The National Incident Management System: Rethinking Command and Control
An Army
is a collection of armed men obliged to obey one man.
Every
change in the rules which impairs the principle weakens the army.
-William
Tecumseh Sherman
Problems in the field do not improve until someone takes charge. From the
simplest radio call to a major terrorist incident, the situation doesnt move
from chaos to normalcy without a leader. Thinking back on your career you can
likely remember situations spiraling downward because a lack of leadership
caused poor communications, inconsistent missions and jeopardized safety.
Clearly, a law enforcement agencys response to an incident is greatly improved
by establishing strong leadership at the scene. Through real-life situations we
have learned hard lessons about tactical leadership concepts such as unified
command, span of control and the necessity of good followership. Sometimes, law
enforcement isnt the leader at the scene of an incident, but it almost always
part of the larger mission. By exploring how tactical command concepts have
developed and examining some of the key components of the state-of-the-art
response methodology we can improve our on-scene leadership skills.
Developing a national standard
In 1991, in
Oakland, California a wildfire devastated the East Bay Hills[i].
Before it was over, 3400 homes were destroyed; one police officer, one
firefighter and 25 civilians were killed. Although California had the Statewide
Fire and Rescue Mutual Aid System, the response of hundreds of first responders
(police, fire, medical and public utilities) was uncoordinated primarily because
they had different organizational structures and command systems. By 1993, in
response to the 1991 Oakland fire, the California Legislature mandated the use
of the Standardized Emergency Management System (SEMS) which
incorporates the Incident Command System (ICS)[ii].
In 1994,
the Federal
Emergency Management Agency (FEMA) adopted SEMS[iii]
as its command and control paradigm. Throughout the 1990s, many agencies, such
as the United States Coast Guard[iv],
began to adopt SEMS/ICS. The 9/11 Commission noted that the emergency response
to the World Trade Center (WTC) was much different from the response to the
Pentagon. In addition to the WTC first responders having a much more difficult
mission because the disaster occurred hundreds of feet above their heads, the
command and control response in New York was different than the response in
Washington.
Washington,
D.C. is
an area rife with overlapping and contiguous first responder agencies. Just
prior to 9/11, many of the agencies in D.C. participated in a SEMS/ICS disaster
response simulation. The agencies had adopted and trained in SEMS/ICS. The
9/11 commission report compared and contrasted the Pentagon response with the
NYC response. They noted that the use of SEMS/ICS by agencies responding to the
Pentagon had enhanced coordination, speeded rescue and recovery operations and
saved lives.
The formation
of the
Department of Homeland Security (DHS) included the folding of the Federal
Emergency Management Agency (FEMA) into the DHS bureaucratic structure. Based
on recommendations from the 9/11 Commission Report, the DHS adopted SEMS/ICS as
the National Incident Management System (NIMS). NIMS is now our nations method
of first responder command and control. Indeed, after January 1, 2004, adoption
and training in NIMS is a mandatory requirement for DHS grant funding. In other
words, if your agency has not adopted and trained in NIMS, you can lose points
in the grant funding review process. Perhaps more importantly, when your
community is faced with a major event, a lack of standardized command and
control systems can cause the loss of life, additional property damage and a
delay in returning to normal. The foundation of NIMS is the Incident Command
System (ICS).
Unified Command
The heart
of ICS is
the concept of Unified Command[v].
Unified Command is founded in the leadership principle of Unity of Command;
wherein each person within an organization reports to only one designated
person. Whenever multiple jurisdictions and/or multiple agencies from within a
jurisdiction become involved in an incident each brings its own chain of
command. The ICS concept calls for responding agencies to join together in a
Unified Command for the duration of the incident.
Unified Command has a number of advantages:
·
One set of objectives
·
Collective approaches
·
Improved information flow/coordination
·
Better understanding of objectives, priorities, limitations, and
restrictions
·
No compromise of authority
·
Each agencys plans, actions, and constraints are known
·
Optimizes combined efforts
To facilitate
unified
command, agencies must adopt a certain protocols. For instance, ICS calls for
agencies to use common terminology when responding to an ICS led incident, use a
designated modular command structure; and, certain common command and control
principles. Typically, agencies overcome differences in terminology by
emphasizing communications in plain language. Codes like the ten system are
replaced with plain language. Although this may somewhat lengthen
communications, under emergency circumstances clarity trumps brevity.
Incident Command
The first
step in
returning any emergency situation to normal is someone taking charge. ICS is
different from many other bureaucratic structures in that ICS calls for the most
qualified person to assume responsibility over an incident. Imagine a police
officer working graveyards and seeing black smoke billowing against the night
sky. He or she doesnt know where the fire is burning, but using the smoke as a
landmark navigates to the fire. Arriving before fire personnel, the officer
must temporarily take charge. Although they dont have fire fighting equipment
the officer can make a situation report requesting fire personnel, begin
evacuation, establish a perimeter and determine ingress and egress routes. That
police officer is, at the beginning, the Incident Commander.
