Organizational Flexibility in ICS
Lesson 6 Overview
The Organizational Flexibility lesson introduces you to
flexibility within the standard ICS organizational structure.
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At the end of this lesson, you should be able to:
•
Explain how the modular organization expands and
contracts.
•
Identify factors to consider when analyzing the complexity
of an incident.
•
Define the five types of incidents.
1
Flexibility and Standardization
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Standardization within ICS does NOT limit flexibility.
ICS works for small, routine operations as well as
catastrophic events.
Flexibility does NOT mean that the NIMS
Management Characteristic Common Terminology is
superseded. Flexibility is exercised only within the
standard ICS organizational structure and position
titles. Flexibility does not mean using non-standard
organizational structures or position titles that would
interfere with the NIMS Management Characteristics
Common Terminology and Modular Organization.
2
Modular Organization
Incident command
organizational structure is
based on:
•
Size and complexity of the
incident
•
Specifics of the hazard
environment created by
the incident
•
Incident planning process
and incident objectives
3
Discussion Question
Should an incident's ICS organizational
structure include all General and Command Staff
functions and positions at all times?
4
ICS Expansion and Contraction
Although there are no hard-
and-fast rules, it is important to
remember that:
•
Only functions and positions
that are necessary to
achieve incident objectives
are filled.
•
Each activated element must
have a person in charge.
•
An effective span of control
must be maintained.
5
Activation of Organizational Elements
Many incidents will never require
the activation of the entire
Command or General Staff or
entire list of organizational
elements within each Section.
Other incidents will require some
or all members of the Command
Staff and all sub-elements of each
General Staff section.
The decision to activate an
element (Section,
Branch, Division, Group or Unit)
must be based on incident
objectives and resource needs.
6
Activation of Organizational Elements
(Continued)
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For example, the Situation
Unit can be activated
without a Planning Section
Chief assigned. In this case,
the supervision of the
Situation Unit will rest with
the Incident Commander.
7
Discussion Question
Should you combine ICS positions and titles in
order to save on staffing or achieve a higher level
of efficiency?
8
Avoid Combining Positions
It is tempting to combine ICS positions to gain staffing efficiency. Rather than
combining positions, you may assign the same individual to supervise multiple
units.
When assigning personnel to multiple positions, do not use nonstandard titles.
Creating new titles may be unrecognizable to assisting or cooperating
personnel and may cause confusion. Be aware of potential span-of-control
issues that may arise from assigning one person to multiple positions.
9
Resource Management
Maintaining an accurate and up-to-date
picture of resource utilization is a critical
component of incident management. The
incident resource management process
consists of the following:
•
Identifying Requirements
•
Ordering and Acquiring
•
Mobilizing
•
Tracking and Reporting
•
Demobilizing
•
Reimbursing and Restocking
This section of the lesson reviews key
resource management principles.
10
Anticipating Incident Resource Needs
Experience and training will help you
to predict workloads and
corresponding staffing needs. As the
graphic illustrates, an incident may
build faster than resources can arrive.
Eventually, a sufficient number of
resources arrive and begin to control
the incident. As the incident declines,
resources then exceed incident
needs. Remember that when
resources increase or decrease you
will have to reassess your
organizational structure and staffing
to determine if it is right-sized for the
resources that are being managed.
11
Predicting Incident Workload
Incident workload patterns are often predictable
throughout the incident life cycle. Several examples
are provided below:
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12
Analyzing Incident Complexity
It is important to strike the right
balance when determining
resource needs. Having too few
resources can lead to loss of life
and property, while having too
many resources can result in
unqualified personnel deployed
without proper supervision.
A complexity analysis can help:
•
Identify resource requirements
•
Determine if the existing
management structure is
appropriate
13
Complexity Analysis Factors
•
Community and responder safety
•
Impacts to life, property, and the economy
•
Potential hazardous materials
•
Weather and other environmental influences
•
Likelihood of cascading events
•
Potential crime scene (including terrorism)
•
Political sensitivity, external influences, and media relations
•
Area involved, jurisdictional boundaries
•
Availability of resources
14
ACTIVITY 6.1: COMPLEXITY
ANALYSIS
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1.
