Chapter II
NIMS - Command and Management

a. Most Incidents Are Managed Locally.
The initial response to most domestic incidents is typically handled by local “ 911” dispatch centers, emergency responders within a single jurisdiction, and direct supporters of emergency responders. Most responses need go no further. In other instances, incidents that begin with a single response discipline within a single jurisdiction may rapidly expand to multidiscipline, multijurisdictional incidents requiring significant additional resources and operational support. Whether for incidents in which additional resources are required or are provided from different organizations within a single jurisdiction or outside the jurisdiction, or for complex incidents with national-level implications (such as an emerging infectious disease or a bioterror attack), the ICS provides a flexible core mechanism for coordinated and collaborative incident management. When a single incident covers a large geographical area, multiple local ICS organizations may be required. Effective cross-jurisdictional coordination using processes and systems described in the NIMS is absolutely critical in this instance.

b. The NIMS Requires That Field Command and Management Functions Be Performed in Accordance with a Standard Set of ICS Organizations, Doctrine, and Procedures.
However, Incident Commanders generally retain the flexibility to modify procedures or organizational structure to align as necessary with the operating characteristics of their specific jurisdictions or to accomplish the mission in the context of a particular hazard scenario.

c. ICS Is Modular and Scalable.
ICS is designed to have the following operating characteristics; it should be

[Top of Page]

d. ICS Has Interactive Management Components.
These set the stage for effective and efficient incident management and emergency response.

e. ICS Establishes Common Terminology, Standards, and Procedures that Enable Diverse Organizations to Work Together Effectively.
These include a standard set of predesignated organizational elements and functions, common names for resources used to support incident operations, common “typing” for resources to reflect specific capabilities, and common identifiers for facilities and operational locations used to support incident operations.

f. ICS Incorporates Measurable Objectives.
Measurable objectives ensure fulfillment of incident management goals. Objective-setting begins at the top and is communicated throughout the entire organization.

g. The Implementation of ICS Should Have the Least Possible
Disruption On Existing Systems and Processes.
This will facilitate its acceptance across a nationwide user community and to insure continuity in the transition process from normal operations.

h. ICS Should Be User Friendly and Be Applicable Across a Wide Spectrum of Emergency Response and Incident Management Disciplines.
This will enable the communication, coordination, and integration critical to an effective and efficient NIMS.

a. Common Terminology.
ICS establishes common terminology that allows diverse incident management and support entities to work together across a wide variety of incident management functions and hazard scenarios. This common terminology covers the following:

b. Modular Organization.
The incident command organizational structure develops in a top-down, modular fashion that is 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 the Incident Commander (IC), who bases these 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 positions expands to adequately address the requirements of the incident.

c. Management by Objectives.
Management by objectives represents an approach that is communicated throughout the entire ICS organization. This approach includes the following:

d. Reliance on an Incident Action Plan.
Incident action plans (IAPs) provide a coherent means of communicating the overall incident objectives in the contexts of both operational and support activities.

e. Manageable Span of Control.
Span of control is key to effective and efficient incident management. Within ICS, the span of control of any individual with incident management supervisory responsibility should range from three to seven subordinates. The type of incident, nature of the task, hazards and safety factors, and distances between personnel and resources all influence span-of-control considerations.

f. Predesignated Incident Locations and Facilities.
Various types of operational locations and support facilities are established in the vicinity of an incident to accomplish a variety of purposes, such as decontamination, donated goods processing, mass care, and evacuation. The IC will direct the identification and location of facilities based on the requirements of the situation at hand. Typical predesignated facilities include incident command posts, bases, camps, staging areas, mass casualty triage areas, and others, as required. For a more complete discussion of predesignated locations and facilities, see Appendix A, Tab 7.

g. Comprehensive Resource Management.
Maintaining an accurate and up-to-date picture of resource utilization is a critical component of domestic incident management. Resource management includes processes for categorizing, ordering, dispatching, tracking, and recovering resources. It also includes processes for reimbursement for resources, as appropriate. Resources are defined as personnel, teams, equipment, supplies, and facilities available or potentially available for assignment or allocation in support of incident management and emergency response activities.

h. Integrated Communications.
Incident communications are facilitated through the development and use of a common communications plan and interoperable communications processes and architectures. This integrated approach links the operational and support units of the various agencies involved and is necessary to maintain communications connectivity and discipline and enable common situational awareness and interaction. Preparedness planning must address the equipment, systems, and protocols necessary to achieve integrated voice and data incident management 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 every individual has 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 control the actions of all personnel under their supervision.

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 at all jurisdictional levels and within individual functional areas during incident operations is essential. To that end, the following principles must be adhered to:

[Top of Page]

m. Deployment.
Personnel and equipment should respond only when requested or when dispatched by an appropriate authority.

n. Information and Intelligence Management.
The incident management organization must establish a process for gathering, sharing, and managing incident-related information and intelligence.

a. Command and General Staff Overview.
The ICS organization has five major functions, as described in Figure 1. These are: command, operations, planning, logistics, and finance and administration (with a potential sixth functional area to cover the intelligence function, as described in paragraph 2.n. above).

