Incident Action
Planning Guide
Revision 1
July 2015
Incident Action
Planning Guide
Revision 1 / July 2015
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FEMA
Table of Contents
Chapter 1: Introduction................................................................................................................... 1
Purpose........................................................................................................................................ 1
Applicability and Scope .............................................................................................................. 1
Supersession................................................................................................................................ 1
Authorities and Foundational Documents................................................................................... 1
Chapter 2: What is An Incident Action Plan?................................................................................. 3
Incident Action Planning............................................................................................................. 5
Incident Action Plan Considerations........................................................................................... 6
Resolving Inconsistencies between FEMA and State, Tribal, or Territorial Incident Action
Plan Guidance ......................................................................................................................... 7
Multiple Incident Action Plans ............................................................................................... 7
Incident Action Planning with Tribal Governments............................................................... 7
Planning Process Phases.............................................................................................................. 8
IAP Forms during the Process..................................................................................................... 9
Initial IAP.................................................................................................................................. 11
Deliberate Plans .................................................................................................................... 11
Using a FEMA Deliberate Plan to Develop an IAP ............................................................. 12
Linking National/Regional Support Plans to Incident Action Planning ................................... 12
Chapter 3: Phase 1—Understand The Situation ........................................................................... 13
Gaining Initial Situational Awareness ...................................................................................... 13
Collection.............................................................................................................................. 13
Analysis................................................................................................................................. 13
Dissemination ....................................................................................................................... 14
Ongoing Assessment/Situational Awareness........................................................................ 14
Establishing Initial Incident Priorities .................................................................................. 14
Developing the Action Planning Team................................................................................. 16
Initiating Incident Action Planning....................................................................................... 16
Conducting Incident Action Planning Meetings and Briefings ............................................ 16
Chapter 4: Phase 2—Establish Incident Objectives...................................................................... 21
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Responsibilities ......................................................................................................................... 21
Priorities .................................................................................................................................... 21
Incident Objectives.................................................................................................................... 22
Unified Coordination Group Develops and Updates Objectives .............................................. 24
The Command & General Staff Meeting .................................................................................. 24
Chapter 5: Phase 3 - Develop the Plan.......................................................................................... 26
Strategies ................................................................................................................................... 26
Determining Strategies.......................................................................................................... 27
Determining Tactics.............................................................................................................. 27
Assigning Resources and Describing Work Assignments.................................................... 28
Identify the Reporting Location............................................................................................ 30
Determine Logistical Support Needs to Complete the Assignment ..................................... 30
Using the Operational Planning Worksheet.............................................................................. 30
The Operations Tactics Meeting ............................................................................................... 32
Chapter 6: Phase 4 - Prepare and Disseminate the Plan ............................................................... 34
Planning Section Responsibilities............................................................................................. 35
Planning Section Chief ......................................................................................................... 35
Resource Unit........................................................................................................................ 36
Situation Unit........................................................................................................................ 38
Planning Support Unit........................................................................................................... 39
Command/General Staff ....................................................................................................... 39
Logistics Section................................................................................................................... 41
Air Operations Branch (Operations Section)........................................................................ 41
Additional Items to the IAP .................................................................................................. 41
The Planning Meeting........................................................................................................... 41
Printing and Distributing the IAP ......................................................................................... 42