Select an incident (e.g., flood, building collapse, water main break, bridge accident, hostage,
hazardous materials, fire, disease outbreak, planned event, etc.). (Or you may want to
assign an incident type to each team.)
2.
Using the worksheet in the Student Manual (see the next page), identify a list of indicators
that you might consider in order to determine the complexity of this incident. List the top
three critical factors on chart paper.
3.
Choose a spokesperson and be ready to present your complexity analysis to the class in 15
minutes.
15
Incident Complexity and Resource
Needs
As illustrated below, when incident complexity
increases, your resource needs and ICS structure
grow accordingly.
16
Resource Typing
Resource Typing defines and categorizes incident
resources by capability. Typing is done to ensure that
responders get the right personnel and equipment.
ICS resources are categorized by Capability, Category,
Kind, and Type.
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17
Discussion Question
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is an example of ?
•
Ordering a canine team is an example of ?
18
Importance of Resource Typing
Requesting a resource kind without specifying a
resource type could result in an inadequate
resource arriving on the scene.
The Order: "We need a HazMat team."
19
Resource Typing (Continued)
Resource types range from Type I (most capable)
to Type IV (least capable), letting you reserve the
appropriate level of resource for your incident by
describing the size, capability, and staffing
qualifications of a specific resource.
20
Resource Typing and NIMS
Resource Management is a key
component of NIMS. This effort helps
all Federal, State, tribal, and local
jurisdictions locate, request, and track
resources to assist neighboring
jurisdictions when local capability is
overwhelmed.
The Resource Typing Library Tool
(RTLT) is an online catalogue of
national resource typing definitions,
position qualifications and Position
Task Books (PTBs) provided by the
Federal Emergency Management
Agency (FEMA).
For more information you can access
the RTLT at
https://rtlt.preptoolkit.fema.gov
.
21
Additional Resource Terminology
The following terms apply to resources:
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22
Discussion Question
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Five Type I ambulances and crew complements with a leader.
•
One Type I ambulance and crew complement.
•
One Type III Helicopter, one Urban Search & Rescue Team, and one Emergency Medical
Technician with a leader.
23
Incident Typing: Overview
Incidents, like resources, may be
categorized into five types based
on complexity. Type 5 incidents
are the least complex and Type 1
the most complex. Incident typing
may be used to:
•
Make decisions about resource
requirements.
•
Order Incident Management
Teams (IMTs). An IMT is made
up of the Command and
General Staff members in an
ICS organization.
24
Incident Typing: Overview
(Continued)
The incident type corresponds to both the number of resources
required and the anticipated incident duration. The incident types
move from Type 5 being the least complex to Type 1 being the
most complex. As the number of resources required gets larger
and the duration of the incident gets longer, the complexity
increases. The vast majority of incidents are in the Type 3-5
range.Clocks do not depict length of incident time.
25
Type 5 Incident
Characteristics of a Type 5 Incident
are as follows:
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.
Examples include a vehicle fire, an
injured person, or a police traffic stop.
26
Type 4 Incident
Characteristics of a Type 4
Incident are as follows:
•
R
e
s
o
u
r
c
e
s
:
C
o
m
m
a
n
d
S
t
a
f
f
a
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d
G
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n
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r
a
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d
(
o
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l
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d
)
.
S
e
v
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.
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p
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n
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m
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d
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.
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b
r
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e
f
i
n
g
i
s
c
o
m
p
l
e
t
e
d
.
27
Type 3 Incident
Characteristics of a Type 3 Incident are as follows:
•
R
e
s
o
u
r
c
e
s
:
W
h
e
n
c
a
p
a
b
i
l
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t
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s
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x
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s
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o
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a
d
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o
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a
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(
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M
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)
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•
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i
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r
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t
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n
a
l
p
e
r
i
o
d
.
28
Type 2 Incident
Characteristics of a Type 2 Incident are as follows:
•
R
e
s
o
u
r
c
e
s
:
R
e
g
i
o
n
a
l
a
n
d
/
o
r
n
a
t
i
o
n
a
l
r
e
s
o
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r
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s
a
r
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r
e
q
u
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d
t
o
s
a
f
e
l
y
a
n
d
e
f
f
e
c
t
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v
e
l
y
m
a
n
a
g
e
t
h
e
o
p
e
r
a
t
i
o
n
s
.