[Top of Page]

a. Emergency Operations Center.
For purposes of this document, EOCs represent the physical location at which the coordination of information and resources to support incident management activities normally takes place. The Incident Command Post (ICP) located at or in the immediate vicinity of an incident site, although primarily focused on the tactical on-scene response, may perform an EOC-like function in smaller-scale incidents or during the initial phase of the response to larger, more complex events. Standing EOCs, or those activated to support larger, more complex events, are typically established in a more central or permanently established facility; at a higher level of organization within a jurisdiction. EOCs are organized by major functional discipline (fire, law enforcement, medical services, and so on); by jurisdiction (city, county, region, and so on); or, more likely, by some combination thereof. Department Operations Centers (DOCs) normally focus on internal agency incident management and response and are linked to and, in most cases, are physically represented in a higher level EOC. ICPs should also be linked to DOCs and EOCs to ensure effective and efficient incident management.

For complex incidents, 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 (representatives of health care facilities, prehospital emergency medical services, patient transportation systems, pharmaceutical repositories, laboratories, etc.).

EOCs may be permanent organizations and facilities or may be established to meet temporary, short-term needs. 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 the specific organizational structure used, EOCs should include the following core functions: coordination; communications; resource dispatch and tracking; and information collection, analysis, and dissemination. EOCs may also support multiagency coordination and joint information activities as discussed below.

On activation of a local EOC, communications and coordination must be established between the IC or UC and the EOC, when they are not collocated. 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 during incidents, 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. Such agreements are discussed in Chapter III.

b. Multiagency Coordination Entities.
When incidents cross disciplinary or jurisdictional boundaries or involve complex incident management scenarios, a multiagency coordination entity, such as an emergency management agency, may be used to facilitate incident management and policy coordination. The situation at hand and the needs of the jurisdictions involved will dictate how these multiagency coordination entities conduct their business, as well as how they are structured. Multiagency coordination entities typically consist of principals (or their designees) from organizations and agencies with direct incident management responsibility or with significant incident management support or resource responsibilities. These entities are sometimes referred to as crisis action teams, policy committees, incident management groups, executive teams, or other similar terms (For example, the wildland fire community has such an entity, the Multiagency Coordination Group (MAC Group)). In some instances, EOCs may serve a dual function as a multiagency coordination entity; in others, the preparedness organizations discussed in Chapter III may fulfill
this role. Regardless of the term or organizational structure used, these entities typically provide strategic coordination during domestic incidents. If constituted separately, multiagency coordination entities, preparedness organizations, and EOCs must coordinate and communicate with one another to provide uniform and consistent guidance to incident management personnel.

Regardless of form or structure, the principal functions and responsibilities of multiagency coordination entities typically include the following:

Following incidents, multiagency coordination entities are also typically responsible for ensuring that improvements in plans, procedures, communications, staffing, and other capabilities necessary for improved incident management are acted on. These improvements should also be coordinated with appropriate preparedness organizations (see Chapter III), if these organizations are constituted separately.

[Top of Page]

a. The PIO Supports the Incident Command.
Under the ICS, the Public Information Officer (PIO) is a key staff member supporting the incident command structure. The PIO represents and advises the Incident Command on all public information matters relating to the management of the incident. The PIO handles media and public inquiries, emergency public information and warnings, rumor monitoring and response, media monitoring, and other functions required to coordinate, clear with appropriate authorities, and disseminate accurate and timely information related to the incident, particularly regarding information on public health and safety and protection. The PIO is also responsible for coordinating public information at or near the incident site and serving as the on-scene link to the Joint Information System (JIS). In a large-scale operation, the on-scene PIO serves as a field PIO with links to the Joint Information Center (JIC), which is typically collocated with the Federal, regional, State, local, or tribal EOC tasked with primary incident coordination responsibilities. The JIS provides the mechanism for integrating public information activities among JICs, across jurisdictions, and with private-sector and nongovernmental organizations.

b. Public Information Functions Must Be Coordinated and Integrated Across Jurisdictions and Across Functional Agencies; Among Federal, State, Local, and Tribal Partners; and with Private-Sector and Nongovernmental Organizations.
During emergencies, the public may receive information from a variety of sources. The JIC provides a location for organizations participating in the management of an incident to work together to ensure that timely, accurate, easy-to-understand, and consistent information is disseminated to the public. The JIC comprises representatives from each organization involved in the management of an incident. In large or complex incidents, particularly those involving complex medical and public health information requirements, JICs may be established at various levels of government. All JICs must communicate and coordinate with each other on an ongoing basis. Public awareness functions must also be coordinated with the information- and operational-security matters that are the responsibility of the information and intelligence function of the ICS, particularly when public awareness activities may affect information or operations security.

c. Organizations Participating in Incident Management Retain Their
Independence.
ICs and multiagency coordination entities are responsible for establishing and overseeing JICs including processes for coordinating and clearing public communications. In the case of UC, 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 entity contributes to the overall unified message.

a. Joint Information System.
The JIS provides an organized, integrated, and coordinated mechanism to ensure the delivery of understandable, timely, accurate, and consistent information to the public in a crisis. It includes the plans, protocols, and structures used to provide information to the public during incident operations, and encompasses all public information operations related to an incident, including all Federal, State, local, tribal and private organization PIOs, staff, and JICs established to support an incident. Key elements include the following:

[Top of Page]

b. Joint Information Center.
A JIC is a physical location where public affairs professionals from organizations involved in incident management activities can collocate to perform critical emergency information, crisis communications, and public- affairs functions. It is important for the JIC to have the most current and accurate information regarding incident management activities at all times. The JIC provides the organizational structure for coordinating and disseminating official information. JICs may be established at each level of incident management, as required. Note the following:

An example of typical JIC organization is shown in Figure 7.