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The Incident Command System for a Unified Approach to Marine Oil Spill Response |
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| Preface | Statement of Authority | Purpose & Scope | Incident Command System | Appendices | |
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Preface
The Oil Spill Memorandum of Cooperation (June 1989), between the Province of British Columbia and the States of Washington, Oregon, Alaska, and California, provides the basis for development of coordinated programs for oil pollution prevention, preparedness, and response. The avenue for fostering this cooperation is provided by the States/BC Oil Spill Task Force and its committees. The intent of this document is to foster a consistent approach to managing a significant marine oil spill on the west coast by adopting an internationally recognized and proven method of emergency management called "the Incident Command System" (ICS). This document may be used as a resource to support oil spill response by the Province of British Columbia and States of Alaska, Washington, Oregon, and California. Any Task Force member agency, having adopted the Incident Command System (or a variation thereof) for spill response, may use it to meet their respective needs. This document will be reviewed and maintained annually by the response committee of the States/BC Oil Spill Task Force to ensure that the information remains current. Return to Top |
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Statement of Authority
This document, which endorses the Incident Command System for marine oil spill response, is pursuant to, and follows the intent of, the States/British Columbia Oil Spill Memorandum of Co-operation of 1989 and is endorsed by the States/British Columbia Oil Spill Task Force as represented by the following members: Province of British Columbia Gerry Armstrong BC Ministry of Environment, Lands & Parks State of Alaska John Sandor Department of Environmental Conservation State of Washington Mary Riveland Department of Ecology State of Washington Barbara Herman Office of Marine Safety State of Oregon Fred Hansen Department of Environmental Quality State of California Pete Bontadelli Office of Oil Spill Prevention & Response Signed 7/19/93 Return to Top |
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Purpose and Scope
Purpose This document provides a common organizational framework for emergency management during marine oil spill response activities between any of the Province of British Columbia (the "province") and the States of Alaska, Washington, Oregon, and California (the "states"). It is applicable whenever a marine oil spill incident has the potential to affect people, property, or the environment. The state or province in which the marine oil spill exists may request assistance from another jurisdiction (refer to the States/BC Oil Spill Task Force: Mutual Aid Plan). The use of a common response approach facilitates any call for assistance or joint response by clarifying the organizational context in which equipment or personnel would be employed. Uniformity in response organization is particularly important whenever a spill crosses state or international boundaries. Adopting a common approach also facilitates and fosters the sharing of resources and responsibility among other marine oil spill responders, such as industry and Coast Guard through the mechanism of unified command. As a component of marine oil spill preparedness, the document serves as a reference on and encouragement for the use of a common emergency management system for industry, associations, and agencies interested in developing their own response plans and teams. Scope This document endorses the internationally known and proven approach to emergency management called the " Incident Command System" (ICS). The document provides background information on the ICS and guiding principles for arranging for and agreeing to its use. The plan does not supersede any state or provincial emergency response plans currently in place, and does not attempt to duplicate internal emergency procedures. Return to Top |
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The Incident Command System
Organizational Context The Incident Command System (ICS) is a usable, adaptable, and well-tested approach to emergency management that is gaining increasing acceptance by government and industry. The ICS provides a management system which organizes the functions, tasks, and staff within the overall emergency response. It transforms the confusion of an emergency into a well-managed response by recognizing "people" as the primary assets and providing them the critical answers to the questions "who's in charge?" and "what's my job?". The ICS promotes communication and coordination. The success of the ICS rests with: á modular organization á the use of common terminology á unified command structure á span-of-control á resource management. The ICS organization is comprised of five functional sections: Command, Operations, Planning, Logistics, and Finance. The basic structure is as follows: 
The Command Section has an Incident Commander and command staff. Each of the other four sections is managed by a Section Chief (the general staff) and supported by other functional units. The Sections have specific functions, as follows: * COMMAND - Setting Response Objectives and Undertaking Coordination * OPERATIONS - Undertaking Tactical Response Actions * PLANNING - Investigating and Establishing Technical Basis for Action Plans * LOGISTICS - Providing Equipment and Services * FINANCE - Managing Finances and Administration The ICS organization structure develops in a "modular" fashion based on the kind and scale of marine oil spill. The ICS is capable of expanding to meet an escalating situation by invoking sections, divisions, branches, groups, units, or strike teams as required. Common terminology is used throughout the ICS (see appendix 1). Unified Command Environmental emergencies disregard jurisdictional boundaries. The effective management of a large emergency requires the coordination, participation, and support of all the main "stakeholders" that have either functional responsibilities (fire fighting, law enforcement, social services), jurisdictional responsibility (local, provincial/state, or federal governments), or both. The responsible party may also be represented. The concept of unified command simply means that all departments, agencies, and/or responsible party having a functional, jurisdictional, or legal responsibility at an incident contribute to the process of: * determining overall response strategy and objectives (COMMAND) * insuring that joint planning for response activities will be accomplished (PLANNING) * insuring that integrated operations are conducted (OPERATIONS) * making maximum use of all assigned resources (LOGISTICS) * keeping track of financial costs (FINANCE) Where a marine spill affects state or provincial shores and federal waters, a unified command structure could consist of empowered officials representing each jurisdiction and the responsible party (see figure 2). Each jurisdiction/responsible party maintains its own identity and autonomy but, by establishing a unified command, will be able to undertake consensus decision-making. One member of the unified command can be selected as the overall spokesperson. This person may represent the primary jurisdiction (e.g. federal, state, provincial) being affected and/or a functional responsibility (e.g. securing vessel, shore protection, beach cleanup). Generally, each team represented (state/province, federal, responsible party) will have already designated a person to represent its respective jurisdictional interests. 
