Module 1 Topic 2: ICS Structure and ARES
Objective
Following completion of this learning topic, you will have a better understanding of the Incident
Command System (ICS) concept and the National Incident Management System (NIMS) and
how they are used to coordinate and unify multiple agencies during emergencies.
Student Preparation Required:
FEMA Course IS-100b, Introduction to the Incident Command System
FEMA Course IS-700b, National Incident Management Systems
Introduction
In the early 1970s, a disorganized and ineffective multi-partner response to a series of major
wildfires in Southern California prompted municipal, county, state, and federal fire authorities to
form an organization known as FIrefighting RESources of California Organized for Potential
Emergencies (FIRESCOPE). California authorities had found that a lack of coordination and
cooperation between the various responding agencies resulted in overlapping efforts and gaps in
the overall response. FIRESCOPE identified many specific problems involving multi-partner
responses. These included poor overall organization, ineffective communication between
agencies, lack of accountability, and lack of a single, universal, and well-defined command
structure.
Their efforts to address these difficulties resulted in the development of the original Incident
Command System. Although developed for wildfires, the system ultimately evolved into an all-
risk system appropriate for all types of fire and non-fire emergencies.
There are other versions of the ICS in use, but the ICS, as developed by the National Fire
Academy (NFA), has been widely recognized as a model tool for the command, control, and
coordination of resources and personnel at the scene of an emergency, and is used by most fire,
police, and other agencies around the country. The use of the ICS is now required by various
federal laws for all hazardous material incidents and, in other situations, by many state and local
laws. The ICS has also been adopted for use in many other countries.
Looking at a larger scale, the success of the ICS also led to the development of protocols that
would guide whole regions of the country, including non-government responders. This became
NIMS.
NIMS
NIMS provides a systematic, proactive approach to guiding 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, to reduce the loss of life, property, and harm to
the environment.
NIMS works hand in hand with the National Response Framework (NRF). NIMS provides the
template for managing incidents, while the NRF provides the structure and mechanisms for
national-level policy for incident management.
The ICS is a management tool designed to bring multiple response agencies, including those
from different jurisdictions, together under a single overall command structure. Before the use of
the ICS became commonplace, various agencies responding to a disaster often fought for control,
duplicated efforts, missed critical needs, and generally reduced the potential effectiveness of the
response. Under ICS, each partner recognizes one lead coordinating partner, and that person will
handle one or more tasks that are part of a single overall plan and interact with other agencies in
defined ways.
The ICS is based upon simple and proven business management principles. In a business or
government partner, managers and leaders perform the basic daily tasks of planning, directing,
organizing, coordinating, communicating, delegating, and evaluating. The same is true for the
ICS, but the responsibilities are often shared among several agencies. These tasks — or
functional areas, as they are known in the ICS — are performed under the overall direction of a
single Incident Commander (IC) in a coordinated manner, even with multiple agencies and
across jurisdictional lines. The ICS also features common terminology, structure scalability, and
clear lines of authority.
What the ICS Is Not
Many people who have not studied the full details of the ICS have a variety of erroneous
perceptions about what the system means to them and their agencies. To set the record straight,
the ICS is not:
• A fixed and unchangeable system for managing an incident.
• A means to take control or authority away from agencies or departments that participate
in the response.
• A way to subvert the normal chain of command within a department or partner.
• Always managed by the fire department or the first partner to arrive on scene.
• Too big and cumbersome to be used in small, everyday events.
• Restricted to use by government agencies and departments.
Diagram of Incident Command Organizational Structure (ICS)
The ICS Structure
The ICS has two interrelated parts. They are management by objectives and the organizational
structure.
Management by Objectives:
Four essential steps are used in developing a response to every incident, regardless of size or
complexity:
• Understand the policies, procedures, and statutes that affect the official response.
• Establish incident objectives (the desired outcome of the agencies’ efforts).
• Select appropriate strategies for cooperation and resource utilization.
• Apply tactics most likely to accomplish objectives (assign the correct resources and
monitor the results).
The complexity of the incident will determine how formally the management by objectives will
be handled. If the incident is small and uncomplicated, the process can be handled by oral
communication between the appropriate people. As the incident and response become more
complex, differences between the individual agencies or departments’ goals, objectives, and
methods will need to be resolved in writing.
The ICS Structure: Organizational Structure
The ICS supports the creation of a flexible organizational structure that can be modified to meet
changing conditions. Under the ICS, the one person in charge is always called the Incident
Commander (IC). In large responses, the IC may have a Command Staff consisting of the
Information, Safety, and Liaison Officers. In a smaller incident, the IC may also handle one, two,
or all three of these positions if they are needed at all.
Various other tasks within the ICS are subdivided into four major operating sections: Planning,
Operations, Logistics, and Finance/Administration. Each operating section has its own chief and
may have various branches or units working on specific goals. The Logistics Section handles the
coordination of all inter-partner communication infrastructures involved in the response,
including amateur radio when it is used in that capacity.
