A difficult issue in any response operation is determining who is in charge of the overall response effort. The incident command system (ICS) was developed after the 1970 fires in southern California. Duplication of efforts, lack of coordination, and communica- tion hindered all agencies responding to the expanding fires. The main function of ICS is to establish a set of planning and management systems that would help the agencies responding to a disaster to work together in a coordinated and systematic approach. The step-by-step process enables the numerous responding agencies to effectively use resources and personnel to respond to those in need.
There are multiple functions in the ICS. They include common use of terminology, integrated communications, a unified command structure, resource management, and action planning. A planned set of directives includes assigning one coordinator to manage the infrastructure of the response, assigning personnel, deploying equipment, obtaining resources, and working with the numerous agencies that respond to the disaster scene. In most instances, the local fire chief or fire commissioner is the incident commander.
For the ICS to be effective, it must provide for effective operations at three levels of incident character: (1) single jurisdiction or single agency, (2) single jurisdiction with mul- tiple agency support, and (3) multijurisdictional or multiagency support. The organizational structure must be adaptable to a wide variety of emergencies (i.e., fire, flood, earthquake, and rescue). The ICS includes agency autonomy, management by objectives, unity integrity, functional clarity, and effective span of control. The logistics, coordination, and ability of the multiple agencies to work together must adhere to the ICS so that efficient leadership is maintained during the disaster. One of the most significant problems before the ICS was that agencies that responded to major disasters would assign their own commander and there would be power struggles, miscommunication, and duplication of efforts (Irwin, 1980).
There are five major management systems within the ICS: command, operations, planning, logistics, and finance.
1. The command section includes developing, directing, and maintaining communication and collaboration with the multiple agencies on site, working with the local officials, the public, and the media to provide up-to-date information regarding the disaster.
2. The operations section handles the tactical operations, coordinates the command objectives, and organizes and directs all resources to the disaster site.
3. The planning section provides the necessary information to the command center to develop the action plan to accomplish the objectives. This section also collects and evaluates information as it is made available.
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Services Office has arranged for US$25,000 to be sent out from International Headquarters and these funds will be used, among other things, to hire a suitable warehouse where donations can be stored.
4. The logistics section provides personnel, equipment, and support for the command center. It handles the coordination of all services involved in the response, from locating rescue equipment to coordinating the response for volunteer organizations such as the Salvation Army and the Red Cross.
5. The finance section is responsible for accounting for funds used during the response and recovery aspect of the disaster. The finance section monitors costs related to the incident and provides accounting procurement time recording cost analyses.
In today’s world, the public, private, and political values at risk in major emer- gencies demand the most efficient methods of response and management. Meeting this demand when multiple and diverse agencies are involved becomes a difficult task. The unified command concept of ICS offers a process that all participating agencies can use to improve overall management, whether their jurisdiction is of a geographical or functional nature (Irwin, 1980).
The unified command is best used when there is a multiagency response. Because of the nature of the disaster, multiple government agencies need to work together to monitor the response and manage the large number of personnel who respond to the scene (see Figure 4–1). It allows for the integration of the agencies to operate under one overall response management.
Procedures for an Incident Command System
For an ICS to be effective, procedures need to be followed closely: • A command post needs to be established.
• Proper equipment, such as computers, radios, and telephone lines, need to be installed and in working order.
• A media/press area needs to be established.
• Topographic maps need to be located and posted. After tornadoes, street signs or other identifying landmarks are destroyed and rescue personnel are unable to use traditional road maps.
• A missing persons list needs to be located or prepared.
• The movement and location of triage areas and transportation of victims must be monitored.
• The ability is needed to maintain continuous communication with local hospitals to monitor the number of victims received.
• The search area must be established and a grid prepared.
• Based on the type of disaster, such as flooding, responders may have to use boats to search for and rescue victims.
• What resources are available within the local area and what ones are being deployed must be determined.
• As the response system expands, the tasks that need to be performed must be reevaluated and new tasks developed.
FIGURE 4–1 New York, New York, October 30, 2001. FEMA/NY state disaster field office personnel meet to
coordinate federal, state, and local disaster assistance programs. Photo by Andrea Booher/FEMA News Photo. Photo by Dave Gatley/FEMA News Photo.