M
o
s
t
o
r
a
l
l
C
o
m
m
a
n
d
a
n
d
G
e
n
e
r
a
l
S
t
a
f
f
p
o
s
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t
i
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a
r
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f
i
l
l
e
d
.
O
p
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r
a
t
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s
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r
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l
t
y
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l
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d
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n
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d
2
0
0
p
e
r
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a
t
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r
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5
0
0
.
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h
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a
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r
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d
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l
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g
a
t
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f
a
u
t
h
o
r
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t
y
.
•
T
i
m
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S
p
a
n
:
T
h
e
i
n
c
i
d
e
n
t
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x
p
e
c
t
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d
t
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t
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p
l
e
o
p
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r
a
t
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n
a
l
p
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r
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d
s
.
A
w
r
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n
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n
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t
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c
t
i
o
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d
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a
c
h
o
p
e
r
a
t
i
o
n
a
l
p
e
r
i
o
d
.
29
Type 1 Incident
Characteristics of a Type 1 Incident are as follows:
•
R
e
s
o
u
r
c
e
s
:
N
a
t
i
o
n
a
l
r
e
s
o
u
r
c
e
s
a
r
e
r
e
q
u
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d
t
o
s
a
f
e
l
y
a
n
d
e
f
f
e
c
t
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v
e
l
y
m
a
n
a
g
e
t
h
e
o
p
e
r
a
t
i
o
n
s
.
A
l
l
C
o
m
m
a
n
d
a
n
d
G
e
n
e
r
a
l
S
t
a
f
f
p
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s
i
t
i
o
n
s
a
r
e
a
c
t
i
v
a
t
e
d
,
a
n
d
B
r
a
n
c
h
e
s
n
e
e
d
t
o
b
e
e
s
t
a
b
l
i
s
h
e
d
.
O
p
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r
a
t
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s
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l
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5
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p
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w
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l
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s
u
a
l
l
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e
x
c
e
e
d
1
,
0
0
0
.
T
h
e
r
e
i
s
a
h
i
g
h
i
m
p
a
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c
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u
r
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d
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,
r
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u
i
r
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a
d
d
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t
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a
f
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f
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p
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t
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s
.
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h
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i
n
c
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n
t
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a
y
r
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s
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l
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a
d
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s
a
s
t
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r
d
e
c
l
a
r
a
t
i
o
n
.
•
T
i
m
e
S
p
a
n
:
T
h
e
i
n
c
i
d
e
n
t
i
s
e
x
p
e
c
t
e
d
t
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g
o
i
n
t
o
m
u
l
t
i
p
l
e
o
p
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r
a
t
i
o
n
a
l
p
e
r
i
o
d
s
.
A
w
r
i
t
t
e
n
I
n
c
i
d
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n
t
A
c
t
i
o
n
P
l
a
n
i
s
r
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q
u
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d
f
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r
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a
c
h
o
p
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r
a
t
i
o
n
a
l
p
e
r
i
o
d
.
30
Incident Management Teams (IMTs)
IMTs are rostered groups of ICS-qualified personnel
consisting of an Incident Commander, other incident
leadership, and personnel qualified for other key ICS
positions. An IMT may be used to respond to an
incident. IMTs include Command and General Staff
members. IMT types correspond to incident type and
include:
•
Type 5: Local Village and Township Level
•
Type 4: City, County, or Fire District Level
•
Type 3: State, Territory, Tribal, or Metropolitan Area
Level
•
Type 2: National and State Level
•
Type 1: National and State Level (Type 1 Incident)
Team members are certified as having the necessary
training and experience to fulfill IMT positions.
31
ACTIVITY 6.2: INCIDENT TYPES
A
c
t
i
v
i
t
y
P
u
r
p
o
s
e
:
T
o
g
i
v
e
s
t
u
d
e
n
t
s
p
r
a
c
t
i
c
e
a
t
d
e
t
e
r
m
i
n
i
n
g
i
n
c
i
d
e
n
t
t
y
p
e
s
f
o
r
v
a
r
i
o
u
s
s
c
e
n
a
r
i
o
s
.
