after an incident. As these needs could
exceed available resources, NIMS provides a mechanism for aggregating and prioritizing
needs and resources. These needs will be met by coordinating testing and evaluation
activities for basic, applied, developmental, and demonstration-based research.
e. Strategic R&D Planning
Strategic R&D planning identifies future technologies that can improve or lower the cost of
existing incident management capabilities. To ensure effective R&D, the NIC, in
coordination with the DHS Under Secretary for Science and Technology, will integrate into
the national R&D agenda the incident management science and technology needs of all
emergency management/response personnel and their affiliated organizations.
2. SUPPORTING INCIDENT MANAGEMENT WITH SCIENCE AND
TECHNOLOGY
Supporting technologies enhance incident management capabilities or lower costs through
three principal activities, which are more fully defined below.
a. Operational Scientific Support
Operational scientific support identifies and, on request, mobilizes scientific and technical
resources that can be used to support incident management activities. Operational
scientific support draws on the scientific and technological expertise of other agencies and
organizations. Planning for this category of support is done at each level of government
through NIMS preparedness organizations.26 Operational scientific support is requested and
provided through various programs coordinated by DHS and other organizations and
agencies.
b. Technical Standards Support
Technical standards support enables the development and coordination of technology
standards for NIMS to ensure that personnel, organizations, communications and
information systems, and other equipment coordinate and perform consistently, effectively,
and reliably without disrupting one another. In coordination with the DHS Science and
Technology Directorate, the NIC will coordinate the establishment of technical standards for
NIMS users. The following principles will be used in defining these standards:
26 See page 13, Component I: Preparedness, Preparedness Organizations.
80 National Incident Management System December 2008
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE
National Incident Management System 81
(1) Performance Measurement
Performance measurement (the collection of “hard” data) is the most reliable basis for
standards that ensure the safety and mission effectiveness of emergency responders and
incident managers. Within the technology standards process, a performance measurement
infrastructure develops guidelines, performance standards, testing protocols, personnel
certification, reassessment, and training procedures to help incident management
organizations use equipment systems effectively.
(2) Consensus-Based Performance
A consensus-based approach to developing and modifying standards takes advantage of
existing SDOs with longstanding interest and expertise in incident management. These
SDOs include the National Institute of Justice, National Institute for Standards and
Technology, National Institute for Occupational Safety and Health, American National
Standards Institute, ASTM International, and NFPA. NIMS, through the NIC, enables
working relationships among these SDOs and incident management organizations to
develop performance standards for incident management technology.
(3) Testing and Evaluation
NIMS technology criteria will rely on private- and public-sector testing laboratories to
evaluate equipment against NIMS technical standards. These organizations will be selected
in accordance with guidelines that ensure that testing organizations are both technically
proficient and objective (free from conflicting interests) in their testing. The NIC will issue
appropriate guidelines as part of its standards development and facilitation responsibilities.
(4) Technical Guidelines for Training Emergency Responders on Equipment Use
Inputs from vulnerability analysts, equipment developers, users, and standards experts are
employed to develop scientifically based technical guidelines for training emergency
management/response personnel on proper use of equipment. Based on incident
management protocols, instruments, and instrument systems, these training guidelines
reflect threat and vulnerability information, equipment and systems capabilities, and a
range of expected operating conditions. In addition, performance measures and testing
protocols developed from these training guidelines provide a repeatable method of
measuring the effectiveness of equipment and systems.
c. R&D Support
R&D planning will be based on the operational needs of the entire range of NIMS users.
These needs represent key inputs as the Nation formulates its R&D agenda for developing
new and improved incident management capabilities. Since operational needs may exceed
the resources available for research to address them, these needs must be validated,
integrated, and prioritized. DHS is responsible for integrating user needs at all levels into
the national R&D agenda.
December 2008
This page intentionally left blank.
82 National Incident Management System December 2008
APPENDIX A:
EXAMPLES OF RESOURCES FOR
WHICH TYPING HAS BEEN
COMPLETED
As an illustration of how national resource typing is used, Table A-1 shows a single resource
that has been completely typed, a Track Dozer. Table A-2 is an example of a team resource
that has been completely typed, a Swiftwater/Flood and Rescue Team.
Table A-1. Single Resource (Track Dozer) That Has Been Typed
Resource: Track Dozer
Category: Public Works and Engineering (ESF #3) Kind: Equipment
Minimum Capabilities:
Component Measures
Type I Type II Type III Type IV Other
Equipment Example
D10R –
Cat 3412E
Turbo Charged
Diesel
D6N –
Cat 3126B Diesel
D3G –
Cat 3046 Diesel
D10R WHA
(Waste Handling)
– Cat 3412E
Turbo Charged
Diesel
Gross Power RPM 1,900 2,100 2,400 1,900
Gross Power kw/hp 457/613 127/170 57/77 457/613
Operating Weight lbs 144,191 34,209 16,193 144,986
Blade Capacity yd3 24.2 5.6 1.88 63.9
Digging Depth in 26.5 20.5 21.8 26.5
Height ft/in 6′11″ 4′1″ 3′.8″ 10′5″
Ground Clearance ft/in 4′11″ 3′2.7″ 4′10″
Total Tilt ft/in 3′3″ 2′2.2″ 1′2.5″ 3′6.3″
Width Over End Bits ft/in 15′11″ 10′6″ 8′.9″ 17′3″
Blade Lift Height in 27.1
Digging Depth in 21.8
Multishanks
Arrangements
1 to 3 3 1 to 3
Ground Clearance
Under Tip
in 35 19.9 16.2 35
Machine Ground
Clearance
in 14.7
Max Penetration in 14.2 37
Max Reach at
Ground Line
in 29.1 29.1
National Incident Management System 83 December 2008
APPENDIX A: EXAMPLES OF RESOURCES FOR WHICH TYPING HAS BEEN
COMPLETED
Table A-1. Single Resource (Track Dozer) That Has Been Typed—continued
Resource: Track Dozer
Category: Public Works and Engineering (ESF #3) Kind: Equipment
Minimum Capabilities:
Component Measures
Type I Type II Type III Type IV Other
Equipment Example
D10R –
Cat 3412E
Turbo Charged
Diesel
D6N –
Cat 3126B Diesel
D3G –
Cat 3046 Diesel
D10R WHA
(Waste Handling)
– Cat 3412E
Turbo Charged
Diesel
Width ft/in 9′7″ 7′2.7″ 8′.9″ 9′7″
Winch-Drum
Capacity
ft 226 371 371 226
Fuel Capacity gal 293 79 43.6 293
Max Line Pull Bare
Drum
lbs 40,000
Full Drum lbs 25,000
Equipment Example
D10R D6N D3G
D10R WH
Comments: Caterpillar is used as an example only. The major difference for D10R WHA (Waste Handling) –
Cat 3412E Turbo Charged Diesel is that it contains a larger blade and protection guards to
prevent landfill type debris from tangling its drives.
General Example
84 National Incident Management System December 2008
APPENDIX A: EXAMPLES OF RESOURCES FOR WHICH TYPING HAS BEEN
COMPLETED
Table A-2. Team Resource (Swiftwater/Flood Search and Rescue Team)
That Has Been Typed
Resource: Swiftwater/Flood Search and Rescue Team
Category: Search and Rescue Kind: Team
Minimum Capabilities:
Component Measure
Type I Type II Type III Type IV
Personnel Team Composition 14-member
team:
2 managers
2 squad leaders
10 personnel
6-member team:
1 squad leader
5 personnel
4-member
team:
1 squad leader
3 personnel
3-member team:
1 squad leader
2 personnel
Personnel Minimum number:
Technical Animal Rescue
2 1 1
Personnel Minimum number:
ALS Certified
2
Personnel Minimum number:
Helicopter/Aquatic Rescue
Operations
4 2
Personnel Minimum number:
Powered Boat Operators
4 2
Personnel Minimum number: SCUBA-
trained Support Personnel with
Equipment
4 2 2
Personnel Number and level EMTs 14 EMTs – B
2 EMTs – P
Same as Type III Same as Type
IV
1 EMT – B
Team Sustained Operations Same as Type II 24-hour
operations
Same as Type
IV
18-hour
operations
Team Capabilities Manage search
operations
Power vessel
operations
Helicopter
rescue
operations
Animal rescue
HAZMAT
ALS
Communications
Logistics
Manage search
operations
Power vessel
operations
Helicopter
rescue
operations
Animal rescue
HAZMAT
BLS
Assist in
search
operations
Nonpowered
watercraft
Animal rescue
HAZMAT
BLS
Low-risk
operations
Land-based
HAZMAT
BLS
Team Specialty S&R Capabilities Same as Type II Same as Type III
plus:
Technical rope
systems
In-water
contact rescue
Dive rescue
National Incident Management System 85 December 2008
APPENDIX A: EXAMPLES OF RESOURCES FOR WHICH TYPING HAS BEEN
COMPLETED
Table A-2. Team Resource (Swiftwater/Flood Search and Rescue Team)
That Has Been Typed—continued
Resource: Swiftwater/Flood Search and Rescue Team
Category: Search and Rescue Kind: Team
Minimum Capabilities:
Component Measure
Type I Type II Type III Type IV
Team Training Same as Type II
except:
Divers to have
80 hours of
formal public
safety diver
training
Same as Type III
plus:
Helicopter
operations
awareness
Technical rope
rescue
Same as Type
IV plus:
Divers to have
60 hours of
formal public
safety diver
training
Class 3 paddle
skills
Contact and self-
rescue skills
HAZMAT
ICS
Swiftwater
rescue
technician
Team Certifications ALS
Advanced First
Aid & CPR
Same as Type IV Same as Type
IV
BLS
Advanced First
Aid & CPR
Equipment Transportation Resources Equipment
trailer, personnel
support vehicle
Personnel Team Composition 14-member
team:
2 managers
2 squad leaders
10 personnel
6-member team:
1 squad leader
5 personnel
4-member
team:
1 squad leader
3 personnel
3-member team:
1 squad leader
2 personnel
Equipment Communication Same as Type II Same as Type III
plus:
Aircraft radio
Same as Type
IV plus:
Headset
Batteries
Portable radios
Cell phone
Equipment Medical ALS medical kit
Blankets
Spineboard
Litter
Same as Type III
plus:
Spineboard
Same as Type
IV plus:
Litter
BLS medical kit
Blankets
Equipment Personal Same as Type II Same as Type III
plus:
Life vests
HEED
except:
PFD Type V
Same as Type
IV plus:
Fins
Lamps
Light sticks;
Flares; Markers;
Flashlight; Bags;
Helmets; Gloves;
Knives; PFD
Type III/IV;
Shoes; Whistles
86 National Incident Management System December 2008
APPENDIX A: EXAMPLES OF RESOURCES FOR WHICH TYPING HAS BEEN
COMPLETED
National Incident Management System 87
Table A-2. Team Resource (Swiftwater/Flood Search and Rescue Team)
That Has Been Typed—continued
Resource: Swiftwater/Flood Search and Rescue Team
Category: Search and Rescue Kind: Team
Minimum Capabilities:
Component Measure
Type I Type II Type III Type IV
Equipment SCUBA Same as Type III Same as Type III SCUBA
cylinder
Buoyancy
compensator
Weight belt
2 cutting tools
Chest harness
& snap shackle
Full face mask
Underwater
communication
Dry suit
Search line
Spare SCUBA
cylinder
Vehicle Rescue Boat 2 – Fueled 1 – Fueled 1 –
Nonpowered
4-person
Comments: Conduct search and rescue operations in all water environments, including swiftwater and flood
conditions. Water rescue teams come with all team equipment required to conduct operations safely
and effectively.
For a complete list of recommended training, skills, and equipment, please refer to the FIRESCOPE
Swiftwater/Flood Search and Rescue definition at http://www.firescope.org/ics-usar/ICS-SF-SAR-
020-1 .
Note: ALS = advanced life support; EMT = emergency medical technician; BLS = basic life support; CPR =
cardiopulmonary resuscitation; HAZMAT = hazardous material; HEED = helicopter emergency egress device; PFD =
personal flotation device
December 2008
http://www.firescope.org/ics-usar/ICS-SF-SAR-020-1
http://www.firescope.org/ics-usar/ICS-SF-SAR-020-1
This page intentionally left blank.
88 National Incident Management System December 2008
APPENDIX B:
INCIDENT COMMAND SYSTEM
A. PURPOSE
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
National Incident Management System 89 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
This page intentionally left blank.
90 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 1—ICS ORGANIZATION
A. FUNCTIONAL STRUCTURE
The Incident Command System comprises five major functional areas: Command,
Operations, Planning, Logistics, and Finance/Administration. (A sixth functional area,
Intelligence/Investigations, may be established if required.)
