19 Incident Response System

Dr. Rajnish Ranjan

epgp books

   

 

 

Objectives

  • To understand the concept of Incident Response System
  • To understand the structure of Incident Response System of India
  • To understand the Incident Response System in context of Disaster Management
  • To understand the role and responsibility of different stakeholders

    Module 19. Incident Response System

 

Response is an integral part of disaster management. To lead and streamline the process of the response, “Incident Response System” (IRS) was developed in India by adopting the basic techniques and methodology of US based “Incident Command System”. This response System brings all organizations working in the field of disaster response under one roof. It designates and divides the workload in such a way that duplicity can be avoided and response can be carried out in efficient way. The following module elaborates Incident Response System, its constituents and needs. Further it describes the structure of incident response system in India and illustrates the functioning of incident response system through a case study of Ebola response in Liberia.

   

Introduction:

 

The management of disasters is divided in multiple phases to compartmentalise the concepts and practices for better understanding. Some of these phases include Preparedness, Mitigation, Response, Relief and Recovery. The response phase involves taking measures to reduce or minimise the impact of striking disasters or those which have already occurred. These measures include but are not limited to, search and rescue operations, minimising loss of lives, injuries and damage to property and environment during and immediately after an event, resource management etc. The response to any disaster begins as soon as the impending hazard event is recognized by the authority (designated government agency). The US concept of Incident Command System (ICS) and its Indianized version “Incident Response System (IRS) has been recognised globally as one of the effective response system to be applied after the occurrence of any disaster. Both the terms Incident Response System (IRS) and Incident Command System (ICS) are used interchangeably. In the Indian context IRS is now officially inducted to be a part of disaster response and is widely used across the country in dealing with varied kinds of disaster situations.

 

IRS in India is specifically designed to be a model tool for “command, control, and coordination” of the entire response phase. It provides important means to coordinate the efforts of individual agencies as they work towards the common goal of stabilising the incident and protecting life, property and the environment(Coppola, 2007). Unity of command, common terminology, flexible and modular organization and defined span of control are some of the principle elements associated with the Incident Response System (IRS). National Disaster Management Authority (NDMA) ,the apex level policy planning body in the government of India defines Incident Response System as the combination of facilities, equipment, personnel, procedure and communications operating within a common organisational structure, with responsibility for the management of assigned resources effectively to accomplish stated objectives pertaining to an incident (National Disaster Management Guidlines-Incident Response System, 2010). IRS clarifies command; assigns responsibility; provides for collaboration among responders, including mutual aid providers; it is scalable; provides for in-the-moment allocation of scarce resources and has overall flexibility (Buck, Trainor, & Aguirre, 2006). It is a modular system based on a command-and-control approach that also devolves decision making to local levels as much as possible, and activates only those elements that are needed to deal with the crisis (Etkin, 2016). It develops standard framework and common language for all participating agencies to overcome integration problem in IRS and brings them on common platform (Moynihan, 2009) While adapting any situation to gain maximum output, it needs certain degree of familiarity among the agencies which are coordinating and are part of the incident response system. We can conclude that Incident Response System (IRS) is very useful model to respond to any emergency or disaster situation.(Hansen, 2006)The primary intention of IRS is to transform confusion of early hours of emergency situation into a well-managed response process by providing answers to questions such as “who’s in charge?” and “what’s my job?”

 

Thus, IRS is an effective set of principles for coordinating the activities of well-trained and integrated communities of first responders, where social and cultural emergence is at lowest. It can be considered as a rationalistic response to the pressure created by a crisis situation, which allows decision-makers to make fast decisions and deciding on specific response strategies. IRS can best be utilised by setting a framework within which different sections can work on a common principles and towards a unified objective i.e. to minimise the impact of event that is disaster. Incident Response System brings together different government department and Voluntary organizations on common platform to formulate effective response.

 

Government of India introduced ‘Incident Response System’guidelines in 2010. This is based on incident command system developed and evolved for fire-fighting incidences in California.