T
i
m
e
:
1
5
m
i
n
u
t
e
s
I
n
s
t
r
u
c
t
i
o
n
s
:
W
o
r
k
i
n
g
w
i
t
h
y
o
u
r
t
e
a
m
:
1.
Review the facts presented about the five incident scenarios in your
Student Manual.
2.
Determine the incident type.
3.
Choose a spokesperson and be ready to list the incident types for
each scenario in 10 minutes.
Note: A table summarizing characteristics of each type is provided after
the scenarios.
32
Lesson Completion
You have completed the Organizational Flexibility
lesson. You should now be able to:
•
Explain how the modular organization expands and
contracts.
•
Identify factors to consider when analyzing the
complexity of an incident.
•
Define the five types of incidents.
The next lesson will cover transfer of command.
33
Explore the concept of organizational flexibility within the standard ICS structure, learning how the modular organization can expand and contract based on incident complexity and size. Delve into the guiding principles of NIMS, the importance of standardization alongside flexibility, and key considerations for activating and maintaining organizational elements in response to incidents.
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Lesson 6 Overview The Organizational Flexibility lesson introduces you to flexibility within the standard ICS organizational structure. Lesson Objectives At the end of this lesson, you should be able to: Explain how the modular organization expands and contracts. Identify factors to consider when analyzing the complexity of an incident. Define the five types of incidents. 1
Flexibility and Standardization A guiding principle of NIMS is flexibility. The ICS organization may be expanded easily from a very small size for routine operations to a larger organization capable of handling catastrophic events. Standardization within ICS does NOT limit flexibility. ICS works for small, routine operations as well as catastrophic events. Flexibility does NOT mean that the NIMS Management Characteristic Common Terminology is superseded. Flexibility is exercised only within the standard ICS organizational structure and position titles. Flexibility does not mean using non-standard organizational structures or position titles that would interfere with the NIMS Management Characteristics Common Terminology and Modular Organization. 2
Modular Organization Incident command organizational structure is based on: Size and complexity of the incident Specifics of the hazard environment created by the incident Incident planning process and incident objectives 3
Discussion Question Should an incident's ICS organizational structure include all General and Command Staff functions and positions at all times? 4
ICS Expansion and Contraction Although there are no hard- and-fast rules, it is important to remember that: Only functions and positions that are necessary to achieve incident objectives are filled. Each activated element must have a person in charge. An effective span of control must be maintained. 5
Activation of Organizational Elements Many incidents will never require the activation of the entire Command or General Staff or entire list of organizational elements within each Section. Other incidents will require some or all members of the Command Staff and all sub-elements of each General Staff section. The decision to activate an element (Section, Branch, Division, Group or Unit) must be based on incident objectives and resource needs. 6
Activation of Organizational Elements (Continued) An important concept is that many organizational elements may be activated in various Sections without activating the Section Chief. For example, the Situation Unit can be activated without a Planning Section Chief assigned. In this case, the supervision of the Situation Unit will rest with the Incident Commander. 7
Discussion Question Should you combine ICS positions and titles in order to save on staffing or achieve a higher level of efficiency? 8
Avoid Combining Positions It is tempting to combine ICS positions to gain staffing efficiency. Rather than combining positions, you may assign the same individual to supervise multiple units. When assigning personnel to multiple positions, do not use nonstandard titles. Creating new titles may be unrecognizable to assisting or cooperating personnel and may cause confusion. Be aware of potential span-of-control issues that may arise from assigning one person to multiple positions. 9
Resource Management Maintaining an accurate and up-to-date picture of resource utilization is a critical component of incident management. The incident resource management process consists of the following: Identifying Requirements Ordering and Acquiring Mobilizing Tracking and Reporting Demobilizing Reimbursing and Restocking This section of the lesson reviews key resource management principles. 10
Anticipating Incident Resource Needs Experience and training will help you to predict workloads and corresponding staffing needs. As the graphic illustrates, an incident may build faster than resources can arrive. Eventually, a sufficient number of resources arrive and begin to control the incident. As the incident declines, resources then exceed incident needs. Remember that when resources increase or decrease you will have to reassess your organizational structure and staffing to determine if it is right-sized for the resources that are being managed. 11