B. MODULAR EXPANSION
The ICS organizational structure is modular, extending to incorporate all elements
necessary for the type, size, scope, and complexity of an incident. It builds from the top
down; responsibility and performance begin with Incident Command. When the need
arises, four separate Sections can be used to organize the General Staff. Each of these
Sections may have several subordinate units, or Branches, depending on the incident’s
management requirements. If one individual can simultaneously manage all major
functional areas, no further organization is required. If one or more of the functions
requires independent management, an individual is assigned responsibility for that function.
To maintain a manageable span of control, the initial responding Incident Commander (IC)
may determine it necessary to delegate functional management to one or more Section
Chiefs. The Section Chiefs may further delegate management authority for their areas, as
required. A Section Chief may establish Branches, Groups, Divisions, or Units, depending
on the Section. Similarly, each functional Unit Leader will further assign individual tasks
within the Unit, as needed.
The use of deputies and assistants is a vital part of both the organizational structure and the
modular concept. The IC may have one or more deputies, who may be from the same or an
assisting agency. Deputies may also be used at Section and Branch levels of the
organization. A deputy, whether at the Command, Section, or Branch level, must be fully
qualified to assume the position.
The primary reasons to designate a Deputy IC are:
• To perform specific tasks as requested by the IC.
• To perform the incident command function in a relief capacity (e.g., to take over the
next operational period; in this case, the deputy will then assume the primary role).
• To represent an assisting agency that may share jurisdiction or have jurisdiction in
the future.
Assistants are used as subordinates to the Command Staff, which includes the Public
Information Officer, Safety Officer, and Liaison Officer. They have a level of technical
capability, qualifications, and responsibility subordinate to the primary positions.
The modular concept described above is based on the following considerations:
• Developing the organization’s structure to match the function or task to be
performed.
• Staffing only the functional elements required to perform the task.
• Implementing recommended span-of-control guidelines.
National Incident Management System 91 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
• 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
92 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
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.
National Incident Management System 93 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
Figure B-1. Example of the Role of Safety Officer and
Assistant Safety Officers in ICS in a Multibranch Incident
94 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
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.
National Incident Management System 95 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
This page intentionally left blank.
96 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 2—THE OPERATIONS SECTION
The Operations Section is responsible for managing operations directed toward reducing the
immediate hazard at the incident site, saving lives and property, establishing situation
control, and restoring normal conditions. Incidents can include acts of terrorism, wildland
and urban fires, floods, hazardous material spills, nuclear accidents, aircraft accidents,
earthquakes, hurricanes, tornadoes, tropical storms, war-related disasters, public health
and medical emergencies, and other incidents requiring an emergency response.
Because of its functional management structure, ICS is applicable across a spectrum of
incidents differing in size, scope, and complexity. The types of agencies that could be
included in the Operations Section include fire, law enforcement, public health, public works,
and emergency services. Depending on the situation, these agencies may work together as
a unit or in various combinations. Many incidents may involve government agencies, NGOs,
and the private sector as partners in the Operations Section.
Incident operations can be organized and executed in many ways. The specific method
selected will depend on the type of incident, the agencies involved, and the objectives and
strategies of the incident management effort. The following discussion presents several
different methods of organizing tactical operations in response to an incident. In some
cases, the approach will be strictly functional. In other cases, a method will be selected to
accommodate jurisdictional boundaries. In still others, a mix of functional and geographical
approaches may be appropriate. While ICS organizational management is directly
correlated with the size and complexity of the incident, the need to maintain a manageable
span of control for all resources means that the number of subordinate units or single
resources is what drives the functions of ICS. ICS offers extensive flexibility in determining
the appropriate approach using the factors described above.
A. OPERATIONS SECTION CHIEF
The Operations Section Chief directly manages all incident tactical activities and implements
the IAP. The Operations Section Chief may have one or more deputies, preferably from
other agencies in multijurisdictional incidents. An Operations Section Chief should be
designated for each operational period and will have direct involvement in the development
of the IAP for the next operational period of responsibility.
B. BRANCHES
Branches may be established to meet several challenges:
1. Maintaining Recommended Span of Control for the Operations
Section Chief
The recommended span of control for the Operations Section Chief is 1:5—as for all
managers and supervisory personnel—or as high as 1:10 for larger scale law enforcement
operations. When this is exceeded, the Operations Section Chief should set up two
Branches (see Figure B-2), allocating the Divisions and Groups between them. For
National Incident Management System 97 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
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.
98 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
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.
National Incident Management System 99 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
The use of the two terms is necessary, because Division always refers to a geographical
assignment and Group always refers to a functional assignment. Both Divisions and Groups
may be used in a single incident. Maintaining proper coordination is vital to the success of
these operations.
As additional types of resources are added to the organization, resources should be
assigned into a Division structure.
1. Geographical Divisions
One way to create geographical Divisions is to separate an area according to natural terrain
boundaries or other prominent geographical features, such as rivers. When geographical
features are used for determining boundaries, the size of the Division should correspond to
appropriate span-of-control guidelines (see Figure B-5).
Figure B-5. Use of Geographical Divisions
2. Functional Groups
Functional Groups can be used to describe areas of like activity (e.g., rescue, evacuation, or
medical), as shown in Figure B-6.
Figure B-6. Use of Functional Groups
100 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
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 BRANCH
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
National Incident Management System 101 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
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-7
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
102 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 3—THE PLANNING SECTION
The Planning Section is responsible for collecting, evaluating, and disseminating operational
information pertaining to the incident. This Section maintains information and intelligence
on the current and forecasted situation, as well as the status of resources assigned to the
incident. The Planning Section prepares and documents Incident Action Plans and incident
maps, and gathers and disseminates information and intelligence critical to the incident.
The Planning Section has four primary Units and may also include technical specialists to
assist in evaluating the situation and forecasting requirements for additional personnel and
equipment.
A. PLANNING SECTION CHIEF
The Planning Section Chief oversees all incident-related data gathering and analysis
regarding incident operations and assigned resources, conducts Planning Meetings, and
prepares the IAP for each operational period. This individual will normally come from the
jurisdiction with primary incident responsibility and may have one or more deputies from
other participating jurisdictions.
B. RESOURCES UNIT
1. Responsibilities
The Resources Unit makes certain that all assigned personnel and resources have checked
in at the incident. Resources consist of personnel, teams, crews, aircraft, and equipment
available for assignment to or employment during an incident. The Resources Unit
maintains a system for keeping track of the current location and status of all assigned
resources and maintains a master list of all resources committed to incident operations.
2. Resource Status
Resources must be categorized by kind and type (capability and capacity), and resource
status must be tracked continuously to manage them effectively during an incident. The
following status conditions and procedures are used for maintaining an up-to-date and
accurate picture of resource status.
a. Status Conditions
Tactical resources at an incident can have one of three status conditions:
• Assigned: Resources that are checked in and are cleared to work on an incident.
• Available: Personnel, teams, equipment, or facilities that have been assigned to an
incident and are ready for a specific work detail or function.
• Out of Service: Assigned resources that are unable to function for mechanical,
personal, or health reasons.
National Incident Management System 103 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
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. SITUATION 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 UNIT
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.
104 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
F. TECHNICAL SPECIALISTS
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.
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
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.
National Incident Management System 105 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
Tasks accomplished by the Environmental Unit might include the following:
• Identifying sensitive areas and recommending response priorities.
• Developing a plan for collecting, transporting, and analyzing samples.
• Providing input on wildlife protection strategies.
• Determining the extent and effects of site contamination.
• Developing site cleanup and hazardous material disposal plans.
• Identifying the need for and obtaining permits and other authorizations.
106 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 4—THE LOGISTICS SECTION
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-8
provides an example of the Logistics Section organized with Service and Support Branches.
Figure B-8. Logistics Section With Branch Organizational Structure
National Incident Management System 107 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
A. SUPPLY UNIT
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. FACILITIES UNIT
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:
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.
• 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 SUPPORT UNIT
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.
108 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
In addition to its primary functions of maintaining and servicing vehicles and mobile
equipment, the Ground Support Unit maintains a transportation pool for major incidents.
This pool consists of vehicles (e.g., staff cars, buses, or pickups) that are suitable for
transporting personnel. The Ground Support Unit also provides to the Resources Unit up-to-
date information on the location and status of transportation vehicles assigned to the
Ground Support Unit.
D. COMMUNICATIONS UNIT
The Communications Unit develops the Communications Plan (ICS 205), to make the most
effective use of the communications equipment and facilities assigned to the incident.
Additionally, this Unit installs and tests all communications equipment, supervises and
operates the incident communications center, distributes and recovers communications
equipment assigned to incident personnel, and maintains and repairs communications
equipment on site.
The Communications Unit is responsible for effective incident communications planning,
especially in the context of a multiagency incident. All communications between
organizational elements during an incident should be in plain language (clear text) to ensure
that information dissemination is clear and understood by all intended recipients. Planning
is critical for determining required radio nets, establishing interagency frequency
assignments, and ensuring the interoperability and the optimal use of all assigned
communications capabilities.
The Communications Unit Leader should attend all incident Planning Meetings to ensure that
the communication systems available for the incident can support tactical operations
planned for the next operational period.
Incident communications are managed through the use of an incident Communications Plan
and a communications center established solely for the use of tactical and support resources
assigned to the incident.
Advance planning is required to ensure that an appropriate communications system is
available to support incident operations requirements. This planning includes the
development of frequency inventories, frequency-use agreements, and interagency radio
caches.
Most complex incidents will require a Communications Plan. The Communications Unit is
responsible for planning the use of radio frequencies; establishing networks for command,
tactical, support, and air units; setting up on-scene telephone and public address
equipment; and providing any required off-incident communication links. Codes should not
be used for radio communication. A clear spoken message—based on common terminology
that avoids misunderstanding in complex and noisy situations—reduces the chances for
error. The use of common terminology allows emergency management/response personnel
to communicate clearly with one another and effectively coordinate activities, no matter the
size, scope, location, or complexity of the incident.
National Incident Management System 109 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
Radio networks for large incidents may be organized as follows:
1. Command Net
The command net links together Incident Command, Command Staff, Section Chiefs,
Branch Directors, and Division and Group Supervisors.
2. Tactical Nets
Several tactical nets may be established to connect departments, agencies, geographical
areas, or specific functional units. The determination of how nets are set up should be a
joint function designed by Planning, Operations, and Logistics.
3. Support Net
A support net may be established primarily to handle changes in resource status but also to
handle logistical requests and other nontactical functions.
4. Air-to-Ground Net
To coordinate air-to-ground traffic, either a specific tactical frequency may be designated, or
regular tactical nets may be used.
5. Air-to-Air Nets
Air-to-air nets may be designated and assigned for use at the incident. An air-to-air net is
designed to be used by airborne assets; ground units should not utilize this net.
E. FOOD UNIT
The Food Unit determines food and hydration
requirements of the responders, and has the
responsibility for planning menus, ordering food,
providing cooking facilities, cooking and serving
food, maintaining food service areas, and
managing food security and safety.
Feeding affected nonresponse persons
(e.g., victims, evacuees, persons at
shelters) is a critical operational activity
that will normally be incorporated into the
IAP. Feeding activities will normally be
conducted by members of appropriate
NGOs, such as the American Red Cross
or similar entities. Services provided by
appropriate NGOs would not fall within
the Food Unit but in a separate functional
assignment that should be communicated
and coordinated with the IC and
Operations Section Chief to ensure
operational continuity.
Efficient food service is important, but it is
especially important for any extended incident.
The Food Unit must be able to anticipate incident
needs, such as the number of people who will need
to be fed and whether the type, location, or
complexity of the incident predicates special food
requirements. The Unit must supply food needs for
the entire incident, including all remote locations
(e.g., Camps and Staging Areas), and also supply
food service to operations personnel who are
unable to leave their assignments.
110 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
The Food Unit must interact closely with the following elements:
• Planning Section, to determine the number of personnel who must be fed.
• Facilities Unit, to arrange food service areas.
• Supply Unit, to order food, unless provided under contract or agreement.
• Ground Support Unit, to obtain ground transportation.
• Air Operations Branch Director, to deliver food to remote locations.
Careful planning and monitoring is required to ensure food safety before and during food
service operations, including the assignment, as indicated, of public health professionals
with expertise in environmental health and food safety.
F. MEDICAL UNIT
The Medical Unit is responsible for the effective and
efficient provision of medical services to incident
personnel, and reports directly to the Logistics
Section Chief. The primary responsibilities of the
Medical Unit include the following:
Patient care and medical services for
those who are not emergency
management/response personnel (e.g.,
incident victims) are critical operational
activities. These activities are
incorporated into the IAP as key
considerations and should be staffed
accordingly with appropriate professional
personnel.
• Develop procedures for handling any major
medical emergency involving incident
personnel.