 

Evolution of Incident Command System (USA):

 

The Incident Command System developed and evolved conceptually as well as practically in the state of California, USA. In the decade of 1970 the wildfire problem in California became a major cause of concern. In the late September a series of devastating wildfires completely broke down the state’s wildfire protection system. The increased severity of wildfires resulted in very fragmented and inadequate response from firefighting department of the state. This was mainly attributed to the large number of agencies involved, each having its own jurisdictional mandate. This resulted in a “stovepipe” management mentality in which each jurisdictional unit had its own vertical structure of policies and protocols, communication and feedback (Cole, 2000). To address this issue , seven cooperating fire agencies came together and the “FIRESCOPE” program was initiated. This initiative resulted in the development of improved procedures for utilizing and coordinating firefighting resources. This, eventually, led to the development of Incident Command System(ICS).The fundamental notion underlying this was “the fire problems and potential solutions must be addressed as single entity consisting of the sum of all subsystems and their interrelationships”(Cole, 2000). Slowly the ICS gained the acceptance in the Emergency response management and was later adopted by Federal Emergency Management Agency(FEMA), which later came out with training module on ICS in 1983.

 

Characteristics of IRS

Noted author, Cole states that “ICS allows management of the underlying structures of crisis at two primary levels: conceptual and operational. At the conceptual level it represents an acknowledgement that complex crisis usually transcends jurisdictional and financial boundaries, and thus can best be addressed systematically (Cole, 2000). At the Operational level, this translates to a coordinated approach to crisis by all responding entities utilising a prearranged system of constituent principles that are consistent from one incident to another, regardless of type, geography, or jurisdictional involvement”. This characteristically reflects the essence of Incident Command System (ICS) or its transformation into Incident Response System (IRS).

 

1. IRS is a disaster management tool based on a series of rational bureaucratic principles similar to those discussed in organizational studies as classical management theories.

 

2. IRS provides a set of rules and practices to guide the actions of the various organizations responding to disaster, and create the necessary division of labour and coordination mechanism among them.

 

3. IRS is specifically designed for the incorporation of multiple internal and external resource into a response network.

 

4. It provides standardized job profiles with training modules of the concerned jobs.

 

5. Common terminology for equipment and supplies.

 

6. A structured chain of command from ground personnel to the incident commander with unity of command underscored and every person reporting to one boss.

 

7. Well defined authority entrusted with the responsibility to control response.

 

8. IRS assigns task to the person most qualified for the assignment irrespective of his/her rank in the organization.

 

9. Dividing works to ensure efficiency, effectiveness and safety.

 

10. The size and complexity of IRS depends on the size and complexity of disaster or emergency incident to which it is applied, so that IRS can be up-scaled or downscaled effectively.

 

Structure of IRS:

 

A typical IRS has two Command staff and general staff which comprises of different sets of responsibilities and tasks.

Figure 1: Structure of IRS, Source:(National Disaster Management Guidlines-Incident Response System, 2010)

 

An Incident Commander (IC) with deputy IC, Liaison Officer, Information and Media Officer consists of the Command staff. The “Incident Commander” is the absolute authority as the head of IRS and directs the response activities in the emergency incident. As the jurisdiction and the scale of incident increases, the services of one Incident Commander prove to be inadequate and a Unified Command is then established to direct the response.

 

The other branch of IRS consists of general staff comprising of Operation section, Planning section and Logistics section that coordinate and assist the“ command staff” in response activities.

 

Figure 2: Division of Operations section of IRS, Source: (National Disaster Management Guidlines-Incident Response System, 2010)

 

The operations section is responsible to carry out the on field response activities. This section coordinates and manages activities, which are directed at reducing the immediate hazard, protecting lives and property and beginning the process of recovery from emergency phase. Operations section consists of staging area, response branch and transportation branch.