Predicting Incident Workload Incident workload patterns are often predictable throughout the incident life cycle. Several examples are provided below: Operations Section: The workload on Operations is immediate and often massive. On a rapidly escalating incident, the Operations Section Chief must determine appropriate tactics; organize, assign, and supervise resources; and at the same time participate in the planning process. Planning Section: The Resources and Situation Units will be very busy in the initial phases of the incident. In the later stages, the workload of the Documentation and Demobilization Units will increase. Logistics Section: The Supply and Communications Units will be very active in the initial and final stages of the incident. 12
Analyzing Incident Complexity It is important to strike the right balance when determining resource needs. Having too few resources can lead to loss of life and property, while having too many resources can result in unqualified personnel deployed without proper supervision. A complexity analysis can help: Identify resource requirements Determine if the existing management structure is appropriate 13
Complexity Analysis Factors Community and responder safety Impacts to life, property, and the economy Potential hazardous materials Weather and other environmental influences Likelihood of cascading events Potential crime scene (including terrorism) Political sensitivity, external influences, and media relations Area involved, jurisdictional boundaries Availability of resources 14
ACTIVITY 6.1: COMPLEXITY ANALYSIS Activity Purpose: To give the students practice at identifying the indicators that are considered when analyzing and determining the complexity of an incident. Time: 20 minutes Instructions: Working in your team: 1. Select an incident (e.g., flood, building collapse, water main break, bridge accident, hostage, hazardous materials, fire, disease outbreak, planned event, etc.). (Or you may want to assign an incident type to each team.) 2. Using the worksheet in the Student Manual (see the next page), identify a list of indicators that you might consider in order to determine the complexity of this incident. List the top three critical factors on chart paper. 3. Choose a spokesperson and be ready to present your complexity analysis to the class in 15 minutes. 15
Incident Complexity and Resource Needs As illustrated below, when incident complexity increases, your resource needs and ICS structure grow accordingly. 16
Resource Typing Resource Typing defines and categorizes incident resources by capability. Typing is done to ensure that responders get the right personnel and equipment. ICS resources are categorized by Capability, Category, Kind, and Type. Capability: The Core Capability or which a resource is most useful. Category: The function for which a resource is most useful. Kind: A description of what a resource is (personnel, teams, facilities, equipment or supplies). Type: The resource's minimum capability to perform its function. The level of capability is based on size, power and capacity (for equipment), or experience and qualifications (for personnel or teams). 17
Discussion Question Which is a kind? Which is a type? Ordering a bus with seating for more than 40 adults is an example of ? Ordering a canine team is an example of ? 18
Importance of Resource Typing Requesting a resource kind without specifying a resource type could result in an inadequate resource arriving on the scene. The Order: "We need a HazMat team." 19
Resource Typing (Continued) Resource types range from Type I (most capable) to Type IV (least capable), letting you reserve the appropriate level of resource for your incident by describing the size, capability, and staffing qualifications of a specific resource. 20
Resource Typing and NIMS Resource Management is a key component of NIMS. This effort helps all Federal, State, tribal, and local jurisdictions locate, request, and track resources to assist neighboring jurisdictions when local capability is overwhelmed. The Resource Typing Library Tool (RTLT) is an online catalogue of national resource typing definitions, position qualifications and Position Task Books (PTBs) provided by the Federal Emergency Management Agency (FEMA). For more information you can access the RTLT at https://rtlt.preptoolkit.fema.gov. 21
Additional Resource Terminology The following terms apply to resources: A Task Forceis a combination of mixed resources with common communications operating under the direct supervision of a Task Force Leader. A Strike Team / Resource Team is a set number of resources of the same kind and type with common communications operating under the direct supervision of a Strike Team Leader. A Strike Team may also be referred to as a Resource Team by law enforcement. A Single Resource is an individual, a piece of equipment and its personnel complement, or a crew or team of individuals with an identified work supervisor that can be used on an incident. 22
Discussion Question Which of these is Strike (Resource) Team? Task Force? Single Resource? Five Type I ambulances and crew complements with a leader. One Type I ambulance and crew complement. One Type III Helicopter, one Urban Search & Rescue Team, and one Emergency Medical Technician with a leader. 23
