The Model Incident Command System Series: Command or Combat?
STRATEGY AND TACTICS
For any big business to be successful, organization and management must be established long before the cornerstone is laid, and then periodically adjusted and tailored to fit the developing needs of the corporation.
For any emergency operation to be successful, command must be established early in the incident, beginning with the highest ranking, first-arriving officer. Establishing command early in an incident allows us to strategically address the changing and/or intensifying situation by properly coordinating and directing our tactical forces.
Unless someone takes immediate command, “free enterprise” operations usually result, with each company taking on tasks that they feel are important, ignoring the entire picture. As a result, seemingly unimportant yet crucial tasks are often undone.
In this tenth article on the National Fire Academy’s model incident command system, we will discuss the need for early establishment of command and how the incident command system can be tailored to the progressing emergency situation.
The incident commander, within this system, is responsible for the management of all operations as well as the direction, control, and coordination of all resources at the scene. The system will provide for a well-organized, coordinated, effective, and streamlined response to all types of emergencies. The incident command system is a combination of personnel, equipment, procedures, and communications operating within a common organizational structure.
The model incident command system can be utilized at every incident, since it is based on the five basic functions that take place at every incident whether only a single pumping engine or a multiple unit (or agency) response is required:
- command
- planning
- operations
- logistics
- finance.
Now, let’s look at a typical response to a structure fire. Assume that the response will be two pumpers and one ladder truck. When the units arrive, they find fire involving a second-floor bedroom of an unattached house.
The captain of Pumper-1 announces his arrival to the communications office, assumes command, and conducts a size-up. He gives a brief initial report and then directs Pumper-2 to supply Pumper-1 with water. Ladder-1 is assigned to force entry, ventilate, ladder, and search the building. When extinguishment is accomplished, the captain of Pumper-1 releases Pumper-2 and Ladder-1.
A review of the operations reveals that the five major functions were fulfilled. The captain took command and let everyone know who was in charge. Based on the size-up, the captain developed the plan, directed operations, provided logistical support by having Pumper-2 supply water, and conserved the department’s financial resources by releasing Pumper-2 when it was no longer needed.
Bascially, this was an uncomplicated operation, making some of the captain’s decisions easier. Take, for example, his first key choice. Should he establish a formal command post and call for more help? Or did he have ample resources (equipment, manpower) at his disposal to effectively fight the fire? While it is extremely difficult to fight a fire and command individual companies at the same time, the captain’s size-up indicated to him that he would be able to maintain an adequate span of control over the operations necessary for extinguishment. Had this been a more complicated incident (i.e., exposure problems, row houses, multiple life hazards, etc.), such a decision would have been much more difficult to make.
The choice to “command or combat” is governed by several factors:
- Will the immediate attack either extinguish or confine the fire?
- Will the immediate attack retard the growth of the fire until other companies can control the fire?
- Is the fire so far advanced that it requires intricate coordination of numerous engine and truck comparties? Or are the attack efforts going to be futile?
- Is the senior officer (battalion or deputy chief) close? If so, I will only have to command and combat for a short period of time.
- Is the fire of such a nature that I can give a few orders and then attack the fire?
If the fire is of such magnitude that the on-scene forces will be overwhelmed, then immediate assistance must be called. Once additional assistance is called, you must start planning where and how you are going to use the additional resources. Also, when they arrive at the incident scene, someone must be available to direct them and give individual assignments, otherwise they will most likely choose their own objectives and “freelance.” This will result in your objectives not being met, loss of accountability, unavailability of companies, opposing hoselines, possible in-‘ juries, and greater property loss.
The reason the captain could control the units was because there was a small span of control. Span of control in the incident command system is set at an average of five subordinates per supervisor. As the incident commander recognizes that his span of control is becoming saturated within the incident command system, functions must be delegated to other personnel in order for effective management to continue.
The captain also made his objectives and the companies’ responsibilities clear, thereby reducing confusion.
The best way of achieving coordination of resources in any organization is through the chain of command; and in the fire service, the incident command system provides this chain of command. The incident commander is the boss and the individual responsible for all the functions being completed. As the incident commander’s span of control is exceeded, he delegates some of his functional responsibilities to other individuals. These individuals manage and supervise their sections and report to, and coordinate with the incident commander, eliminating any confusion as to who is responsible for what. It cannot be emphasized enough that the lack of a command system or the willing violation of the installed command system will cause conflicts, misunderstandings, and confusion that may well result in lost time, increased property damage, injuries, or deaths. Freelancing by companies is a prime example of a breakdown of an incident.
The model incident command system is not difficult to learn and implement and provides a framework for effective operations. It uses standard procedures and terms and can improve resource utilization and reduce the dangers to firefighters through better control, coordination, and cooperation among all units.
The model incident command system is designed to start developing when the incident occurs, and the structure of the system can be expanded, depending on the changing conditions.