 

1. Response branch consists of different divisions based on the geographical and functional requirements of the incident. Groups are classified according to their functional characteristics like Single Resources, Strike Team or Task Force. To understand the difference between Groups of single resources, strike team and task force, one need to understand the meaning of resources in Incident Response System. Resources are categorized in ‘kind’ and ‘type’ in the Incident Response System. The word ‘Kind’ refers to equipment, vehicles or personnel such as truck, medical team, ambulance. On the other hand, the word ‘Type’ connotes the capacity for that kind of resource, e.g., Truck having 1-ton capacity, medical team of 1 doctor and 2 paramedics. Thus Single Resource refers to both personnel and their given equipment to be deployed at given point of time at the incident site. e.g. Fire Brigade with its personnel or an ambulance with medical team. A Strike Team is assemblage of same ‘kind’ and ‘type’ of single resources with common communication and one leader. Need of strike team arises to carry out specific type of work requiring specific expertise and resources assembled under one leader.

 

2. A Task Force is the combination of different ‘kinds’ and ‘types’ of single resources under one leader in order to perform number of different tasks requiring different expertise. If a combination of medical team, rescue personnel and, fire personnel deployed at site of incident it will be called a Task Force. Activation of response branch depends on the nature of response required.

 

Activation of response branch depends on the nature of response required.

 

3. Transportation Branch manages the transportation of the affected people and the movement of relief materials. It can be further divide in road, rail, water and air as required.

 

The categorization of Planning Sections is as follows.

 

Figure 3:Divison of Planning Sections of IRS, Source: (National Disaster Management Guidlines-Incident Response System, 2010)

 

The Planning Section consists of a resource unit, situation unit, documentation unit and demobilization unit under the leadership of Planning Section Chief. This unit supports the response efforts by collecting, evaluating, disseminating and using information about the development of emergency and the status of all available agencies and resources(Coppola, 2007). Role and Responsibility of each unit are described below.

   

 Resource Unit:

 

i. Monitoring the status of all assigned resources at the incident site by conducting check-in of all resources.

 

ii.  Making of inventory of all resource available.

 

iii. Preparation of plan for mobilisation of resources if required.

 

iv.  Maintaining close coordination with Incident Commander (IC) regarding status of resources received and despatched from time to time

 

v.  Coordination with Operation Section regarding status and utilisation of allotted resources

 

vi. Ensuring quick and proper deployment of perishable resources

 

Situation Unit

 

i. Preparation and dissemination of reports regarding situation and resources

 

ii.  Development of periodic future projections as incident unfolds

 

iii. Collection, processing and organization of information about incident as soon as possible for analysis.

 

iv. Providing authorised maps, photographic services to responders as required

 

Documentation Unit

 

i. Ensuring the availability of required forms and stationary and issuing it as required

 

ii. Compilation of all information and reports related to incident

 

iii. Review and verification of the records and different IRS forms for accuracy and completeness

 

iv. Ensuring errors and omissions from documents are corrected from appropriate units

 

v. Archiving documents and files properly for post-incident analysis

 

Demobilisation Unit

 

i. Preparation of Incident Demobilisation Plan

 

ii. Identification of surplus resource and giving priority to demobilisation of surplus resources

 

iii. Developing incident check-out system for sections, branches, divisions and units in consultation with all sections

 

iv. Planning for logistics and transportation support for incident demobilisation in consultation with Logistics section

 

v. Dissemination of incident demobilisation plan at suitable time to involved stakeholders

 

vi. Proper supervision and execution of incident demobilisation plan

 

Another important task for planning section is to develop action plan, better known as “Incident Action Plan” based on which the total response process is managed.It is necessary to develop IAP –

    Involving multiple jurisdictions

 

   Involving of different organizations

 

Where consideration to continue the incident response for longer period exists Where there is a requirement as policy by agencies/departments

 

An Incident Action Plan(IAP) should have the following elements

 

a)  Statement of Objective: It should illustrate what the IAP expects to achieve. The objectives must be measurable

 

b) Organization: Describing and assigning which IRS organizations will be in place for response in operational period.

 

c)  Operational period: The period of time scheduled for executing given set of tactical actions as specified in the Incident Action Plan.