The diagram shows a model of unified command. Each jurisdiction is represented in the Command Section for the purpose of determining an overall response strategy and delineating response roles. Based on a consensus decision by unified command members, operations may be undertaken primarily by one jurisdiction, for example Coast Guard, whereas planning is undertaken jointly by state/provincial environment or ecology agencies. Each group may be responsible for their logistics and finance. Each unified command member can speak on behalf of his/her jurisdiction's response role and efforts, whereas a selected spokesperson can speak on behalf of the overall coordinated efforts of all the responding parties. General Principles The following general principles shall be applied by the States/BC Oil Spill Task Force members: 1. the organizational structure and functions of the five ICS sections command, operations, planning, logistics and finance will remain consistent, whereas the organizational components beneath, such as divisions, groups, branches, units and strike teams, are subject to the individual requirements of the planning or responding state or province; 2. the ICS terminology will be used, wherever possible, in documents and communications among Task Force members; 3. the concept, purpose, and organization of "unified command" will be encouraged by task force members wherever there is a need for primary "stakeholders" to share in the development of a response strategy, planning, tactical activities, and resources; 4. the ICS organization and process will be encouraged when designing and implementing marine oil spill response training and exercises; 5. the development of qualifications and certification for marine oil spill responders would, in part, be based on a firm understanding of the ICS; 6. the ICS will be promoted generally through seminars, meetings and training. Return to Top |
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Appendices
Appendix 1 - The Incident Command System Terminology Appendix 2 - Listing of Organizations Using the Incident Command System Appendix 1 - The Incident Command System Terminology Allocated Resources - Resources dispatched to an incident that have not yet checked in with Logistics Section. Assigned Resources - Resources checked in and assigned work tasks on an incident. Assisting Agency - An agency directly contributing operation, planning, or other support services to another agency. Available Resources - Resources assigned to an incident and available for an assignment Branch - An ICS organization level having functional and/or geographic responsibility for major segments of incident operations. The Branch level is between Section and Division/Group. Camp - A geographical site, within the general incident area, separate from the base, equipped and staffed to provide food, water, and sanitary services to response personnel. Check-in - Locations where assigned resources (people, equipment) check in or are logged. The locations can be: Incident Command Post, Incident Base, Camps, Staging Areas, Helibases. Command - The act of directing, ordering, and/or controlling resources by virtue of explicit legal, company, agency, or delegated authority. Command Staff - The Command Staff consists of the Information Officer, Safety Officer, and Liaison Officer, who report directly to the IncidentCommander. Comm. Unit - A Unit responsible for providing communications support and the Communications Plan for the incident. Coordination - The process of systematically analyzing a situation, developing relevant information, and informing appropriate Command authority of viable alternatives for selecting the most effective combination of available resources to meet specific objectives. Cooperating Agency - An agency supplying assistance other than direct operations, rescue, support, or service functions to the incident control effort (e.g., Red Cross, law enforcement agency, telephone company, etc.). Division - That organization level having responsibility for operations within a defined geographic area or for a function. The Division level is organizationally between the Strike Team/Task Force and the Branch (See also "Group"). Finance Chief - The person responsible for all financial and cost analysis aspects of the incident and for supervising members of the finance section. General Staff - The group of incident management personnel comprises of: á Incident Commander á Logistics Chief á Operations Chief á Finance Chief á Planning Chief Group - A functional division (e.g., repair, wildlife rehabilitation, structure protection, etc.). Incident - An occurrence or event, either human caused or natural phenomenon, that requires action by emergency service personnel to prevent or minimize loss of life or damage to property and/or natural resources. Incident Action Plan - The Incident Action Plan, which is prepared at the initial Planning Meeting, contains general Control Objectives reflectingthe overall incident strategy and specific action plans for the next operational period. The Incident Action Plans will have a number of attachments. Incident Base - That location at which the primary logistics functions are coordinated and administered. (Incident name or other designator will be added to the term "Base".) The Incident Command Post may be co-located with the base. There is only one base per incident. Incident Commander - The individual responsible for incident activities, including the development and implementation of strategic decisions, and for approving the ordering and releasing of resources. Incident Command Post (ICP) - That location at which the primary command functions are executed and usually co-located with the incident base. Incident Command System (ICS) - The combination of facilities, equipment, personnel, procedures, and communications operating within a common organizational structure with responsibility for the management of assigned resources to effectively accomplish stated objectives pertaining to an incident. Information Officer - A member of the command staff responsible for the formulation and release of information about the incident to the news