Incident Typing: Overview Incidents, like resources, may be categorized into five types based on complexity. Type 5 incidents are the least complex and Type 1 the most complex. Incident typing may be used to: Make decisions about resource requirements. Order Incident Management Teams (IMTs). An IMT is made up of the Command and General Staff members in an ICS organization. 24
Incident Typing: Overview (Continued) The incident type corresponds to both the number of resources required and the anticipated incident duration. The incident types move from Type 5 being the least complex to Type 1 being the most complex. As the number of resources required gets larger and the duration of the incident gets longer, the complexity increases. The vast majority of incidents are in the Type 3-5 range.Clocks do not depict length of incident time. 25
Type 5 Incident Characteristics of a Type 5 Incident are as follows: Resources: One or two single resources with up to six personnel. Command and General Staff positions (other than the Incident Commander) are not activated. Time Span: Incident is contained within the first operational period and often within a few hours after resources arrive on scene. No written Incident Action Plan is required. Examples include a vehicle fire, an injured person, or a police traffic stop. 26
Type 4 Incident Characteristics of a Type 4 Incident are as follows: Resources:Command Staff and General Staff functions are activated (only if needed). Several single resources are required to mitigate the incident. Time Span: Limited to one operational period in the control phase. No written Incident Action Plan is required for non- HazMat incidents. A documented operational briefing is completed. 27
Type 3 Incident Characteristics of a Type 3 Incident are as follows: Resources: When capabilities exceed initial response, the appropriate ICS positions should be added to match the complexity of the incident. Some or all of the Command and General Staff positions may be activated, as well as Division or Group Supervisor and/or Unit Leader level positions. An Incident Management Team (IMT) or incident command organization manages initial action incidents with a significant number of resources, and an extended response incident until containment/control is achieved. Time Span: The incident may extend into multiple operational periods and a written Incident Action Plan may be required for each operational period. 28
Type 2 Incident Characteristics of a Type 2 Incident are as follows: Resources: Regional and/or national resources are required to safely and effectively manage the operations. Most or all Command and General Staff positions are filled. Operations personnel typically do not exceed 200 per operational period and the total does not exceed 500. The agency administrator/official is responsible for the incident complexity analysis, agency administrator briefings, and written delegation of authority. Time Span: The incident is expected to go into multiple operational periods. A written Incident Action Plan is required for each operational period. 29
Type 1 Incident Characteristics of a Type 1 Incident are as follows: Resources: National resources are required to safely and effectively manage the operations. All Command and General Staff positions are activated, and Branches need to be established. Operations personnel often exceed 500 per operational period and total personnel will usually exceed 1,000. There is a high impact on the local jurisdiction, requiring additional staff for office administrative and support functions. The incident may result in a disaster declaration. Time Span: The incident is expected to go into multiple operational periods. A written Incident Action Plan is required for each operational period. 30
Incident Management Teams (IMTs) IMTs are rostered groups of ICS-qualified personnel consisting of an Incident Commander, other incident leadership, and personnel qualified for other key ICS positions. An IMT may be used to respond to an incident. IMTs include Command and General Staff members. IMT types correspond to incident type and include: Type 5: Local Village and Township Level Type 4: City, County, or Fire District Level Type 3: State, Territory, Tribal, or Metropolitan Area Level Type 2: National and State Level Type 1: National and State Level (Type 1 Incident) Team members are certified as having the necessary training and experience to fulfill IMT positions. 31
ACTIVITY 6.2: INCIDENT TYPES Activity Purpose: To give students practice at determining incident types for various scenarios. Time: 15 minutes Instructions: Working with your team: 1.Review the facts presented about the five incident scenarios in your Student Manual. 2.Determine the incident type. 3.Choose a spokesperson and be ready to list the incident types for each scenario in 10 minutes. Note: A table summarizing characteristics of each type is provided after the scenarios. 32
Lesson Completion You have completed the Organizational Flexibility lesson. You should now be able to: Explain how the modular organization expands and contracts. Identify factors to consider when analyzing the complexity of an incident. Define the five types of incidents. The next lesson will cover transfer of command. 33