 

d) Tactics and Assignment: Depicting tactics and control operations and what resources will be assigned.

 

e)  Supporting Plans: This contains material/plan such as map of incident site, communication plan, medical plan, weather data, traffic plan and safety procedures.

 

 

Figure 4: Division of Logistics section of IRS, Source:(National Disaster Management Guidlines-Incident Response System, 2010)

 

Lastly, the Logistics Section is responsible for providing facilities, services and materials including the personnel to operate requested equipment for the incident and perform different logistical tasks as required. This includes personnel, animals, equipment, vehicles which depends upon acquisition, transport and distribution of resources. Provision of food, water and medical facilities is also the responsibility of logistics section. Finance Branch consists of the important component of the logistics section for swift procurement and to maintain sound accounting practices through financial procedures and rules. It is also important for distribution of emergency funds to distribute at local and regional level.

 

Establishment of Incident Command Post (ICP) is necessary to command and coordinate the disaster response and recovery activities through a centralised location. The ICP is a central command centre by which all communications and information is gathered, processed, and distributed. It is normally established away from the disaster scene or in safe zone of affected area (if the area is large) in proximity to government offices. An Incident Command Post (ICP) should have the adequate lighting, effective communication system and other facilities which will ensure the effective functioning of the Incident Command Post. Figure 5 below shows the layout of the typical incident command post(ICP).

 

Figure 5: Layout of ICP, Source: (National Disaster Management Guidlines-Incident Response System, 2010).

 

Developing an Incident Management System to support Ebola Response, Liberia, July-August 2014

 

The case study illustrates the development of an incident management system to support Ebola response in the country of Liberia. In the year 2014, the worst outbreak of Ebola epidemic in the west Africa recorded. Worst affected countries were Liberia, Sierra Leone, Guinea, Nigeria and Senegal with Liberia recording the highest number of the Ebola cases. The epidemic severely hampered the public health care infrastructure in the Liberia. As a part of response, the Liberian Ministry of Health and Social Welfare (MOHSW) developed a national task force and technical expert committee to observe the management of the Ebola related activities. To support the epidemic control process, the Centre for Disease Control and Prevention (CDC),Atlanta, a unit of U.S. Health and Human Services started working in tandem with MOHSW in establishing incident management system.

 

The National Response System earlier established by MOHSW followed certain principles for Incident Response System (IRS), which had several shortcomings. According to the previous system, the Deputy Health Minister/Chief Medical Officer was identified as the national coordinator. Technical Committees for epidemiology/surveillance, social mobilisation, psychological support, contact tracing and laboratory had been established with MOHSW as head of this system. Daily meetings were held with the heads of these committees. However, one of the shortcomings of this system was that there was no deputy to the national coordinator to serve as alternate decision-maker in absence of national coordinator. Secondly, the daily meetings of national task force had attendance from technical committees and several partner organizations. Due to this, the number of meeting attendees was beyond 50. Taking well informed decisions based on meeting inputs became difficult in such a scenario. Additionally, logistical support such as vehicles, fuel etc. were largely missing and there was no single point of contact to provide logistical backbone in the assembled group.

 

To address these shortcomings, MOHWSW appointed an Incident Manager (IM), a Deputy IM, an Operations Chief and a Planning Chief. The Deputy IM convened regular logistic meetings. The Deputy IM and all other technical and general staff committees directly reported to the Incident Manager. Day to day meetings was held to discuss the key actions taken in last 24 hrs, actions to be completed in next 24 hrs and challenges faced. Representatives from logistics and finance section were also inducted in the meetings. This resulted in the reduction of logistical problems. Liasoning with key partner organizations such as World Health Organization (WHO), Doctors without Borders became easier after the IRS structure was established. Figure 6 represents the Incident Management System established in Liberia to respond Ebola.