• Develop the Incident Medical Plan (for
incident personnel).
• Provide continuity of medical care, including
vaccinations, vector control, occupational health, prophylaxis, and mental health
services for incident personnel.
• Provide transportation for injured incident personnel.
• Coordinate and establish the routine rest and rehabilitation of incident responders.
• Ensure that injured incident personnel are tracked as they move from their origin to
a care facility and from there to final disposition.
• Assist in processing all paperwork related to injuries or deaths of incident-assigned
personnel.
• Coordinate personnel and mortuary affairs for incident personnel fatalities.
The Medical Unit Leader will develop a Medical Plan, which will, in turn, form part of the IAP.
The Medical Plan should provide specific information on medical assistance capabilities at
incident locations, potentially hazardous areas or conditions, and off-site medical assistance
facilities and procedures for handling complex medical emergencies. The Medical Unit will
also assist the Finance/Administration Section with the administrative requirements related
to injury compensation, including obtaining written authorizations, billing forms, witness
statements, administrative medical documents, and reimbursement as required. The
Medical Unit will ensure patient privacy to the fullest extent possible.
National Incident Management System 111 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
112 National Incident Management System
This page intentionally left blank.
December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 5—THE FINANCE/
ADMINISTRATION SECTION
TAB 5—THE FINANCE/
ADMINISTRATION SECTION
A Finance/Administration Section is established
when there is a specific need for financial and/or
administrative services to support incident
management activities. Large or evolving
scenarios involve significant funding originating
from multiple sources. In addition to monitoring
multiple sources of funds, the Section Chief must
track and report to the IC/UC the accrued cost as
the incident progresses. This allows the IC/UC to
forecast the need for additional funds before
operations are affected negatively, and it is
particularly important if significant operational
resources are under contract from the private
sector.
The Section Chief may also need to monitor expenditures to ensure that applicable statutory
rules are met. Close coordination with the Planning and Logistics Sections is essential so
that operational records can be reconciled with financial documents.
A Finance/Administration Section is established
when there is a specific need for financial and/or
administrative services to support incident
management activities. Large or evolving
scenarios involve significant funding originating
from multiple sources. In addition to monitoring
multiple sources of funds, the Section Chief must
track and report to the IC/UC the accrued cost as
the incident progresses. This allows the IC/UC to
forecast the need for additional funds before
operations are affected negatively, and it is
particularly important if significant operational
resources are under contract from the private
sector.
The Section Chief may also need to monitor expenditures to ensure that applicable statutory
rules are met. Close coordination with the Planning and Logistics Sections is essential so
that operational records can be reconciled with financial documents.
While the functions of
Finance/Administration are critical
components of effective command and
management, components of the
Finance/Administration Section are not
necessarily staffed on the incident scene.
Wireless communications systems enable
some of the Finance/Administration
functions to be performed away from the
incident scene, typically in the
workstations where these functions
would customarily be performed.
The Finance/Administration Section Chief will determine, given current and anticipated
future requirements, the need for establishing specific subordinate units. Because of the
specialized nature of finance functions, the Section Chief should come from the agency that
has the greatest requirement for this support. The Finance/Administration Section Chief
may also have one or more deputies.
The Finance/Administration Section Chief will determine, given current and anticipated
future requirements, the need for establishing specific subordinate units. Because of the
specialized nature of finance functions, the Section Chief should come from the agency that
has the greatest requirement for this support. The Finance/Administration Section Chief
may also have one or more deputies.
A. TIME UNIT
A. TIME UNIT
The Time Unit is responsible primarily for ensuring proper daily recording of personnel time,
in accordance with the policies of the relevant agencies. The Time Unit also ensures that
the Logistics Section records or captures equipment-use time.
If applicable (depending on the agencies involved), personnel time records will be collected
and processed for each operational period. The Time Unit Leader may require the
assistance of personnel familiar with the relevant policies of any affected agencies. These
records must be verified, checked for accuracy, and posted according to existing policies.
Excess hours worked must also be determined, for which separate logs must be maintained.
B. PROCUREMENT UNIT
The Procurement Unit administers all financial matters pertaining to vendor contracts. This
Unit coordinates with local jurisdictions to identify sources for equipment, prepares and
signs equipment rental agreements, and processes all administrative requirements
associated with equipment rental and supply contracts. In some cases, the Supply Unit in
National Incident Management System 113 113 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
the Logistics Section will be responsible for certain procurement activities. The Procurement
Unit will also work closely with local cost authorities.
C. COMPENSATION AND CLAIMS UNIT
Under ICS, a single Unit handles injury compensation and claims. Depending on the
incident, the specific activities are varied and may not always be accomplished by the same
person. The individual handling injury compensation ensures that all forms required by
workers’ compensation programs and local agencies are completed. This individual also
maintains files on injuries and illnesses associated with the incident, and ensures that all
witness statements are obtained in writing. Since the Medical Unit may also perform some
of these tasks, close coordination between the Medical and Compensation and Claims Units
is essential. The claims function handles investigations of all civil tort claims involving
property associated with or involved in the incident. The Compensation and Claims Unit
maintains logs on the claims, obtains witness statements, and documents investigations and
agency followup requirements.
D. COST UNIT
The Cost Unit provides cost analysis data for the incident. This Unit must ensure that
equipment and personnel for which payment is required are properly identified, obtain and
record all cost data, and analyze and prepare estimates of incident costs. The Cost Unit
also provides input on cost estimates for resource use to the Planning Section. The Cost
Unit must maintain accurate information on the actual costs of all assigned resources.
114 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 6—ESTABLISHING AN
AREA COMMAND
As described in the Command and Management component, the purpose of an Area
Command is either to oversee the management of multiple incidents that are each being
handled by a separate ICS organization or to oversee the management of a very large or
evolving incident that has multiple Incident Management Teams (IMTs) engaged.
A. RESPONSIBILITIES
The Area Command does not have operational responsibilities. For the incidents under its
authority, the Area Command:
• Develops broad objectives for the impacted area(s).
• Coordinates the development of individual incident objectives and strategies.
• (Re)allocates resources as the established priorities change.
• Ensures that incidents are properly managed.
• Ensures effective communications.
• Ensures that incident management objectives are met and do not conflict with each
other or with agency policies.
• Identifies critical resource needs and reports them to the established
EOCs/Multiagency Coordination Groups.
• Ensures that short-term “emergency” recovery is coordinated to assist in the
transition to full recovery operations.
The function of Area Command is to develop broad objectives for the impacted area and to
coordinate the development of individual incident objectives and strategies. Additionally,
the Area Commander will set priorities for the use of critical resources allocated to the
incident.
B. ORGANIZATION
The Area Command organization operates under the same basic principles as ICS.
Typically, an Area Command will comprise the following key personnel, all of whom must
possess appropriate qualifications and certifications:
1. Area Commander (Unified Area Command)
The Area Commander is responsible for the overall direction of the IMTs assigned. This
responsibility includes ensuring that conflicts are resolved, incident objectives established,
and strategies selected for the use of critical resources. The Area Commander is also
responsible for coordinating with Federal, State, tribal, and local departments and agencies,
as well as NGOs and the private sector.
National Incident Management System 115 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
2. Assistant Area Commander–Logistics
The Area Command Logistics Chief provides facilities, services, and materials at the Area
Command level and ensures the effective allocation of critical resources and supplies among
the IMTs.
3. Assistant Area Commander–Planning
The Area Command Planning Chief collects information from various IMTs to assess and
evaluate potential conflicts in establishing incident objectives, strategies, and priorities for
allocating critical resources.
4. Area Command Aviation Coordinator
An Aviation Coordinator is assigned when aviation resources are competing for common
airspace and critical resources, and works in coordination with incident aviation
organizations to evaluate potential conflicts, develop common airspace management
procedures, ensure aviation safety, and allocate critical resources in accordance with Area
Command priorities.
5. Area Command Support Positions
The following Area Command positions are activated as necessary:
• Resources Unit Leader: Tracks and maintains the status and availability of critical
resources assigned to each incident under the Assistant Area Commander–Planning.
• Situation Unit Leader: Monitors the status of objectives for each incident or IMT
assigned to the Assistant Area Commander–Planning.
• Public Information Officer: Provides coordination between incident locations and
serves as the point of contact for media requests to the Area Command.
• Liaison Officer: Helps maintain off-incident interagency contacts and coordination.
C. LOCATION
The following guidelines should be followed in locating an Area Command:
• To the extent possible, the Area Command should be established in close proximity
to the incidents under its authority. This makes it easier for the Area Commander
and the ICs to meet and otherwise interact.
• It is, however, best not to co-locate an Area Command with any individual ICP.
Doing so might cause confusion with the Command and Management activities
associated with that particular incident.
• Area Commands must establish effective, efficient communications, coordination
processes, and protocols with subordinate ICs, as well as with other incident
management organizations involved in incident operations.
• The facility used to house the organization should be large enough to accommodate
a full Area Command staff. It should also be able to accommodate meetings
116 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
between the Area Command staff, the ICs, and Agency Administrators/Executives as
well as news media representatives.
D. REPORTING RELATIONSHIPS
When an Area Command is involved in coordinating multiple incident management
activities, the following reporting relationships will apply:
• The ICs for the incidents under the Area Command’s authority report to the Area
Commander.
• The Area Commander is accountable to the agency(s) or to the jurisdictional
executive(s) or administrator(s).
• If one or more incidents within the Area Command are multijurisdictional, a Unified
Area Command should be established.
National Incident Management System 117 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
118 National Incident Management System
This page intentionally left blank.
December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 7—FACILITIES AND LOCATIONS
Several kinds and types of facilities may be established in and around the incident area.
The requirements of the incident and the desires of the IC/UC will determine the specific
kinds and locations of facilities and may consist of the following designated facilities, among
others.
A. INCIDENT COMMAND POST
The ICP signifies the location of the tactical-level, on-scene incident command organization.
It typically comprises the Incident Command and the Command and General Staffs, but
may include other designated incident personnel from Federal, State, tribal, and local
departments and agencies, as well as NGOs and the private sector. Typically, the ICP is
located at or in the immediate vicinity of the incident site and is the location for the conduct
of direct, on-scene control of tactical operations. Incident planning is conducted at the ICP;
an incident communications center also would normally be established at this location. The
ICP may be co-located with the Incident Base, if the communications requirements can be
met.
B. INCIDENT BASE
An Incident Base is the location at which primary support activities are conducted. A single
Incident Base is established to house equipment and personnel support operations. The
Incident Base should be designed to be able to support operations at multiple incident sites.
C. CAMPS
Camps are separate from the Incident Base and are located as satellites to the Incident
Base, where they can best support incident operations. Camps provide support, such as
food, sleeping areas, and sanitation. Camps may also provide minor maintenance and
servicing of equipment. Camps may be relocated to meet changing operational
requirements.
D. STAGING AREAS
Staging Areas are established for the temporary location of available resources. Staging
Areas will be established by the Operations Section Chief to enable positioning of and
accounting for resources not immediately assigned. A Staging Area can be any location in
which personnel, supplies, and equipment can be temporarily housed or parked while
awaiting operational assignment. Staging Areas may include temporary feeding, fueling,
and sanitation services. The Operations Section Chief assigns a manager for each Staging
Area, who checks in all incoming resources, dispatches resources at the Operations Section
Chief’s request, and requests Logistics Section support, as necessary, for resources located
in the Staging Area.
National Incident Management System 119 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
120 National Incident Management System
This page intentionally left blank.
December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 8—THE PLANNING PROCESS AND
THE IAP
TAB 8—THE PLANNING PROCESS AND
THE IAP
A. OVERVIEW A. OVERVIEW
Sound, timely planning provides the foundation for effective incident management. The
NIMS planning process described below represents a template for strategic, operational, and
tactical planning that includes all steps that an IC/UC and other members of the Command
and General Staffs should take to develop and disseminate an IAP. The planning process
may begin with the scheduling of a planned event, the identification of a credible threat, or
the initial response to an actual or impending event. The process continues with the
implementation of the formalized steps and the staffing required to develop a written IAP.
A clear, concise IAP template is essential to guide the initial incident management decision
process and the continuing collective planning activities of IMTs. The planning process
should provide the following:
• Current information that accurately describes the incident situation and resource
status.
• Predictions of the probable course of events.
• Alternative strategies to attain critical incident objectives.
• An accurate, realistic IAP for the next operational period.
Five primary phases should be followed in sequence to
ensure a comprehensive IAP. These phases are designed
to enable the accomplishment of incident objectives within
a specified time. The IAP must provide clear strategic
direction and include a comprehensive listing of the tactics,
resources, reserves, and support required to accomplish
each overarching incident objective. The comprehensive
IAP will state the sequence of events for achieving multiple
incident objectives in a coordinated way. However, the
IAP is a living document that is based on the best available
information at the time of the Planning Meeting. Planning
Meetings should not be delayed in anticipation of future information.