Chapter 7: Phase 5 - Execute, Evaluate, and Revise the Plan....................................................... 43
Operations Briefing................................................................................................................... 43
Assess Progress and Effectiveness........................................................................................ 44
Ending Incident Action Planning.......................................................................................... 45
Annex 1: Acronyms ...................................................................................................................... 46
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Annex 2: Glossary......................................................................................................................... 48
Appendix A: How to Develop Incident Objectives ...................................................................... 51
Appendix B: Incident Command System Map Symbols .............................................................. 56
Appendix C: Job Aids for Staff Preparing FEMA ICS Forms for the IAP .................................. 57
Appendix D: Final Quality Assurance Checklist.......................................................................... 65
Appendix E: Maintaining Situational Awareness Throughout the Life Cycle of the Incident..... 66
Incorporating Deliberate Plans into Initial Situation Assessment............................................. 66
Post Initial Situation Awareness ........................................................................................... 68
Information Collection Plan...................................................................................................... 68
Situational Awareness Products................................................................................................ 68
Situation Reports................................................................................................................... 69
Spot Reports.......................................................................................................................... 69
Situation Update Briefing.......................................................................................................... 69
Responsibilities ......................................................................................................................... 70
Summary ................................................................................................................................... 70
Table of Figures
Figure 1: IAPs Developed Across All Echelons of an Incident...................................................... 4
Figure 2: The Planning “P” – The Incident Action Planning Process ............................................ 8
Figure 3: The Operations “O” – The Operational Period Cycle of the Incident Action Planning
Process ............................................................................................................................................ 9
Figure 4: Where ICS Forms are executed during the Incident Action Planning Process ............. 11
Figure 5: Phase 1 of the Incident Action Planning Process.......................................................... 16
Figure 6: Phase 2 of the Incident Action Planning Process.......................................................... 21
Figure 7: Phase 3 of the Incident Action Planning Process.......................................................... 26
Figure 8: Phase 4 of the Incident Action Planning Process.......................................................... 34
Figure 9: Phase 5 in the Incident Action Planning Process .......................................................... 43
Figure 10: Incident Command Map and Symbols ........................................................................ 56
Figure 11: Understanding the Situation ........................................................................................ 68
Table of Tables
Table 1: ICS Forms and Description ............................................................................................ 10
Table 2: Linkage between Incident Action Planning Process and Deliberate Plans .................... 12
Table 3: Core Capabilities by Mission Area (from National Preparedness Goal) ...................... 15
Table 4: Priorities—Objectives—Strategies—Tactics, Tasks, Work Assignments ..................... 23
Table 5: Sample Agenda for the C&GS meeting.......................................................................... 25
Table 6: Sample Agenda for the Operations Tactics Meeting...................................................... 33
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Table 7: IAP Components and Sequence of Assembly ................................................................ 35
Table 8: Assignment Lists Dos and Don'ts................................................................................... 36
Table 9: Sample Agenda Items for the Planning Meeting............................................................ 42
Table 10: Sample Agenda for Operations Briefing ...................................................................... 43
Table 11: Relating Incident Objectives to Incident Priorities....................................................... 51
Table 12: Suggestions for Writing Incident Objectives................................................................ 52
Table 13: Examples of Good Incident Objectives ........................................................................ 54
Table 14: Deliberate Plan Elements and their Application in IAPs.............................................. 66
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CHAPTER 1: INTRODUCTION
Purpose
This guide is intended to promote the effectiveness of incident operations by standardizing the
incident action planning process. The guide describes how the Federal Emergency Management
Agency (FEMA) applies the Incident Command System (ICS) incident action planning process.
It also defines the specific roles and responsibilities of the various organizations, and establishes
standards for incident action planning on FEMA incidents. This guide also communicates to
partners the details of how the Agency conducts the incident action planning process. In addition,
it serves as a reference for incident management personnel and provides the basis for incident
action planning staffing and exercising. Finally, this guide informs required training
, position
task books
, and development of courses in alignment with the FEMA Qualification System.
Applicability and Scope
The guidance contained in this Incident Action Planning Guide applies to all applicable
incidents, including those involving Stafford Act declarations, as well as Federal response
coordination to non-Stafford Act incidents. This guidance applies to Unified Coordination Staff
(UCS) during incident management. Finally, this guide is designed to promote cooperation and
interoperability among all levels of government, nongovernmental organizations (NGOs), and
the private sector by communicating FEMA’s commitment to incident action planning to
FEMA’s partners and sharing the details of how FEMA implements the process.
Supersession
This document supersedes the Incident Action Planning Guide (January 2012).