media and the public. Initial Response - Resources initially committed to an incident. Initial Response Team - Predetermined individuals that supervise, organize, and train principally for immediate and initial response to an incident. Jurisdictional Company/Agency - The organization having jurisdiction and responsibility for a specific geographical area. Liaison Officer - A member of the command staff and the point of contact for the assisting and cooperating agency representatives. Logistics Chief - A member of the general staff responsible for providing facilities, services, and material in support of the incident. The Logistics chief participates in development and implementation of the Incident Action Plan, and activates and supervises the units within the logistics section. Management By Objective (MBO) - Top down management so that all involved know and understand the objectives of the operation. Message Centre - The Message Centre is part of the Communications Centre and is co-located or placed adjacent to it. It receives, records, and routes information about resources reporting to the incident, resource states, and administration and tactical traffic. Mutual Aid - The method used to obtain additional resources from other companies, response organizations, and agencies. Operations Chief - A member of the general staff responsible for the management of all tactical operations in accordance with the Incident Action Plan. Out-of-service Resources - Resources assigned to an incident but unable to respond for mechanical, rest, or personnel reasons. Overhead Personnel - Personnel who are assigned to supervisory positions which includes Incident Commander, Command Staff, General Staff, Directors, Supervisors, and Unit Leaders. Planning Chief -A member of the incident commander's general staff responsible for collection, evaluation dissemination, and use of information about the development of the incident and status of resources. Information is needed to: 1) understand the current situation; 2) predict probable course of incident events; and, 3) prepare alternative strategies and control operations for the incident. Planning Meeting - A meeting, held as needed throughout the duration of an incident, to select specific strategies and tactics for incident control operations and for logistical planning. Reporting Locations - Any one of six facilities/locations where incident assigned resources may check in. The locations are: Incident Command Post - Resources Unit (RESTAT), base camp, staging area, helibase, or Division Supervisor for direct line assignments. Resources - All personnel and major items of equipment available, or potentially available, for assignment to incident tasks on which status is maintained. Safety Officer -A member of the command staff responsible for monitoring and assessing hazardous and unsafe situations and developing measures for assuring personnel safety. Section - That organizational level having functional responsibility for primary segments of incident operations such as : operations, planning, logistics, finance. The section level is organizationally between Branch and Incident Commander. Span-Of-Control - The supervisory ratio of from three to seven individuals with 5:1 being established as a general rule of thumb. Staging Area - That location where incident personnel and equipment are available for tactical deployment. Strike Team - Specified combinations of the same kind and type of resources, with common communication and a leader. Tactics Meeting - A meeting scheduled by the Planning Section Chief where the Operations Section Chief provides direction on how tactical resources will be deployed to meet the incident commander's objectives. Task Force - A group of resources with common communications and a leader temporarily assembled for a specific mission. Unified Command - A method by which all companies, agencies, or individuals who have jurisdictional responsibility, and in some cases those who have functional responsibility at the incident, are able to contribute to: á determining overall objectives for the incident á selection of a strategy to achieve the objectives á delineate and/or share response functions á joint representation at media events. Unit - That organization element having functional responsibility for a specific incident such as a planning, logistic, or finance activity. Appendix 2 - Listing of Organizations Using the Incident Command System The following associations, agencies and industries on the west coast plan, train, and/or respond to oil spills in accordance with the Incident Command System to the degree depicted in this document. CANADA BC Ministry of Environment, Lands & Parks - BC Marine Oil Spill Contingency Plan and Provincial Emergency Response Teams Canadian Petroleum Association: Task Force on Oil Spill Preparedness Burrard Clean Operations Ltd National Marine Environment Protection Plan- being considered for Response Authority organization Petro-Canada Products - Western Region Major Emergency Response Team Chevron Canada Limited Transmountain Pipeline Company Limited UNITED STATES US Occupational Safety & Health Administration: for hazardous substance spills National Interagency Incident Management System US Coast Guard: west coast districts US Environmental Protection Agency CALIFORNIA Department of Fish & Game, Office of Oil Spill Prevention & Response - Guidance Document for Use in the Preparation of Marine Facility & Vessel Oil Spill Contingency Plans "Incident Command System" British Petroleum America ALASKA Alaska Clean Seas Cooperative Alyeska Pipeline Service Company Marathon Oil Company BP Endicott Production Facility ARCO Alaska, Field Services WASHINGTON Washington Department of Ecology: Provided in department's "ICS Guidance Document" , and incorporated in the Northwest Area Plan for Washington, Oregon, Idaho, US EPA Region 10, and the US Coast Guard District 13 OREGON Oregon Department of Environmental Quality Oregon Department of Fish and Wildlife Oregon Division of State Lands Oregon State Parks and Recreation Department Oregon Emergency Management Return to Top |
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