The five primary phases in the
planning process are to
understand the situation;
establish incident objectives and
strategy; develop the plan;
prepare and disseminate the
plan; and execute, evaluate, and
revise the plan.
The primary phases of the planning process are essentially the same for the IC who
develops the initial plan, for the IC and Operations Section Chief revising the initial plan for
extended operations, and for the IMT developing a formal IAP. During the initial stages of
incident management, planners should develop a simple plan that can be communicated
through concise oral briefings. Frequently, this plan must be developed very quickly and
with incomplete situation information. As the incident management effort evolves,
additional lead time, staff, information systems, and technologies enable more detailed
planning and cataloging of events and lessons learned.
National Incident Management System 121 121 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
The five primary phases in the planning process are:
1. Understand the Situation
The first phase includes gathering, recording, analyzing, and displaying situation, resource,
and incident-potential information in a manner that will facilitate:
• Increased situational awareness of the magnitude, complexity, and potential impact
of the incident.
• The ability to determine the resources required to develop and implement an
effective IAP.
2. Establish Incident Objectives and Strategy
The second phase includes formulating and prioritizing measurable incident objectives and
identifying an appropriate strategy. The incident objectives and strategy must conform to
the legal obligations and management objectives of all affected agencies, and may need to
include specific issues relevant to critical infrastructure.
Reasonable alternative strategies that will accomplish overall incident objectives are
identified, analyzed, and evaluated to determine the most appropriate strategy for the
situation at hand. Evaluation criteria include public health and safety factors, estimated
costs, and various environmental, legal, and political considerations.
3. Develop the Plan
The third phase involves determining the tactical direction and the specific resources,
reserves, and support requirements for implementing the selected strategies and tactics for
the operational period.
Before the formal Planning Meetings, each member of the Command and General Staffs is
responsible for gathering certain information to support the proposed plan.
4. Prepare and Disseminate the Plan
The fourth phase involves preparing the plan in a format that is appropriate for the level of
complexity of the incident. For the initial response, the format is a well-prepared outline for
an oral briefing. For most incidents that will span multiple operational periods, the plan will
be developed in writing according to ICS procedures.
5. Execute, Evaluate, and Revise the Plan
The planning process includes the requirement to execute and evaluate planned activities
and check the accuracy of information to be used in planning for subsequent operational
periods. The General Staff should regularly compare planned progress with actual progress.
When deviations occur and when new information emerges, it should be included in the first
step of the process used for modifying the current plan or developing the plan for the
subsequent operational period.
122 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
B. RESPONSIBILITIES AND SPECIFIC PLANNING ACTIVITIES
1. Operational Period Planning Cycle
Figure B-9 is a graphical representation of the planning cycle.
Figure B-9. Operational Period Planning Cycle
National Incident Management System 123 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
2. Planning Steps: Understanding the Situation and Establishing
Objectives and Strategy
The Planning Section Chief should take the following actions prior to the initial Planning
Meeting (if possible, obtain a completed Incident Briefing (ICS 201)):
• Evaluate the current situation and decide whether the current planning is adequate
for the remainder of the operational period (i.e., until the next plan takes effect).
• Advise the IC and the Operations Section Chief of any suggested revisions to the
current plan, as necessary.
• Establish a planning cycle for the incident.
• When requested, participate in the Objectives Meeting to contribute to the
development/update of incident objectives and strategies. The task of developing
incident objectives and strategies is often the sole responsibility of the IC/UC.
• Participate in the Tactics Meeting, if held, to review the tactics developed by the
Operations Section Chief.
• Determine Planning Meeting attendees in consultation with the IC. For major
incidents, attendees should include the following:
– Incident Commander.
– Command Staff members.
– General Staff members.
– Resources Unit Leader.
– Situation Unit Leader.
– Air Operations Branch Director (if established).
– Communications Unit Leader.
– Technical specialists (as required).
– Agency Representatives (as required).
• Establish the location and time for the Planning Meeting.
• Ensure that planning boards and forms are available.
• Notify necessary support staff about the meeting and their assignments.
• Ensure that a current situation and resource briefing will be available for the
meeting.
• Obtain an estimate of resource availability for use in planning for the next
operational period.
• Obtain necessary agency policy, legal, or fiscal constraints for use in the Planning
Meeting.
124 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
3. Conducting the Planning Meeting
The Planning Meeting is normally conducted by the Planning Section Chief. The sequence of
steps that follows is intended to aid the Planning Section Chief in developing the IAP. The
planning steps are used with the Operational Planning Worksheet (ICS 215).
a. Give a briefing on situation, resource status, and incident
potential
The Planning Section Chief and/or Resources and Situation Unit Leaders should provide an
up-to-date briefing on the situation. Information for this briefing may come from any or all
of the following sources:
• Initial Incident Commander.
• Incident Briefing (ICS 201).
• Field observations.
• Operations reports.
• Regional resources and situation reports.
b. Set/Review established objectives
The IC/UC is responsible for this step. The incident objectives are not limited to any single
operational period but will consider the total incident situation. The IC/UC establishes the
general strategy to be used, states any major constraints (policy, legal, or fiscal) on
accomplishing the objectives, and offers appropriate contingency considerations.
c. Plot operational lines, establish Branch/Division boundaries,
and identify Group assignments
This step is normally accomplished by the Operations Section Chief (for the next operational
period) in conjunction with the Planning Section Chief, who will establish Division and
Branch boundaries for geographical Divisions and determine the need for functional Group
assignments for the next operational period. The operational boundaries will be plotted on
the map.
d. Specify tactics for each Division/Group
After determining Division geographical assignments or Group functions, the Operations
Section Chief will establish the specific work assignments to be performed for the next
operational period. Tactics (work assignments) should be specific and within the boundaries
set by the IC/UC general objectives and established strategies. These work assignments
should be recorded on the Operational Planning Worksheet (ICS 215). At this time, the
IC/UC, Operations Section Chief, and Planning Section Chief should also consider the need
for any alternative strategies or tactics and ensure that these are properly noted on the
Operational Planning Worksheet .
e. Specify resources needed by Division/Group
After specifying tactics for each Division/Group, the Operations Section Chief, in conjunction
with the Planning Section Chief, will determine the resource needs to accomplish the work
assignments. Resource needs will be recorded on the Operational Planning Worksheet (ICS
National Incident Management System 125 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
215). Resource needs should be considered on the basis of the type of resources required
to accomplish the assignment.
f. Specify operations facilities and reporting locations and plot on
map
The Operations Section Chief, in conjunction with the Planning and Logistics Section Chiefs,
should designate and make available the facilities and reporting locations required to
accomplish Operations Section work assignments. The Operations Section Chief should
indicate the reporting time requirements for the resources and any special resource
assignments.
g. Develop resource order
The Planning Section Chief should assess resource needs based on the needs indicated by
the Operations Section Chief and resources data available from the Resources Unit. The
Operational Planning Worksheet (ICS 215), when properly completed, will show resource
requirements and the resources available to meet those requirements. Subtracting the
resources available from those required will indicate any additional resource needs. From
this assessment, a new resource order can be developed and provided to the IC/UC for
approval and then placed through normal dispatch channels by the Logistics Section.
h. Consider Communications, Medical, and Traffic Plan requirements
The IAP will normally consist of the Incident Objectives (ICS 202), Organization Chart (ICS
203), Assignment List (ICS 204), and a map of the incident area. Larger incidents may
require additional supporting attachments, such as a separate Incident Radio
Communications Plan (ICS 205), a Medical Plan (ICS 206), and possibly a Traffic Plan. The
Planning Section Chief should determine the need for these attachments and ensure that
the appropriate Units prepare them. The IAP and attachments will normally include the
items listed in Table B-2.
Table B-2. The IAP and Typical Attachments
Component Normally Prepared By
Incident Objectives (ICS 202) Incident Commander
Organization Assignment List or Chart
(ICS 203)
Resources Unit
Assignment List (ICS 204) Resources Unit
Incident Radio Communications Plan
(ICS 205)
Communications Unit
Medical Plan (ICS 206) Medical Unit
Incident Maps Situation Unit
Safety Message Plan (ICS 208) Safety Officer
126 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
Other Potential Components (incident dependent)
Air Operations Summary (ICS 220) Air Operations
Traffic Plan Ground Support Unit
Decontamination Plan Technical Specialist
Waste Management or Disposal Plan Technical Specialist
Demobilization Checkout (ICS 221) Demobilization Unit
Site Security Plan Law Enforcement, Technical
Specialist, or Security Manager
Investigative Plan Law Enforcement
Evidence Recovery Plan Law Enforcement
Evacuation Plan As required
Sheltering/Mass Care Plan As required
Other (as required) As required
i. Finalize, approve, and implement the Incident Action Plan
The Planning Section, in conjunction with the Operations Section, is responsible for seeing
that the IAP is completed, reviewed, and distributed. The following is the sequence of steps
for accomplishing this:
• Set the deadline for completing IAP attachments (see Table B-3).
• Obtain plan attachments and review them for completeness and approvals. Before
completing the plan, the Planning Section Chief should review the Division and Group
tactical work assignments for any changes due to lack of resource availability. The
Resources Unit may then transfer Division/Group assignment information, including
alternatives from the Operational Planning Worksheet (ICS 215), onto the Division
Assignment Lists (ICS 204).
• Determine the number of IAPs required.
• Arrange with the Documentation Unit to reproduce the IAP.
• Review the IAP to ensure it is up to date and complete prior to the operations
briefing and plan distribution.
• Provide the IAP briefing plan, as required, and distribute the plan prior to beginning
of the new operational period.
National Incident Management System 127 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
Table B-3. ICS Forms That Can Aid the Planning Process*
Number Purpose
ICS 201 (p.1)** Incident Briefing Map
ICS 201 (p.2)** Summary of Current Actions
ICS 201 (p.3)** Current Organization
ICS 201 (p.4)** Resources Summary
ICS 202 Incident Objectives
ICS 203 Organization Assignment List
ICS 204 Assignment List
ICS 205 Incident Radio Communications Plan
ICS 206 Medical Plan
ICS 207 Incident Organization Chart (wall mounted)
ICS 209 Incident Status Summary
ICS 210 Status Change
ICS 211 Incident Check-In List
ICS 213 General Message
ICS 215 Operational Planning Worksheet
ICS 215A Hazard Risk Analysis
*ICS Forms are guidance documents to assist in writing an agency’s IAP. Some modification to the forms can be
made to suit an agency’s need more effectively, as long as the nature of each form or numbering is not altered.
**The ICS 201 Forms are the initial summary forms provided at the start of an incident. The information they provide
can help craft an IAP, but the ICS 201 Forms may not be included in the formal written IAP.
128 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 9—ICS FORMS
This section describes some common ICS Forms. The individual forms may be tailored to
meet an agency’s needs. More importantly, even though the format is flexible, the form
number and purpose of the specific type of form (e.g., Assignment List (ICS 204) defines
the assignments for a Division or Group) must remain intact in order to maintain
consistency and facilitate immediate identification and interoperability, and for ease of use.
A. ICS FORMS
The following provides brief descriptions of selected ICS Forms. This list is not all inclusive;
other forms are available online, commercially, and in a variety of formats.
1. ICS 201 – Incident Briefing
Most often used by the initial IC, this four-section document (often produced as four pages)
allows for the capture of vital incident information prior to the implementation of the formal
planning process. ICS 201 allows for a concise and complete transition of command briefing
to an incoming new IC. In addition, this form may serve as the full extent of incident
command and control documentation if the situation is resolved by the initial response
resources and organization. This form is designed to be transferred easily to the members
of the Command and General Staffs as they arrive and begin work. It is not included as a
part of the formal written IAP.
2. ICS 202 – Incident Objectives
ICS 202 serves as the first page of a written IAP. It includes incident information, a listing
of the IC’s objectives for the operational period, pertinent weather information, a general
safety message, and a table of contents for the plan. Signature blocks are provided.
3. ICS 203 – Organization Assignment List
ICS 203 is typically the second page of the IAP. It provides a full accounting of incident
management and supervisory staff for that operational period.
4. ICS 204 – Assignment List
ICS 204 is included in multiples, based on the organizational structure of the Operations
Section for the operational period. Each Division/Group will have its own page, listing the
Supervisor for the Division/Group (including Branch Director if assigned) and the specific
assigned resources with leader name and number of personnel assigned to each resource.
This document then describes in detail the specific actions the Division or Group will be
taking in support of the overall incident objectives. Any special instructions will be included
as well as the elements of the Incident Radio Communications Plan (ICS 205) that apply to
that Division or Group.