After the
arrival of the firefighters, the ranking firefighter becomes the Incident
Commander because they are the most qualified person to lead the incident. This
is the beginning of a Unified Command. The police officer still maintains the
perimeter and assist in keeping ingress and egress routes open, but they are
essentially subordinate to the firefighter who is now the Incident Commander.
Conversely, if the burning structure contained a sniper, the police officer
would maintain incident command because they are better equipped to handle the
sniper.
ICS has been proven effective for responding to
all types of incidents, including:
·
Hazardous materials
·
Planned events
·
Natural disasters
·
Multi-agency law enforcement incidents like warrant services,
complex investigations
·
Multiple casualties (major traffic collisions, fires, etc.)
·
Wide-area search and rescue missions
Incident Command Structure
ICS is
referred to as a modular system because it has the capacity to expand and
contract based on the emergency. If the problem can be handled with few
personnel and minimal resources then an ICS based Command Post[vi]
may only have an incident commander who makes decisions, plans and assigns
tasks. An emergency with only an incident commander would be relatively small
and short in duration. However, as an emergency outgrows the ability of a
single person, modules can be added.
Usually
the first
module, or subordinate commander added, is an Operations Chief. This person is
responsible for carrying out the direction of the incident commander. The
Operations Chief might have additional assistant chiefs either divided by the
geography of the incident or by the types of services. An example of geographic
division would be an inner and outer perimeter. Or, in the case of a relatively
localized emergency, the Operations Chief might allocate subordinate commands
based on duties. For example, at a local emergency you might have an Operations
Chief in charge of a fire branch and another in charge of a law enforcement
branch.
The next
module added might be the Logistics Chief. This person is responsible for
obtaining, organizing and allocating all resources such as personnel, equipment
and supplies. For instance, during a flood the Incident Commander might direct
the Operations Chief to conduct helicopter rescue operations. The Operations
Chief would communicate the personnel and equipment needs to the Logistic
Chief. The Logistic Chief would locate and assign personnel and resources to
the mission. The Operations Chief would brief the personnel on the mission and
oversee completion.
We all know
that
situations do not unfold as clinically as has been described. However, the
closer we come to handling emergencies within the framework of ICS the more
lives and property we can save. Moreover, emergency situations are brought to
conclusion by getting ahead of the emergency. This is done through the ICS
planning process. At larger emergencies (based on size and duration) a Planning
Chief is needed. This person takes the overall goals of the Incident Commander
and prepares Action Plans which are implemented by the Operations Chief. This
frees the Operations Chief to handle the here and now, while having someone else
prepare for the next step.
Span of Control
ICS recognizes
that
you simply cant do everything yourself and that you can only effectively work
directly with a limited number of people. While an Incident Commander may
ultimately have thousands of personnel deployed, he or she can only communicate
directly with relatively few. Span of Control is the management concept that a
leader can only directly supervise a limited number of people. The number often
cited is somewhere between seven and ten. This same principle applies to all
subordinate personnel. The Operations Chief has seven to ten direct reports,
and so on and so forth, down the chain of command.
The National
Incident
Management System (NIMS) relies on the Incident Command System for the
operational management of disasters and emergencies. Many agencies are, in
someway, adopting and training in NIMS/ICS. As a first responder you can
improve your incident leadership skills in at least two ways. First, you should
seek certified training from the DHS. Any person can sign on and use the FEMA
training tools to receive certified training in NIMS/ICS as well as a wide
variety of disaster related courses. Moreover, once you successfully complete
these web-based courses an official certificate of completion is sent to you.
If you have been certified, the US Department of Labor has a number of e-tools,
or web-based tutorials for refresher training. Among them is an excellent
overview on ICS. You can access the e-tools at http://www.osha.gov/SLTC/etools/ics/.
About the Author:
Lieutenant Raymond E. Foster,
LAPD (ret.), MPA is the owner of Hi Tech Criminal Justice Online and the author
of Police Technology (Prentice Hall), Leadership: Texas Hold em Style (Quill
Driver/Word Dancer Press) and, NYPD to LAPD: An Introduction to Policing
(Prentice Hall). He can be reached at raymond@hitechcj.com.
[ii]
Cardwell, Michael D., Nationwide Application of the Incident Command System
is the Key The FBI Law Enforcement Bulletin, October 2000.
[iv]
Cardwell, Michael D., Nationwide Application of the Incident Command System
is the Key The FBI Law Enforcement Bulletin, October 2000.
[v]
The idea of Unified Command is a fairly common military principle. The
operation of combined arms in a defined geographic area or defined mission
require that one commander direct all operations.
[vi]
With the Incident Command System (ICS), the location where the Incident
Commander manages the emergency is called the Incident Command Post.
Wide-spread emergencies are often coordinated and managed through the use of
a pre-designated facility commonly called an Emergency Operations Center (EOC).
Larger emergencies may have several field Incident Command Posts (ICP) that
are coordinated through an EOC. The EOC, receiving information from the ICP,
coordinates the deployment of personnel and resources to the various ICPs.
The ICPs, use the personnel and resources to manage the incident locally.
This is the type of arrangement we could have expected during Katrina. A
regional EOC managing the flow of personnel and resources to smaller EOCs or
Field ICPs.
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