 

As shown in the figure, an Incident manager i.e. incident commander was designated to facilitate the coordination and different departments were established in the Incident Response System. In this, Response Branch can be designated to Case Management which was actually mobilised on ground to respond to Ebola. Medical teams and allied support were under the Case Management Branch. Special Staff formed Logistics and Finance branch of the incident response system. Other departments were Surveillance, Contact Tracing and Laboratory which werebased on the nature of response required for an epidemic.

Figure 6: Incident Response System(IRS) of Liberia in response to Ebola, Source:(Satish K. Pillai, 2014)

 

Limitations of incident response system

 

Despite being fairly evolved and adopted by many countries, the incident response system has its fair share of critique and limitations. It is argued that emphasis on formal organization and rationality fails to recognize a series of key factors in disaster response, particularly the presence of unorganized volunteers and emergent groups as well as transformations of the structure and function of established organizations. Some of the key limitations mentioned in the article are as follows.

 

1. IRS often results in someone taking charge of the disaster site, without using all the mechanisms designed to facilitate site management.

 

2. Shifting of command from the initial responder to high level staff often leads to loss of control over the situation.

 

3. IRS is often found to be weak in the inter-organizational coordination, for instance, in certain cases, separate command posts were established by police and fire organizations and coordination was even worse with the local emergency management, relief agencies and volunteers.

 

4. IRS fully implemented in small incidents, resulted in over-convergence of emergency resources such as staff and equipment.

 

5. IRS is not a panacea for solving communications and intra-organizational problems

 

6.  The command and control model of IRS does not really work in dealing with the civilian organizations.

   

Summary

  1. Incident Response System(IRS) have five major building blocks or basic principles; Command, Planning, Operations, Logistics and Finance/Administration.
  2. Incident Response System (IRS) also known as Incident Command System(ICS) is very useful when it comes to emergency response management.
  3. When nature of incident is miniscule, one person may be able to manage all five principles. Large-scale incidents usually require that components be relegated to their own “sections”, each of which can be managed separately (Bigley & Roberts, 2001).
  4. Initially developed to eliminate problems associated in response to wildfire, the Incident Response System (IRS) evolved into an “all-risk” system supposedly suitable for any type of emergency (natural hazards, Man-made emergencies) of nearly any size, from a small fire incident to major event such as Cyclone which involves numerous agencies.
  5. IRS helps in bringing several departments/agencies on common platform to achieve quick and effective response.
  6. IRS supersedes the different organizational structures, line of authority and communication patterns by boarding all agencies on common platform through giving them common objective, resource sharing and common language.

 

you can view video on Incident Response System

 

References

  • Bigley, G. A., & Roberts, K. H. (2001). The Incident Command Systems: High-Realibility Organizing for Complex and Volatile Task Environments. The Academy of Management Journal, 1281-1299.
  • Buck, D. A., Trainor, J. E., & Aguirre, B. E. (2006). A Critical Evaluation of the Incident Command System and NIMS. Journal of Homeland Security and Emergency Management, 1-29.
  • Cole, D. (2000). The Incident Command System: A 25-year evaluation by California practitioners . Emmitsburg: NFA.
  • Coppola, D. P. (2007). Introduction to International Disaster Management . Oxford : Elsevier.
  • Etkin, D. (2016). Disaster Theory An Interdisciplinary Approach to Concepts and Causes. Oxford: Elsevier.
  • Hansen, R. R. (2006). Letter to the Editor Regarding Incident Command System(ICS). Journal of Homeland Security and Emergency Management , 1-3.
  • Moynihan, D. P. (2009). The Network Governance of Crisis Response: Case studies of Incident Command Systems. Journal of Public Administration Research and Theory, 895-915. (2010). National Disaster Management Guidlines-Incident Response System. New Delhi: National Disaster Management Authority.
  • Rubens, D. (2015). Beyond ‘Command and Control’:Developing a New Paradigm for Incident Command Systems,Critical Decisoin-making and 21st Century Crisis Response. Porsmouth.
  • Satish K. Pillai, T. N. (2014, October 17). Developing an Incidnet Management System to Support Ebola Response-Liberia,July-August 2014. Morbidity and Mortality Weekly Report, pp. 930-933.