National Incident Management System 129 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
5. ICS 205 – Incident Radio Communications Plan
ICS 205 is used to provide information on all radio frequency assignments down to the
Division/Group level.
6. ICS 206 – Medical Plan
ICS 206 presents the incident’s Medical Plan to care for responder medical emergencies.
7. ICS 209 – Incident Status Summary
ICS 209 collects basic incident decision support information and is the primary mechanism
for reporting this situational information to incident coordination and support organizations
and the Agency Administrators/Executives.
8. ICS 211 – Incident Check-In List
ICS 211 documents the check-in process. Check-in recorders report check-in information to
the Resources Unit.
9. ICS 215 – Operational Planning Worksheet
ICS 215 is used in the incident Planning Meeting to develop tactical assignments and
resources needed to achieve incident objectives and strategies.
10. ICS 215A – Hazard Risk Analysis
ICS 215A communicates to the Operations and Planning Section Chiefs the safety and
health issues identified by the Safety Officer. The ICS 215A form identifies mitigation
measures to address the identified safety issues.
130 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
TAB 10—SUMMARY OF MAJOR
ICS POSITIONS
This section lists the primary functions of each major ICS position.
Table B-4. Summary Table of Major ICS Positions*
Major ICS Position Primary Functions
Incident Commander or
Unified Command
• Have clear authority and know agency policy.
• Ensure incident safety.
• Establish the ICP.
• Set priorities, and determine incident objectives and strategies
to be followed.
• Establish ICS organization needed to manage the incident.
• Approve the IAP.
• Coordinate Command and General Staff activities.
• Approve resource requests and use of volunteers and auxiliary
personnel.
• Order demobilization as needed.
• Ensure after-action reports are completed.
• Authorize information release to the media.
Public Information Officer • Determine, according to direction from IC, any limits on
information release.
• Develop accurate, accessible, and timely information for use in
press/media briefings.
• Obtain the IC’s approval of news releases.
• Conduct periodic media briefings.
• Arrange for tours and other interviews or briefings that may be
required.
• Monitor and forward media information that may be useful to
incident planning.
• Maintain current information summaries and/or displays on the
incident.
• Make information about the incident available to incident
personnel.
• Participate in Planning Meetings.
• Implement methods to monitor rumor control.
*The Intelligence/Investigations Function may be under the direction of a separate General Staff position.
National Incident Management System 131 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
Major ICS Position Primary Functions
Safety Officer • Identify and mitigate hazardous situations.
• Create a Safety Plan.
• Ensure safety messages and briefings are made.
• Exercise emergency authority to stop and prevent unsafe acts .
• Review the IAP for safety implications.
• Assign assistants qualified to evaluate special hazards.
• Initiate preliminary investigation of accidents within the incident
area.
• Review and approve the Medical Plan.
• Participate in Planning Meetings to address anticipated hazards
associated with future operations.
Liaison Officer • Act as a point of contact for Agency Representatives.
• Maintain a list of assisting and cooperating agencies and
Agency Representatives.
• Assist in setting up and coordinating interagency contacts.
• Monitor incident operations to identify current or potential
interorganizational problems.
• Participate in Planning Meetings, providing current resource
status, including limitations and capabilities of agency
resources.
• Provide agency-specific demobilization information and
requirements.
Operations Section Chief • Ensure safety of tactical operations.
• Manage tactical operations.
• Develop operations portions of the IAP.
• Supervise execution of operations portions of the IAP.
• Request additional resources to support tactical operations.
• Approve release of resources from active operational
assignments.
• Make or approve expedient changes to the IAP.
• Maintain close contact with the IC, subordinate Operations
personnel, and other agencies involved in the incident.
132 National Incident Management System December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
Major ICS Position Primary Functions
Planning Section Chief • Collect and manage all incident-relevant operational data.
• Supervise preparation of the IAP.
• Provide input to the IC and Operations in preparing the IAP.
• Incorporate Traffic, Medical, and Communications Plans and
other supporting material into the IAP.
• Conduct/facilitate Planning Meetings.
• Reassign out-of-service personnel within the ICS organization
already on scene, as appropriate.
• Compile and display incident status information.
• Establish information requirements and reporting schedules for
Units (e.g., Resources Unit, Situation Unit).
• Determine need for specialized resources.
• Assemble and disassemble Task Forces and Strike Teams not
assigned to Operations.
• Establish specialized data collection systems as necessary
(e.g., weather).
• Assemble information on alternative strategies.
• Provide periodic predictions on incident potential.
• Report significant changes in incident status.
• Oversee preparation of the Demobilization Plan.
Logistics Section Chief • Provide all facilities, transportation, communications, supplies,
equipment maintenance and fueling, food, and medical services
for incident personnel, and all off-incident resources.
• Manage all incident logistics.
• Provide logistics input to the IAP.
• Brief Logistics staff as needed.
• Identify anticipated and known incident service and support
requirements.
• Request additional resources as needed.
• Ensure and oversee development of Traffic, Medical, and
Communications Plans as required.
• Oversee demobilization of Logistics Section and associated
resources.
National Incident Management System 133 December 2008
APPENDIX B: INCIDENT COMMAND SYSTEM
134 National Incident Management System
Major ICS Position Primary Functions
Finance/Administration
Section Chief
• Manage all financial aspects of an incident.
• Provide financial and cost analysis information as requested.
• Ensure compensation and claims functions are being addressed
relative to the incident.
• Gather pertinent information from briefings with responsible
agencies.
• Develop an operational plan for the Finance/Administration
Section and fill Section supply and support needs.
• Determine the need to set up and operate an incident
commissary.
• Meet with assisting and cooperating Agency Representatives as
needed.
• Maintain daily contact with agency(s) headquarters on finance
matters.
• Ensure that personnel time records are completed accurately
and transmitted to home agencies.
• Ensure that all obligation documents initiated at the incident are
properly prepared and completed.
• Brief agency administrative personnel on all incident-related
financial issues needing attention or followup.
• Provide input to the IAP.
December 2008
GLOSSARY OF KEY TERMS
For the purposes of NIMS, the following terms and definitions apply:
Accessible: Having the legally required features and/or qualities that ensure easy
entrance, participation, and usability of places, programs, services, and activities by
individuals with a wide variety of disabilities.
Acquisition Procedures: A process used to obtain resources to support operational
requirements.
Agency: A division of government with a specific function offering a particular kind of
assistance. In the Incident Command System, agencies are defined either as jurisdictional
(having statutory responsibility for incident management) or as assisting or cooperating
(providing resources or other assistance). Governmental organizations are most often in
charge of an incident, though in certain circumstances private-sector organizations may be
included. Additionally, nongovernmental organizations may be included to provide support.
Agency Administrator/Executive: The official responsible for administering policy for an
agency or jurisdiction. An Agency Administrator/Executive (or other public official with
jurisdictional responsibility for the incident) usually makes the decision to establish an Area
Command.
Agency Dispatch: The agency or jurisdictional facility from which resources are sent to
incidents.
Agency Representative: A person assigned by a primary, assisting, or cooperating
Federal, State, tribal, or local government agency, or nongovernmental or private
organization, that has been delegated authority to make decisions affecting that agency’s or
organization’s participation in incident management activities following appropriate
consultation with the leadership of that agency.
All-Hazards: Describing an incident, natural or manmade, that warrants action to protect
life, property, environment, and public health or safety, and to minimize disruptions of
government, social, or economic activities.
Allocated Resource: Resource dispatched to an incident.
Area Command: An organization established to oversee the management of multiple
incidents that are each being handled by a separate Incident Command System organization
or to oversee the management of a very large or evolving incident that has multiple
Incident Management Teams engaged. An Agency Administrator/Executive or other public
official with jurisdictional responsibility for the incident usually makes the decision to
establish an Area Command. An Area Command is activated only if necessary, depending
on the complexity of the incident and incident management span-of-control considerations.
Assessment: The process of acquiring, collecting, processing, examining, analyzing,
evaluating, monitoring, and interpreting the data, information, evidence, objects,
measurements, images, sound, etc., whether tangible or intangible, to provide a basis for
decisionmaking.
National Incident Management System 135 December 2008
GLOSSARY OF KEY TERMS
Assigned Resource: Resource checked in and assigned work tasks on an incident.
Assignment: Task given to a personnel resource to perform within a given operational
period that is based on operational objectives defined in the Incident Action Plan.
Assistant: Title for subordinates of principal Command Staff positions. The title indicates
a level of technical capability, qualifications, and responsibility subordinate to the primary
positions. Assistants may also be assigned to Unit Leaders.
Assisting Agency: An agency or organization providing personnel, services, or other
resources to the agency with direct responsibility for incident management. See
Supporting Agency.
Available Resource: Resource assigned to an incident, checked in, and available for a
mission assignment, normally located in a Staging Area.
Badging: The assignment of physical incident-specific credentials to establish legitimacy
and limit access to various incident sites.
Branch: The organizational level having functional or geographical responsibility for major
aspects of incident operations. A Branch is organizationally situated between the Section
Chief and the Division or Group in the Operations Section, and between the Section and
Units in the Logistics Section. Branches are identified by the use of Roman numerals or by
functional area.
Cache: A predetermined complement of tools, equipment, and/or supplies stored in a
designated location, available for incident use.
Camp: A geographical site within the general incident area (separate from the Incident
Base) that is equipped and staffed to provide sleeping, food, water, and sanitary services to
incident personnel.
Categorizing Resources: The process of organizing resources by category, kind, and
type, including size, capacity, capability, skill, and other characteristics. This makes the
resource ordering and dispatch process within and across organizations and agencies, and
between governmental and nongovernmental entities, more efficient, and ensures that the
resources received are appropriate to their needs.
Certifying Personnel: The process of authoritatively attesting that individuals meet
professional standards for the training, experience, and performance required for key
incident management functions.
Chain of Command: The orderly line of authority within the ranks of the incident
management organization.
Check-In: The process through which resources first report to an incident. All responders,
regardless of agency affiliation, must report in to receive an assignment in accordance with
the procedures established by the Incident Commander.
Chief: The Incident Command System title for individuals responsible for management of
functional Sections: Operations, Planning, Logistics, Finance/Administration, and
Intelligence/Investigations (if established as a separate Section).
136 National Incident Management System December 2008
GLOSSARY OF KEY TERMS
Command: The act of directing, ordering, or controlling by virtue of explicit statutory,
regulatory, or delegated authority.
Command Staff: The staff who report directly to the Incident Commander, including the
Public Information Officer, Safety Officer, Liaison Officer, and other positions as required.
They may have an assistant or assistants, as needed.
Common Operating Picture: An overview of an incident by all relevant parties that
provides incident information enabling the Incident Commander/Unified Command and any
supporting agencies and organizations to make effective, consistent, and timely decisions.
Common Terminology: Normally used words and phrases—avoiding the use of different
words/phrases for same concepts—to ensure consistency and to allow diverse incident
management and support organizations to work together across a wide variety of incident
management functions and hazard scenarios.
Communications: The process of transmission of information through verbal, written, or
symbolic means.
Communications/Dispatch Center: Agency or interagency dispatch centers, 911 call
centers, emergency control or command dispatch centers, or any naming convention given
to the facility and staff that handles emergency calls from the public and communication
with emergency management/response personnel. The center can serve as a primary
coordination and support element of the Multiagency Coordination System(s) (MACS) for an
incident until other elements of the MACS are formally established.
Complex: Two or more individual incidents located in the same general area and assigned
to a single Incident Commander or to Unified Command.
Comprehensive Preparedness Guide 101: A guide designed to assist jurisdictions with
developing operations plans. It promotes a common understanding of the fundamentals of
planning and decisionmaking to help emergency planners examine a hazard and produce
integrated, coordinated, and synchronized plans.
Continuity of Government: A coordinated effort within the Federal Government’s
executive branch to ensure that National Essential Functions continue to be performed
during a catastrophic emergency (as defined in National Security Presidential Directive
51/Homeland Security Presidential Directive 20).
Continuity of Operations: An effort within individual organizations to ensure that Primary
Mission Essential Functions continue to be performed during a wide range of emergencies.
Cooperating Agency: An agency supplying assistance other than direct operational or
support functions or resources to the incident management effort.
Coordinate: To advance an analysis and exchange of information systematically among
principals who have or may have a need to know certain information to carry out specific
incident management responsibilities.
Corrective Actions: The implementation of procedures that are based on lessons learned
from actual incidents or from training and exercises.
National Incident Management System 137 December 2008
GLOSSARY OF KEY TERMS
Credentialing: The authentication and verification of the certification and identity of
designated incident managers and emergency responders.
Critical Infrastructure: Assets, systems, and networks, whether physical or virtual, so
vital to the United States that the incapacitation or destruction of such assets, systems, or
networks would have a debilitating impact on security, national economic security, national
public health or safety, or any combination of those matters.