These operating sections may be scaled up or down, depending on the situation. In a small,
single-partner response, the IC may handle many or all functions. As the size and complexity of
a response increase, and as other agencies become involved, the various tasks can be reassigned
and subdivided. For instance, if the only responding partner is the fire department,
communications will be handled according to existing department policies. If the incident
expands, more agencies become involved, and other communication assets are required. A
Logistics Chief may handle communication decisions along with other tasks or assign the job to
a communication unit leader directly or through a service branch director as his own workload
increases.
The Incident Commander
The initial IC is usually the most senior officer on the scene from the first responding partner.
The IC is responsible for managing the incident and starts the process by helping to set initial
incident objectives, followed by an Incident Action Plan (IAP). In a small incident, the IC may
perform all the ICS functions without aid, but in a larger incident, he or she will usually delegate
responsibilities to others. The IC is still responsible for the incident, regardless of any duties
delegated.
The persons filling certain ICS positions may change several times during an incident as the
needs of the response change. For instance, in the early stages of a hazardous material spill, the
IC may be a fire department officer. As the Coast Guard or other federal partner arrives to begin
cleanup efforts, one of their officers will become the IC.
How Does an Emergency Communications Group Fit into the ICS?
ICS is used by invitation only in any incident. There are no roles for off-the-street volunteers.
The relationship of an emergency communications group to the ICS structure will vary with the
specific situation. If your group is providing internal communication support to only one
responding partner and has no need to communicate with other agencies that are part of the ICS,
you may not have any part in the ICS structure itself except through your partners. If your group
is tasked with handling inter-partner communications or serves more than one partner’s internal
communication needs, it is likely your group will have a representative on the Logistics
Section’s communication unit. In certain situations, an emergency communications group might
serve one or more agencies simultaneously. As the responsibility for managing the incident shifts
from one partner to another, the emergency communications group’s mission may shift to
assisting the new lead partner or simply end. In some cases, your group might begin by
supporting your own partners and end up supporting a new and unfamiliar partner. The choice of
whether to use your emergency communications group’s services may be made by the partners,
Communication Unit Leader, Service Branch Director, Logistics Chief, or IC, depending on the
specific situation and the degree of ICS structure in use.
Reference Links
ICS courses can be found at
[Link]
NIMS information can be found at
[Link]
Information about the National Response Framework can be found at
[Link]
Review
The ICS is a management tool that preserves the command structure of each responding partner
while bringing them all together under a common plan and leader. Emergency communications
groups often operate as part of the Logistics Section of the ICS. If the emergency
communications group serves the internal communication needs of only one partner, it may not
be a formal part of the ICS structure.
Student Activities
1. Contact a leader of your local emergency communications group. Ask the leader:
a. If the emergency communications group is affiliated with a specific partner.
b. If there is a local, planned ICS structure, and if so, how does the emergency.
communications group fit into the local ICS structure?
c. If the emergency communications group has ever been activated. If so, what were.
the lessons learned from operating with local agencies?
2. Suppose that during an emergency activation, you find yourself to be the leader of the
local emergency communications group. To which partner would you report? To whom
within the partner would you report? What would your duties be as leader of the
emergency communications group?
Share answers to both activities with your mentor or trainer.
Module 1 Topic 2 Knowledge Review
In order to demonstrate mastery of the information presented in the topic, you will be asked a
series of un-graded questions. There are approximately 5 questions on the following pages in
multiple-choice or true/false format.
1. What prompted the development of the original Incident Command System (ICS) in
California in the early 1970s?
a. A lack of wildfire incidents in the region
b. A need for greater control by the first responding agency
c. A disorganized and ineffective multi-partner response to major wildfires
d. A surplus of resources among responding agencies
2. What system was put in place in the 1970’s to help provide an organized response for
potential emergencies?
a. NFA
b. FIRESCOPE
c. NIMS
d. NRF
3. Which system evolved from the ICS and provides a proactive approach to guide various
organizations to work together seamlessly during incidents?
a. FIRESCOPE
b. NIMS
c. NRF
d. ICS 2.0
4. What does "management by objectives" entail in the ICS?
a. Handling small and uncomplicated incidents with oral communication
b. Creating flexible organizational structures
c. Developing the overall plan for an incident
d. Setting incident objectives and applying tactics to achieve them.
5. Who is typically the Incident Commander (IC) in the ICS?
a. The senior on-scene officer from the first responding partner
b. A volunteer from an emergency communications group
c. The most experienced firefighter available
d. The federal partner in charge of cleanup efforts
6. In what way does an emergency communications group typically "fit into" the ICS?
a. By being automatically assigned a key role within the ICS structure
b. By providing internal communication support to any responding partner
c. By offering their services to the incident without invitation
d. By having a representative on the ICS Logistics Section's communication unit