Let’s now look at the entire incident command system’s organizational chart (see figure on this page). Two things must be remembered to prevent the size of the system from overwhelming you:
First, the individual units that are shown on the chart are not necessarily individual people. They are functions or jobs that may have to be performed, depending on the size of the incident. One person may be able to accomplish all of the jobs assigned to a section. If a particular area requires more attention, a sub-unit of that section would be established, such as at an expanding incident where the span of control becomes too broad.
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Using Figure 1, let’s examine the expanded system. In this example, two sections have been established, operations and logistics. The incident commander has also assigned an information officer to deal with the media.
In the operations section, we have one individual, the operations chief, in charge of two divisions, A and B. Each division has a division chief and three units assigned to it. In this manner, the span of control of the operations chief is actually two division chiefs. These chiefs, in turn, have a span of control of three units each. This avoids the confusion of having six units reporting to one supervisor and overwhelming him with information.
In the logistics section, we would probably need only one individual who could handle communications and the ordering of necessary supplies, special equipment, extinguishing agents, etc. Staging would be under the control of logistics.
Secondly, the system was designed to assist you in controlling the incident. Some people feel that they must use the whole chart at every incident. This is wrong. It is designed to work for you; not to have you work for it. Use only what is needed. If the incident commander only needs one section, say operations, then that is all that should be set up. Expanding it beyond what is necessary will only waste resources and add confusion.
While the incident command system was designed for extended wildland fire operations, many portions are applicable for structure fires and other incidents. For example, under the operations section, helicopters have been used for equipment drop offs and victim removal in structural fire situations. Medical, communications, and supply (covered in the logistics section) are common needs at all incidents. In the planning section, you must know the status of your resources and understand the situation as it unfolds. You must know what you have available and where units are working. At times, technical specialists are needed to provide the incident commander with sufficient data to make good decisions.
Exposure designations
Establishing the individual sections as the need arises enables the incident commander to organize the firefighting operation. By delegating certain duties to other personnel, the incident commander can spend the time necessary to analyze data and make better decisions.
To maintain a well-organized operation, the incident commander must coordinate incident scene operations; and resource management is part of this key function of coordination. When a secondor third-alarm assignment has been requested, who is going to track all of these units and coordinate their operations? These additional units will probably be assigned to protect exposures and hopefully to confine the fire to the area involved on arrival. When units are spread out in different exposures, there should be a means of identifying these exposures.
A model system that allows the incident commander to identify exterior exposures has been adapted from one used in a major city (see Figure 2). As one faces the front of the fire building, any exposure to one’s back is designated as Exposure 1. Exposures 2, 3, and 4 are seen clockwise around the fire building from this point. The building to the left of Exposure 2 is called Exposure 2/2. The same would take place for the other sides should there be additional exposures, i.e., 4/2, 4/3.
All members of your department, as well as mutual aid departments, should be familiar with and trained in the sectoring system before it is used, otherwise confusion and mismanagement at the scene will be the ultimate result. Remember, the fireground should not be the training ground.
Division designations
The next point that will assist the incident commander with coordination is the establishment of divisions. The incident should be divided up into manageable units. This will provide a systematic method for managing the entire incident, monitoring the location of personnel and equipment, and dividing the incident into sub-sections that will be under the direction of a subordinate officer. An incident can be divided geographicaliy, or by floors, or by functions.
Incoming resources are assigned to be under the command of a division supervisor to reduce the management task and span of control of the incident commander. It is important that units assigned to divisions report to and communicate directly with that division supervisor, not with the incident commander unless a life threatening condition exists or they cannot contact their division. You can imagine the confusion resulting with 20 or 30 units on the scene, each equipped with just one handi-talki and all reporting to the incident commander. How many messages do not get through, are not acknowledged, or are misunderstood? By going through their division supervisor, this situation is avoided.
Divisions are generally brought into play after the initial alarm. They are used at structure fires, high-rise fires, and wildland or other outdoor fires. The incident commander’s decision if and when to establish divisions usually depends on the complexity of the situation. Figures 3, 4, and 5 show three models that can be used to divide an incident into manageable units. Figure 3 allows for dividing the fire building and covering exposures. Division A would cover the front and Division B the rear. Divisions C and D would be in charge of their assigned exposures. Figure 4 shows a method of dividing a high-rise building by utilizing the floor numbers. For example, Division 7 would be the person in charge of the seventh floor. Figure 5 can be used for outside fires such as lumberyards, oil storage, wildland, etc. Outside fires can also be divided by natural breaks such as streams, roadways, etc. As you can see, the system will aid in organizing and coordinating the incident.
The incident command system is designed to be built from the top down, with responsibility for controlling/mitigating the emergency placed with the initial incident commander. The command system develops in a modular fashion based on the complexity of the incident. As the need exists, any or all of the individual sections can be developed. If necesasry, each section can have sub-sections established. The size of the system will depend on the manpower and logistics that the incident commander requires to effectively manage the incident.
To help clarify the different positions in the incident command system, we will give a brief explanation of the titles used, starting at the top and working down.