Delegation of Authority: A statement provided to the Incident Commander by the
Agency Executive delegating authority and assigning responsibility. The delegation of
authority can include objectives, priorities, expectations, constraints, and other
considerations or guidelines, as needed. Many agencies require written delegation of
authority to be given to the Incident Commander prior to assuming command on larger
incidents. (Also known as Letter of Expectation.)
Demobilization: The orderly, safe, and efficient return of an incident resource to its
original location and status.
Department Operations Center (DOC): An Emergency Operations Center (EOC) specific
to a single department or agency. The focus of a DOC is on internal agency incident
management and response. DOCs are often linked to and, in most cases, are physically
represented in a combined agency EOC by authorized agent(s) for the department or
agency.
Deputy: A fully qualified individual who, in the absence of a superior, can be delegated the
authority to manage a functional operation or to perform a specific task. In some cases a
deputy can act as relief for a superior, and therefore must be fully qualified in the position.
Deputies generally can be assigned to the Incident Commander, General Staff, and Branch
Directors.
Director: The Incident Command System title for individuals responsible for supervision of
a Branch.
Dispatch: The ordered movement of a resource or resources to an assigned operational
mission, or an administrative move from one location to another.
Division: The organizational level having responsibility for operations within a defined
geographic area. Divisions are established when the number of resources exceeds the
manageable span of control of the Section Chief. See Group.
Emergency: Any incident, whether natural or manmade, that requires responsive action to
protect life or property. Under the Robert T. Stafford Disaster Relief and Emergency
Assistance Act, an emergency means any occasion or instance for which, in the
determination of the President, Federal assistance is needed to supplement State and local
efforts and capabilities to save lives and to protect property and public health and safety, or
to lessen or avert the threat of a catastrophe in any part of the United States.
Emergency Management Assistance Compact (EMAC): A congressionally ratified
organization that provides form and structure to interstate mutual aid. Through EMAC, a
disaster-affected State can request and receive assistance from other member States
quickly and efficiently, resolving two key issues up front: liability and reimbursement.
138 National Incident Management System December 2008
GLOSSARY OF KEY TERMS
Emergency Management/Response Personnel: Includes Federal, State, territorial,
tribal, substate regional, and local governments, NGOs, private sector-organizations, critical
infrastructure owners and operators, and all other organizations and individuals who assume
an emergency management role. (Also known as emergency responder.)
Emergency Operations Center (EOC): The physical location at which the coordination of
information and resources to support incident management (on-scene operations) activities
normally takes place. An EOC may be a temporary facility or may be located in a more
central or permanently established facility, perhaps at a higher level of organization within a
jurisdiction. EOCs may be organized by major functional disciplines (e.g., fire, law
enforcement, medical services), by jurisdiction (e.g., Federal, State, regional, tribal, city,
county), or by some combination thereof.
Emergency Operations Plan: An ongoing plan for responding to a wide variety of
potential hazards.
Emergency Public Information: Information that is disseminated primarily in
anticipation of or during an emergency. In addition to providing situational information to
the public, it frequently provides directive actions required to be taken by the general
public.
Evacuation: The organized, phased, and supervised withdrawal, dispersal, or removal of
civilians from dangerous or potentially dangerous areas, and their reception and care in safe
areas.
Event: See Planned Event.
Federal: Of or pertaining to the Federal Government of the United States of America.
Field Operations Guide: Durable pocket or desk guides that contain essential information
required to perform specific assignments or functions.
Finance/Administration Section: The Incident Command System Section responsible for
all administrative and financial considerations surrounding an incident.
Function: One of the five major activities in the Incident Command System: Command,
Operations, Planning, Logistics, and Finance/Administration. A sixth function,
Intelligence/Investigations, may be established, if required, to meet incident management
needs. The term function is also used when describing the activity involved (e.g., the
planning function).
General Staff: A group of incident management personnel organized according to function
and reporting to the Incident Commander. The General Staff normally consists of the
Operations Section Chief, Planning Section Chief, Logistics Section Chief, and
Finance/Administration Section Chief. An Intelligence/Investigations Chief may be
established, if required, to meet incident management needs.
Group: An organizational subdivision established to divide the incident management
structure into functional areas of operation. Groups are composed of resources assembled
to perform a special function not necessarily within a single geographic division. See
Division.
National Incident Management System 139 December 2008
GLOSSARY OF KEY TERMS
Hazard: Something that is potentially dangerous or harmful, often the root cause of an
unwanted outcome.
Incident: An occurrence, natural or manmade, that requires a response to protect life or
property. Incidents can, for example, include major disasters, emergencies, terrorist
attacks, terrorist threats, civil unrest, wildland and urban fires, floods, hazardous materials
spills, nuclear accidents, aircraft accidents, earthquakes, hurricanes, tornadoes, tropical
storms, tsunamis, war-related disasters, public health and medical emergencies, and other
occurrences requiring an emergency response.
Incident Action Plan: An oral or written plan containing general objectives reflecting the
overall strategy for managing an incident. It may include the identification of operational
resources and assignments. It may also include attachments that provide direction and
important information for management of the incident during one or more operational
periods.
Incident Base: The location at which primary Logistics functions for an incident are
coordinated and administered. There is only one Base per incident. (Incident name or
other designator will be added to the term Base.) The Incident Command Post may be co-
located with the Incident Base.
Incident Command: The Incident Command System organizational element responsible
for overall management of the incident and consisting of the Incident Commander (either
single or unified command structure) and any assigned supporting staff.
Incident Commander (IC): The individual responsible for all incident activities, including
the development of strategies and tactics and the ordering and release of resources. The IC
has overall authority and responsibility for conducting incident operations and is responsible
for the management of all incident operations at the incident site.
Incident Command Post (ICP): The field location where the primary functions are
performed. The ICP may be co-located with the Incident Base or other incident facilities.
Incident Command System (ICS): A standardized on-scene emergency management
construct specifically designed to provide an integrated organizational structure that reflects
the complexity and demands of single or multiple incidents, without being hindered by
jurisdictional boundaries. ICS is the combination of facilities, equipment, personnel,
procedures, and communications operating within a common organizational structure,
designed to aid in the management of resources during incidents. It is used for all kinds of
emergencies and is applicable to small as well as large and complex incidents. ICS is used
by various jurisdictions and functional agencies, both public and private, to organize field-
level incident management operations.
Incident Management: The broad spectrum of activities and organizations providing
effective and efficient operations, coordination, and support applied at all levels of
government, utilizing both governmental and nongovernmental resources to plan for,
respond to, and recover from an incident, regardless of cause, size, or complexity.
Incident Management Team (IMT): An Incident Commander and the appropriate
Command and General Staff personnel assigned to an incident. The level of training and
experience of the IMT members, coupled with the identified formal response requirements
and responsibilities of the IMT, are factors in determining “type,” or level, of IMT.
140 National Incident Management System December 2008
GLOSSARY OF KEY TERMS
Incident Objectives: Statements of guidance and direction needed to select appropriate
strategy(s) and 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. Incident objectives must be achievable and measurable, yet flexible
enough to allow strategic and tactical alternatives.
Information Management: The collection, organization, and control over the structure,
processing, and delivery of information from one or more sources and distribution to one or
more audiences who have a stake in that information.
Integrated Planning System: A system designed to provide common processes for
developing and integrating plans for the Federal Government to establish a comprehensive
approach to national planning in accordance with the Homeland Security Management
System as outlined in the National Strategy for Homeland Security.
Intelligence/Investigations: An organizational subset within ICS. Intelligence gathered
within the Intelligence/Investigations function is information that either leads to the
detection, prevention, apprehension, and prosecution of criminal activities—or the
individual(s) involved—including terrorist incidents or information that leads to
determination of the cause of a given incident (regardless of the source) such as public
health events or fires with unknown origins. This is different from the normal operational
and situational intelligence gathered and reported by the Planning Section.
Interoperability: Ability of systems, personnel, and equipment to provide and receive
functionality, data, information and/or services to and from other systems, personnel, and
equipment, between both public and private agencies, departments, and other
organizations, in a manner enabling them to operate effectively together. Allows
emergency management/response personnel and their affiliated organizations to
communicate within and across agencies and jurisdictions via voice, data, or video-on-
demand, in real time, when needed, and when authorized.
Job Aid: Checklist or other visual aid intended to ensure that specific steps of completing a
task or assignment are accomplished.
Joint Field Office (JFO): The primary Federal incident management field structure. The
JFO is a temporary Federal facility that provides a central location for the coordination of
Federal, State, tribal, and local governments and private-sector and nongovernmental
organizations with primary responsibility for response and recovery. The JFO structure is
organized, staffed, and managed in a manner consistent with National Incident Management
System principles. Although the JFO uses an Incident Command System structure, the JFO
does not manage on-scene operations. Instead, the JFO focuses on providing support to
on-scene efforts and conducting broader support operations that may extend beyond the
incident site.
Joint Information Center (JIC): A facility established to coordinate all incident-related
public information activities. It is the central point of contact for all news media. Public
information officials from all participating agencies should co-locate at the JIC.
Joint Information System (JIS): A structure that integrates incident information and
public affairs into a cohesive organization designed to provide consistent, coordinated,
accurate, accessible, timely, and complete information during crisis or incident operations.
The mission of the JIS is to provide a structure and system for developing and delivering
coordinated interagency messages; developing, recommending, and executing public
National Incident Management System 141 December 2008
GLOSSARY OF KEY TERMS
information plans and strategies on behalf of the Incident Commander (IC); advising the IC
concerning public affairs issues that could affect a response effort; and controlling rumors
and inaccurate information that could undermine public confidence in the emergency
response effort.
Jurisdiction: A range or sphere of authority. Public agencies have jurisdiction at an
incident related to their legal responsibilities and authority. Jurisdictional authority at an
incident can be political or geographical (e.g., Federal, State, tribal, local boundary lines) or
functional (e.g., law enforcement, public health).
Jurisdictional Agency: The agency having jurisdiction and responsibility for a specific
geographical area, or a mandated function.
Key Resource: Any publicly or privately controlled resource essential to the minimal
operations of the economy and government.
Letter of Expectation: See Delegation of Authority.
Liaison: A form of communication for establishing and maintaining mutual understanding
and cooperation.
Liaison Officer: A member of the Command Staff responsible for coordinating with
representatives from cooperating and assisting agencies or organizations.
Local Government: Public entities responsible for the security and welfare of a designated
area as established by law. A county, municipality, city, town, township, local public
authority, school district, special district, intrastate district, council of governments
(regardless of whether the council of governments is incorporated as a nonprofit corporation
under State law), regional or interstate government entity, or agency or instrumentality of a
local government; an Indian tribe or authorized tribal entity, or in Alaska a Native Village or
Alaska Regional Native Corporation; a rural community, unincorporated town or village, or
other public entity. See Section 2 (10), Homeland Security Act of 2002, Pub. L. 107-296,
116 Stat. 2135 (2002).
Logistics: The process and procedure for providing resources and other services to support
incident management.
Logistics Section: The Incident Command System Section responsible for providing
facilities, services, and material support for the incident.
Management by Objectives: A management approach that involves a five-step process
for achieving the incident goal. The Management by Objectives approach includes the
following: establishing overarching incident objectives; developing strategies based on
overarching incident objectives; developing and issuing assignments, plans, procedures,
and protocols; establishing specific, measurable tactics or tasks for various incident-
management functional activities and directing efforts to attain them, in support of defined
strategies; and documenting results to measure performance and facilitate corrective
action.
Manager: Individual within an Incident Command System organizational unit who is
assigned specific managerial responsibilities (e.g., Staging Area Manager or Camp
Manager).
142 National Incident Management System December 2008
GLOSSARY OF KEY TERMS
Mitigation: Activities providing a critical foundation in the effort to reduce the loss of life
and property from natural and/or manmade disasters by avoiding or lessening the impact of
a disaster and providing value to the public by creating safer communities. Mitigation seeks
to fix the cycle of disaster damage, reconstruction, and repeated damage. These activities
or actions, in most cases, will have a long-term sustained effect.
Mobilization: The process and procedures used by all organizations—Federal, State, tribal,
and local—for activating, assembling, and transporting all resources that have been
requested to respond to or support an incident.
Mobilization Guide: Reference document used by organizations outlining agreements,
processes, and procedures used by all participating agencies/organizations for activating,
assembling, and transporting resources.
Multiagency Coordination (MAC) Group: A group of administrators or executives, or
their appointed representatives, who are typically authorized to commit agency resources
and funds. A MAC Group can provide coordinated decisionmaking and resource allocation
among cooperating agencies, and may establish the priorities among incidents, harmonize
agency policies, and provide strategic guidance and direction to support incident
management activities. MAC Groups may also be known as multiagency committees,
emergency management committees, or as otherwise defined by the Multiagency
Coordination System.