The command staff
The incident commander, of course, is ultimately responsible for all areas of the emergency operation. All of the command staff report directly to the incident commander.
Information officer is the individual responsible for dealing with the media. After clearing releases with the incident commander, the information officer continually keeps the media appraised of the incident. We have all witnessed the results of too many agencies releasing information that, at times, results in conflicting statements. Such information leads to lack of credibility with the public and may leave us open to public misunderstanding and in some cases sanctions.
Liaison officer is the point of contact for the police, Red Cross, Public Works Department, and any other cooperating emergency agencies.
Safety officer is responsible for monitoring and assessing hazardous and unsafe situations and developing measures for assuring personnel safety. The safety officer, supported by policy, should exercise emergency authority when necessary.
The general staff
After the command staff, the general staff is next in line.
Operations chief is responsible for the management of all tactical operations to accomplish the strategic goals of the incident commander. The operations officer briefs and assigns resources and, when needed, requests additional resources.
Planning chief assists the incident commander by preparing alternative strategies, keeping track of the resources and the situation as it unfolds. The planning officer evaluates this data and forms it into plans for the incident commander. Any technical specialists would report to the planning chief.
Logistics chief provides the necessary support (facilities, services, and equipment) to the operating units.
Finance chief is responsible for all the financial aspects of the incident, maintaining contact with private contractors, insuring that compensation claims are all filed, and records of claims established.
Each of the above section chiefs would activate and supervise subelements in their own sections as the need arises.
The general staff chiefs are referred to as section chiefs.
Once an officer is assigned to a section, such as plans, operations, logistics, etc., he then assumes the title of that position. He should no longer be referred to as Battalion-1 or Engine-1. In the incident command system, the name of the function that an individual is performing is his call sign.
The value of using the function name as a radio call sign can be seen when command is transferred from one officer to another. For example, the units initially are operating under a captain who is the incident commander. Within a short time, the battalion chief arrives and takes command. As the incident escalates, a deputy chief, then an assistant chief, and finally the chief of department assumes command.
The units operating at the scene would find it difficult to keep track of who is in charge at any given point in time. By using the function title “incident commander” or “command,” anyone, at any time, would be able to contact the person commanding the incident, regardless of who that was at any given moment. This assures the management principal of “unity of command.”
The same holds true for all the other positions. Fire scenes tend to be very fluid in the early stages. Sections can go through a number of command changes until the flow of in-coming ranking officers halts. Using the functional call sign reduces confusion and increases the probability that the radio message gets to the correct person.
Operations section
Next, let’s review the operations section sub-units.
Divisions are used to divide the incident into geographical areas or functional assignments. Divisions are usually assigned a letter designation such as Division A, B, C, or a functional title, such as salvage or vent division. This avoids confusion where departments have division chiefs as a normal response with a number designation. Each of your departments should decide OP which term to use, division or sector.
Groups are normally used to designate functional areas or assignments, such as salvage, rescue, ventilation, etc. The way to differentiate between divisions and groups is to understand that divisions are assigned to a specific floor or area, while a group, to perform its job, can cross boundary lines and operate in more than one division area. A unit assigned to perform rescue or ventilation of the entire building would be part of the rescue group or the ventilation group.
Planning section
Resources unit leader keeps track of all units responding, their assignments, and any changes in assignments.
Situation unit leader performs the function of displaying the current incident size and predicted escalation.
Technical unit (when technical personnel are required) advises the incident commander about how the incident affects or is effected by their individual technical specialty areas.
All of the units in the planning section report to the planning section chief who, in turn, relays the information to the incident commander.
Logistics section
The duties of the sub-units of the logistics section are to perform specific support functions.
Communications unit ensures the establishment of proper communication between sections, divisions, groups, etc. The unit relays vital information and requests to central communications, establishes and tracks needed command and tactical frequencies, and, if necessary, supplies additional radios or specialized communications equipment.
Medical unit provides the proper medical treatment of all civilians and operating personnel at the emergency scene. This unit also furnishes transportation for injured personnel and prepares the necessary reports.
Finance section
In the finance section, each sub-unit would fulfill its own function, such as documenting time, recording compensation claims, and tracking the use of specialized outside equipment ordered to the scene.
This section is only activated when the need for financial services is required. A prime example would be a major hazardous materials incident where the services of several outside agencies, contractors, and vendors would be required for containment, mitigation, and clean up. With his hands already full trying to protect life and property, the last thing that the incident commander needs is to haggle with a contractor over the price of a yard of sand.
This has been a very brief explanation of the incident command system’s organizational chart. There will very rarely be a need to establish all of these sections or units; however, if you are going to use the system, you must do certain things: You and all department members must understand and be familiar with the entire system. This requires extensive training and practice. If mutual aid departments are going to work with you, they too must be familiar with and understand the system.
In a future article, we will apply the incident command system to a large-scale incident and expand the system as the incident escalates. We will show you forms and checklists that can be used to assist the incident commander in meeting his responsibilities.