Multiagency Coordination System (MACS): A system that provides the architecture to
support coordination for incident prioritization, critical resource allocation, communications
systems integration, and information coordination. MACS assist agencies and organizations
responding to an incident. The elements of a MACS include facilities, equipment, personnel,
procedures, and communications. Two of the most commonly used elements are
Emergency Operations Centers and MAC Groups.
Multijurisdictional Incident: An incident requiring action from multiple agencies that
each have jurisdiction to manage certain aspects of an incident. In the Incident Command
System, these incidents will be managed under a Unified Command.
Mutual Aid Agreement or Assistance Agreement: Written or oral agreement between
and among agencies/organizations and/or jurisdictions that provides a mechanism to
quickly obtain emergency assistance in the form of personnel, equipment, materials, and
other associated services. The primary objective is to facilitate rapid, short-term
deployment of emergency support prior to, during, and/or after an incident.
National: Of a nationwide character, including the Federal, State, tribal, and local aspects
of governance and policy.
National Essential Functions: A subset of government functions that are necessary to
lead and sustain the Nation during a catastrophic emergency and that, therefore, must be
supported through continuity of operations and continuity of government capabilities.
National Incident Management System: A set of principles that provides a systematic,
proactive approach guiding government agencies at all levels, nongovernmental
organizations, and the private sector to work seamlessly to prevent, protect against,
respond to, recover from, and mitigate the effects of incidents, regardless of cause, size,
location, or complexity, in order to reduce the loss of life or property and harm to the
environment.
National Incident Management System 143 December 2008
GLOSSARY OF KEY TERMS
National Response Framework: A guide to how the Nation conducts all-hazards
response.
Nongovernmental Organization (NGO): An entity with an association that is based on
interests of its members, individuals, or institutions. It is not created by a government, but
it may work cooperatively with government. Such organizations serve a public purpose, not
a private benefit. Examples of NGOs include faith-based charity organizations and the
American Red Cross. NGOs, including voluntary and faith-based groups, provide relief
services to sustain life, reduce physical and emotional distress, and promote the recovery of
disaster victims. Often these groups provide specialized services that help individuals with
disabilities. NGOs and voluntary organizations play a major role in assisting emergency
managers before, during, and after an emergency.
Officer: The Incident Command System title for a person responsible for one of the
Command Staff positions of Safety, Liaison, and Public Information.
Operational Period: The time scheduled for executing a given set of operation actions, as
specified in the Incident Action Plan. Operational periods can be of various lengths,
although usually they last 12 to 24 hours.
Operations Section: The Incident Command System (ICS) Section responsible for all
tactical incident operations and implementation of the Incident Action Plan. In ICS, the
Operations Section normally includes subordinate Branches, Divisions, and/or Groups.
Organization: Any association or group of persons with like objectives. Examples include,
but are not limited to, governmental departments and agencies, nongovernmental
organizations, and the private sector.
Personal Responsibility: The obligation to be accountable for one’s actions.
Personnel Accountability: The ability to account for the location and welfare of incident
personnel. It is accomplished when supervisors ensure that Incident Command System
principles and processes are functional and that personnel are working within established
incident management guidelines.
Plain Language: Communication that can be understood by the intended audience and
meets the purpose of the communicator. For the purpose of the National Incident
Management System, plain language is designed to eliminate or limit the use of codes and
acronyms, as appropriate, during incident response involving more than a single agency.
Planned Event: A scheduled nonemergency activity (e.g., sporting event, concert, parade,
etc.).
Planning Meeting: A meeting held as needed before and throughout the duration of an
incident to select specific strategies and tactics for incident control operations and for
service and support planning. For larger incidents, the Planning Meeting is a major element
in the development of the Incident Action Plan.
Planning Section: The Incident Command System Section responsible for the collection,
evaluation, and dissemination of operational information related to the incident, and for the
preparation and documentation of the Incident Action Plan. This Section also maintains
information on the current and forecasted situation and on the status of resources assigned
to the incident.
144 National Incident Management System December 2008
GLOSSARY OF KEY TERMS
Portability: An approach that facilitates the interaction of systems that are normally
distinct. Portability of radio technologies, protocols, and frequencies among emergency
management/response personnel will allow for the successful and efficient integration,
transport, and deployment of communications systems when necessary. Portability includes
the standardized assignment of radio channels across jurisdictions, which allows responders
to participate in an incident outside their jurisdiction and still use familiar equipment.
Pre-Positioned Resource: A resource moved to an area near the expected incident site in
response to anticipated resource needs.
Preparedness: A continuous cycle of planning, organizing, training, equipping, exercising,
evaluating, and taking corrective action in an effort to ensure effective coordination during
incident response. Within the National Incident Management System, preparedness focuses
on the following elements: planning; procedures and protocols; training and exercises;
personnel qualification and certification; and equipment certification.
Preparedness Organization: An organization that provides coordination for emergency
management and incident response activities before a potential incident. These
organizations range from groups of individuals to small committees to large standing
organizations that represent a wide variety of committees, planning groups, and other
organizations (e.g., Citizen Corps, Local Emergency Planning Committees, Critical
Infrastructure Sector Coordinating Councils).
Prevention: Actions to avoid an incident or to intervene to stop an incident from occurring.
Prevention involves actions to protect lives and property. It involves applying intelligence
and other information to a range of activities that may include such countermeasures as
deterrence operations; heightened inspections; improved surveillance and security
operations; investigations to determine the full nature and source of the threat; public
health and agricultural surveillance and testing processes; immunizations, isolation, or
quarantine; and, as appropriate, specific law enforcement operations aimed at deterring,
preempting, interdicting, or disrupting illegal activity and apprehending potential
perpetrators and bringing them to justice.
Primary Mission Essential Functions: Government functions that must be performed in
order to support or implement the performance of National Essential Functions before,
during, and in the aftermath of an emergency.
Private Sector: Organizations and individuals that are not part of any governmental
structure. The private sector includes for-profit and not-for-profit organizations, formal and
informal structures, commerce, and industry.
Protocol: A set of established guidelines for actions (which may be designated by
individuals, teams, functions, or capabilities) under various specified conditions.
Public Information: Processes, procedures, and systems for communicating timely,
accurate, and accessible information on an incident’s cause, size, and current situation;
resources committed; and other matters of general interest to the public, responders, and
additional stakeholders (both directly affected and indirectly affected).
Public Information Officer: A member of the Command Staff responsible for interfacing
with the public and media and/or with other agencies with incident-related information
requirements.
National Incident Management System 145 December 2008
GLOSSARY OF KEY TERMS
Publications Management: Subsystem that manages the development, publication
control, publication supply, and distribution of National Incident Management System
materials.
Recovery: The development, coordination, and execution of service- and site-restoration
plans; the reconstitution of government operations and services; individual, private-sector,
nongovernmental, and public assistance programs to provide housing and to promote
restoration; long-term care and treatment of affected persons; additional measures for
social, political, environmental, and economic restoration; evaluation of the incident to
identify lessons learned; postincident reporting; and development of initiatives to mitigate
the effects of future incidents.
Recovery Plan: A plan developed to restore an affected area or community.
Reimbursement: A mechanism to recoup funds expended for incident-specific activities.
Resource Management: A system for identifying available resources at all jurisdictional
levels to enable timely, efficient, and unimpeded access to resources needed to prepare for,
respond to, or recover from an incident. Resource management under the National Incident
Management System includes mutual aid agreements and assistance agreements; the use
of special Federal, State, tribal, and local teams; and resource mobilization protocols.
Resource Tracking: A standardized, integrated process conducted prior to, during, and
after an incident by all emergency management/response personnel and their associated
organizations.
Resources: Personnel and major items of equipment, supplies, and facilities available or
potentially available for assignment to incident operations and for which status is
maintained. Resources are described by kind and type and may be used in operational
support or supervisory capacities at an incident or at an Emergency Operations Center.
Response: Activities that address the short-term, direct effects of an incident. Response
includes immediate actions to save lives, protect property, and meet basic human needs.
Response also includes the execution of emergency operations plans and of mitigation
activities designed to limit the loss of life, personal injury, property damage, and other
unfavorable outcomes. As indicated by the situation, response activities include applying
intelligence and other information to lessen the effects or consequences of an incident;
increased security operations; continuing investigations into nature and source of the
threat; ongoing public health and agricultural surveillance and testing processes;
immunizations, isolation, or quarantine; and specific law enforcement operations aimed at
preempting, interdicting, or disrupting illegal activity, and apprehending actual perpetrators
and bringing them to justice.
Retrograde: To return resources back to their original location.
Safety Officer: A member of the Command Staff responsible for monitoring incident
operations and advising the Incident Commander on all matters relating to operational
safety, including the health and safety of emergency responder personnel.
Section: The Incident Command System organizational level having responsibility for a
major functional area of incident management (e.g., Operations, Planning, Logistics,
Finance/Administration, and Intelligence/Investigations (if established)). The Section is
organizationally situated between the Branch and the Incident Command.
146 National Incident Management System December 2008
GLOSSARY OF KEY TERMS
Single Resource: An individual, a piece of equipment and its personnel complement, or a
crew/team of individuals with an identified work supervisor that can be used on an incident.
Situation Report: Confirmed or verified information regarding the specific details relating
to an incident.
Span of Control: The number of resources for which a supervisor is responsible, usually
expressed as the ratio of supervisors to individuals. Under the National Incident
Management System, an appropriate span of control is between 1:3 and 1:7, with optimal
being 1:5, or between 1:8 and 1:10 for many large-scale law enforcement operations.
Special Needs Population: A population whose members may have additional needs
before, during, and after an incident in functional areas, including but not limited to:
maintaining independence, communication, transportation, supervision, and medical care.
Individuals in need of additional response assistance may include those who have
disabilities; who live in institutionalized settings; who are elderly; who are children; who are
from diverse cultures, who have limited English proficiency, or who are non-English-
speaking; or who are transportation disadvantaged.
Staging Area: Temporary location for available resources. A Staging Area can be any
location in which personnel, supplies, and equipment can be temporarily housed or parked
while awaiting operational assignment.
Standard Operating Guidelines: A set of instructions having the force of a directive,
covering those features of operations which lend themselves to a definite or standardized
procedure without loss of effectiveness.
Standard Operating Procedure: A complete reference document or an operations
manual that provides the purpose, authorities, duration, and details for the preferred
method of performing a single function or a number of interrelated functions in a uniform
manner.
State: When capitalized, refers to any State of the United States, the District of Columbia,
the Commonwealth of Puerto Rico, the Virgin Islands, Guam, American Samoa, the
Commonwealth of the Northern Mariana Islands, and any possession of the United States.
See Section 2 (14), Homeland Security Act of 2002, Pub. L. 107-296, 116 Stat. 2135
(2002).
Status Report: Information specifically related to the status of resources (e.g., the
availability or assignment of resources).
Strategy: The general plan or direction selected to accomplish incident objectives.
Strike Team: A set number of resources of the same kind and type that have an
established minimum number of personnel, common communications, and a leader.
Substate Region: A grouping of jurisdictions, counties, and/or localities within a State
brought together for specified purposes (e.g., homeland security, education, public health),
usually containing a governance structure.
Supervisor: The Incident Command System title for an individual responsible for a Division
or Group.
National Incident Management System 147 December 2008
GLOSSARY OF KEY TERMS
Supporting Agency: An agency that provides support and/or resource assistance to
another agency. See Assisting Agency.
Supporting Technology: Any technology that may be used to support the National
Incident Management System, such as orthophoto mapping, remote automatic weather
stations, infrared technology, or communications.
System: Any combination of facilities, equipment, personnel, processes, procedures, and
communications integrated for a specific purpose.
Tactics: The deployment and directing of resources on an incident to accomplish the
objectives designated by strategy.
Task Force: Any combination of resources assembled to support a specific mission or
operational need. All resource elements within a Task Force must have common
communications and a designated leader.
Technical Specialist: Person with special skills that can be used anywhere within the
Incident Command System organization. No minimum qualifications are prescribed, 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.
Technology Standards: Conditions, guidelines, or characteristics that may be required to
facilitate the interoperability and compatibility of major systems across jurisdictional,
geographic, and functional lines.
Technology Support: Assistance that facilitates incident operations and sustains the
research and development programs that underpin the long-term investment in the Nation’s
future incident management capabilities.
Terrorism: As defined in the Homeland Security Act of 2002, activity that involves an act
that is dangerous to human life or potentially destructive of critical infrastructure or key
resources; is a violation of the criminal laws of the United States or of any State or other
subdivision of the United States; and appears to be intended to intimidate or coerce a
civilian population, to influence the policy of a government by intimidation or coercion, or to
affect the conduct of a government by mass destruction, assassination, or kidnapping.
Threat: Natural or manmade occurrence, individual, entity, or action that has or indicates
the potential to harm life, information, operations, the environment, and/or property.
Tools: Those instruments and capabilities that allow for the professional performance of
tasks, such as information systems, agreements, doctrine, capabilities, and legislative
authorities.
Tribal: Referring to any Indian tribe, band, nation, or other organized group or community,
including any Alaskan Native Village as defined in or established pursuant to the Alaskan
Native Claims Settlement Act (85 Stat. 688) [43 U.S.C.A. and 1601 et seq.], that is
recognized as eligible for the special programs and services provided by the United States to
Indians because of their status as Indians.
148 National Incident Management System December 2008
GLOSSARY OF KEY TERMS
National Incident Management System 149
Type: An Incident Command System resource classification that refers to capability. Type
1 is generally considered to be more capable than Types 2, 3, or 4, respectively, because of
size, power, capacity, or (in the case of Incident Management Teams) experience and
qualifications.
Unified Approach: The integration of resource management, communications and
information management, and command and management in order to form an effective
system.
Unified Area Command: Version of command established when incidents under an Area
Command are multijurisdictional. See Area Command.
Unified Command (UC): An Incident Command System application used when more than
one agency has incident jurisdiction or when incidents cross political jurisdictions. Agencies
work together through the designated members of the UC, often the senior persons from
agencies and/or disciplines participating in the UC, to establish a common set of objectives
and strategies and a single Incident Action Plan.
Unit: The organizational element with functional responsibility for a specific incident
planning, logistics, or finance/administration activity.
Unit Leader: The individual in charge of managing Units within an Incident Command
System (ICS) functional Section. The Unit can be staffed by a number of support personnel
providing a wide range of services. Some of the support positions are preestablished within
ICS (e.g., Base/Camp Manager), but many others will be assigned as technical specialists.
Unity of Command: An Incident Command System principle stating that each individual
involved in incident operations will be assigned to only one supervisor.
Vital Records: The essential agency records that are needed to meet operational
responsibilities under national security emergencies or other emergency or disaster
conditions (emergency operating records), or to protect the legal and financial rights of the
government and those affected by government activities (legal and financial rights records).
Volunteer: For purposes of the National Incident Management System, any individual
accepted to perform services by the lead agency (which has authority to accept volunteer
services) when the individual performs services without promise, expectation, or receipt of
compensation for services performed. See 16 U.S.C. 742f(c) and 29 CFR 553.101.
December 2008
This page intentionally left blank.
150 National Incident Management System December 2008
ACRONYMS
CIKR Critical Infrastructure and Key Resources
CPG Comprehensive Preparedness Guide
DHS Department of Homeland Security
DOC Department Operations Center
EMAC Emergency Management Assistance Compact
EMS Emergency Medical Services
EMT Emergency Medical Technician
EOC Emergency Operations Center
HAZMAT Hazardous Material
HSPD-5 Homeland Security Presidential Directive 5, “Management of Domestic
Incidents”
HSPD-7 Homeland Security Presidential Directive 7, “Critical Infrastructure
Identification, Prioritization, and Protection”
HSPD-8 Homeland Security Presidential Directive 8, “National Preparedness”
IAP Incident Action Plan
IC Incident Commander
ICP Incident Command Post
ICS Incident Command System
IMT Incident Management Team
IPS Integrated Planning System
JIC Joint Information Center
JIS Joint Information System
MAC Multiagency Coordination
MACS Multiagency Coordination System
NFPA National Fire Protection Association
NGO Nongovernmental Organization
NIC National Integration Center
NIMS National Incident Management System
NIPP National Infrastructure Protection Plan
NRF National Response Framework
NSPD National Security Presidential Directive
R&D Research and Development
SDO Standards Development Organization
SOP Standard Operating Procedure
TCL Target Capabilities List
UC Unified Command
National Incident Management System 151 December 2008
152 National Incident Management System
This page intentionally left blank.
December 2008
INDEX
Page numbers in italics refer to figures and
tables.
A
Agreements. See also specific types of
agreements
communications and information
management and, 24, 26, 28, 109
Multiagency Coordination Systems and, 64,
66-68
preparedness and, 10, 12-14, 16, 18-20
resource management and, 31-33, 36,
38-39, 113
Air Operations Branch, 101-102, 111, 124
Appointed officials. See Elected and appointed
officials
Area Command, 115-117, 135
Area Commanders, 116
B
Badging, 136
credentialing and, 40
Branches, 55, 61, 91, 97, 107, 136
C
Camps, 48, 108, 110, 119, 136
Clear text. See Plain language
Command and Management, 8-9, 45-74
Command Staff
legal counsel, 52, 95
Liaison Officers, 51, 95, 142
medical advisors, 53, 95
Public Information Officers, 52, 70, 74,
92-93, 145
Safety Officers, 51-52, 91-94, 146
special needs advisors, 53
staff positions, 51-53, 92, 95, 137
Common operating picture, 7, 23-24, 26, 137
Common terminology, 28-29, 46, 89, 109, 137
Communications and Information
Management, 7, 9, 17, 23-30
Communications Unit, 58, 109, 124
Continuity of government planning, 14, 137
Continuity of operations planning, 14, 16, 137
Cost Unit, 59, 114
Credentialing, 138
badging and, 40
Critical infrastructure identification,
prioritization, and protection. See
Homeland Security Presidential
Directive 7
D
Demobilization, 38, 138. See also Incident
Demobilization Plan
Demobilization Unit, 56, 104
Department of Homeland Security
Science and Technology Directorate, 8
Divisions and groups, 55, 97, 99-101, 138,
139
Documentation Unit, 56, 104
E
Elected and appointed officials, 13-14, 69
functions during an incident, 14–15
Emergency Operations Centers, 15, 19, 23, 31,
66, 139
Environmental Unit, 105
Equipment, 21, 23, 26-27, 35, 38-42, 65, 81
Exercises, 19-20, 77-78
F
Facilities Unit, 58, 108, 111
Field operations guide, 19, 139
Finance/Administration Section, 54, 58-59,
113, 134, 139
Flexibility, 6-7
Food Unit, 63, 93, 110-111
Functional groups, 55, 100-101, 125
G
General Staff, 49, 53-61, 91, 139
Finance/Administration Section, 54, 58-59,
113, 134, 139
Intelligence/Investigations Function, 59-61,
141
Logistics Section, 57-58, 107-111, 133, 142
Operations Section, 54-55, 60, 97-102, 144
Planning Section, 55-57, 103-106, 111,
114, 124-127, 133, 144
Geographical divisions, 100, 126
Geospatial information, 28
Ground Support Unit, 58, 108-109
Groups. See Divisions and groups
National Incident Management System 153 December 2008
INDEX
H
Homeland Security Presidential Directive 5
National Integration Center establishment
and responsibilities, 8, 75
provisions, 3, 10
Homeland Security Presidential Directive 7
provisions, 10-11
Homeland Security Presidential Directive 8
provisions, 11
I
ICS Forms
Assignment List (ICS 204), 129
Hazard Risk Analysis (ICS 215A), 130
Incident Briefing (ICS 201), 129
Incident Check-In List (ICS 211), 130
Incident Objectives (ICS 202), 129
Incident Radio Communications Plan
(ICS 205), 130
Incident Status Summary (ICS 209), 130
Medical Plan (ICS 206), 130
Organization Assignment List (ICS 203),
129
Operational Planning Worksheet (ICS 215),
130
Incident Action Plan, 47, 140
establishing incident objectives and
strategy, 122
executing, evaluating, and revising the
plan, 122
operational period planning cycle, 123
phases of, 121
Planning Meeting, 125-128
Planning Section and, 121-122
preparing and disseminating the plan, 122
sample outline for, 57
steps for completing, reviewing and
distributing, 124
Incident Base, 108, 119, 140
Incident Command, 49-51, 140
Incident Command Post, 108, 119, 140
Incident Command System, 45-63, 89, 140
Incident Commanders, 49, 51, 91-92, 140
Incident Complex, 61-62
Incident Demobilization Plan, 38, 104
Incident information
reporting and documentation procedures,
27-28
situation reports, 27
status reports, 27
Incident Management Teams, 49, 61, 115, 140
Information management, 7, 23-30, 141
Intelligence/Investigations function, 59-61 141
Interoperability, 79, 141
Interstate mutual aid agreements, 18
Investigations. See Intelligence/Investigations
function
J
Job aid, 19, 78, 141
Joint Information Centers, 29, 52, 71-72, 141
Joint Information System, 29, 70-71, 141
L
Legal counsel, 52, 95, 105
Liaison Officers, 51, 95, 142
Local mutual aid agreements, 12, 18
Logistics Section, 57-58, 107-111, 133, 142
M
MAC Groups, 62-63, 66-69, 143
Maintenance. See Command and
Management; Ongoing management
and maintenance
Management information systems
resource management, 34
Medical advisors, 53, 95
Medical Unit, 58, 111
Memorandums of agreement, 15, 19
Memorandums of understanding, 19
Mitigation, 21-22, 143
Mobilization, 31, 34, 37, 143
Mobilization guide, 19, 143
Multiagency committees. See MAC Groups
Multiagency Coordination Systems, 13, 31, 37,
45, 64-69, 143
Mutual aid agreements, 10, 12-14, 18, 143
N
National Integration Center, 28, 35, 75-77
National Planning Scenarios, 11
National Preparedness Guidelines, 11
National Response Framework, 1, 3, 11-12,
32, 144
NFPA 1561: “Standard on Emergency Services
Incident Management System,” 77
NFPA 1600: “Standard on Disaster/Emergency
Management and Business Continuity
Programs,” 77
O
Ongoing management and maintenance, 8,
75-81
Operational plans, 20
154 National Incident Management System December 2008
INDEX
National Incident Management System 155
Operations Section, 54-55, 60, 97-102, 144
Ordering procedures, 34, 37
P
Personnel qualification and certification, 20-21,
40
Plain language, 29, 109, 144
Planning, 16-19, 25-26, 32, 47, 55-57, 74, 80
Planning Meeting, 103, 109, 121-124, 125-128
Planning Section, 55-57, 103-106, 111, 114,
124-127, 133, 144
Preparedness, 7, 9-22, 145
Preparedness planning, 16, 48
Private sector, 3-5, 7, 10, 15-16, 18, 19-20,
145
Procedural documents, 19
Procurement Unit, 59, 113-114
Protocols, 19, 34, 66
Public Information, 52, 67, 70-74, 145
Public Information Officers, 52, 70, 74, 92-93,
145
R
Recovery of resources, 31
Redundancy, 7, 23, 24-25
Regional mutual aid agreements, 18
Research and development, 76
strategic R&D planning, 80
Resiliency, 7, 16, 23, 24-25
Resource management, 31-43, 48, 146
Resources Unit, 55, 103-104
S
Safety Officers, 51-52, 91-94, 146
Scalability, 24, 64
Secretary of Homeland Security, 3, 8, 75
Security issues, 30
Situation reports, 27, 30, 68, 104, 125, 147
Situation Unit, 56, 104, 116
Special needs advisors, 53
Staging Areas, 48, 53, 119, 147
Standard operating procedure manual, 19
Standardization, 27, 32
Statewide/intrastate mutual aid agreements,
18
Status reports, 27, 55, 147
Stockpiling, 33
Strategic plans, 22
Strike Teams, 55, 101, 147
Supply Unit, 58, 108, 111
Supporting technologies, 8, 79-81, 148
T
Tactical communications, 25
Target Capabilities List, 11
Task Forces, 55, 101, 148
Technical specialists, 56, 105-106, 148
Technical standards support, 80-81
Terminology. See Common terminology
Terrorism, 5, 148
Incident Command System and, 45-46, 53,
62, 67, 95
Time Unit, 59, 113
Training, 13, 19-20, 26-27, 78, 81
U
Unified Command, 9, 49-51, 65, 72, 149
V
Volunteers, 40-41, 149
credentialing, 41
December 2008
This page intentionally left blank.
156 National Incident Management System December 2008
CONTENTS
PREFACE
INTRODUCTION AND OVERVIEW
COMPONENT I: PREPAREDNESS
COMPONENT II: COMMUNICATIONS AND INFORMATION MANAGEMENT
COMPONENT III: RESOURCE MANAGEMENT
COMPONENT IV: COMMAND AND MANAGEMENT
COMPONENT V: ONGOING MANAGEMENT AND MAINTENANCE
APPENDIX A: EXAMPLES OF RESOURCES FOR WHICH TYPING HAS BEEN COMPLETED
APPENDIX B: INCIDENT COMMAND SYSTEM
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
GLOSSARY OF KEY TERMS
ACRONYMS
INDEX