Authorities and Foundational Documents
A number of foundational documents provide statutory, regulatory, and executive guidance for
FEMA incident action planning. Some key foundational documents are as follows:
• Robert T. Stafford Disaster Relief and Emergency Assistance Act (Public Law 93-288, as
amended, 42 U.S.C. §§ 5121-5207), November 1988
• Title 44 of the Code of Federal Regulations, Emergency Management and Assistance,
December 1991
• Homeland Security Act (Public Law 107-296, as amended, 6 U.S.C. §§ 101 et seq.),
November 2002
• Homeland Security Presidential Directive 5, “Management of Domestic Incidents,”
February 2003
1
• Post-Katrina Emergency Management Reform Act of 2006 (Public Law 109-295, 6
U.S.C. § 701), October 4, 2006
• National Response Framework, May 2013
• National Mitigation Framework, May 2013
• National Disaster Recovery Framework, September 2011
• National Incident Management System, December 2008
• The Federal Emergency Management Agency Publication 1, November 2010
• Incident Management and Support Keystone, January 2011
• Comprehensive Preparedness Guide 101 - Developing and Maintaining Emergency
Operations Plans, Version 2.0, November 2010
• Presidential Policy Directive 8, “National Preparedness,” March 2011
• National Preparedness Goal, September 2011
• FEMA Incident Management Handbook (FEMA B-761/Interim Change 1), expires
January 1, 2013
• FEMA Operational Planning Keystone, February 2014
• FEMA Operational Planning Manual, February 2014
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CHAPTER 2: WHAT IS AN INCIDENT ACTION PLAN?
Effective incident management helps to ensure that the efforts of all players are coordinated and
synchronized to achieve the best results. The National Incident Management System (NIMS) is a
systematic, proactive approach to guide departments and agencies at all levels of government,
NGOs, and the private sector to work together seamlessly
and manage incidents.
Incident
For FEMA, the Incident Action Plan (IAP)
1
is a plan that
The NIMS glossary defines incident as
is central to managing the response to an incident using
“an occurrence, natural or manmade, that
ICS. The team that is managing an incident develops an
requires a response to protect life or
IAP each operational period, the time scheduled for
property.” For the purposes of this guide,
executing a given set of actions as specified in the IAP,
the term incident is used to refer to
incidents in which FEMA is involved,
using the standard ICS incident action planning process.
generally in support of and in partnership
The IAP itself communicates the incident objectives and
with State, Local, Tribal, and Territorial
the tactics that will be used to manage the incident during
(SLTT) governments.
the operational period that the plan covers.
The incident action planning process provides a tool to synchronize operations at the incident
level and ensure that incident operations are conducted in support of incident objectives. A
disciplined system of planning phases and meetings fosters collaboration and partnerships, and
focuses incident operations.
Over many years of managing all types and sizes of incidents, ICS practitioners have developed
and refined the incident action planning process as a way to plan and execute operations on any
incident. Incident action planning is more than producing an IAP. It is a set of activities, repeated
each operational period, that provides a consistent rhythm and structure to incident management.
ICS practitioners have developed and refined a set of forms that assist incident personnel in
completing the incident action planning process. Incident leaders must ensure that the plan meets
the needs of the incident and that form completion does not become the primary focus of the
planning process. FEMA has modified some standard ICS forms to address the implementation
of assistance programs and the requirements for assigning Federal resources.
The Operations Section has the primary responsibility for incident action planning and execution
of the IAP. The Planning Section is responsible for producing the IAP and informing operations
decision making through situational analysis, and adopting and executing applicable deliberate
plans. This supports the tasks per the Incident Management Handbook (IMH). Furthermore, all
1
NIMS defines an IAP as an oral or written plan containing the general objectives reflecting the overall strategy for
managing an incident. FEMA requires a written plan.
3
members of the Unified Coordinating Group (UCG) and
the Command and General Staff (C&GS) play specific
and essential roles in the process. When incidents are
Determining the Operational Period
complex, applying the incident action planning process
The UCG determines the length of the
accurately, consistently, and completely is essential to
the success of incident operations. When each member
operational period, which is typically 24
hours at the beginning of incident. The
UCG subsequently reviews and may
plays his or her part correctly, the process can bring order
adjust the length of subsequent
to the often chaotic world of managing complex
operational periods as incident response
incidents, and it enables incident management personnel
activities progress.
to address problems that seem insurmountable.
While the process described in this guide outlines how
FEMA, as a part of the whole community, executes
incident action planning, those involved must recognize
that other incident action planning processes may also be executed (as illustrated in figure 1). For
example, local and municipal organizations may develop IAPs to guide the actions of first
responders. For a catastrophic incident, there may be hundreds of concurrent incident action
planning efforts taking place simultaneously. The joint IAP that State, Tribal, and Territorial
(STT) and Federal incident management personnel develop must support all local IAPs and
synchronize activities at the STT and Federal level.
Joint Federal/State/Tribal/Territorial IAP
County IAP
County Law
Enforcement
IAP
Joint State
and Local
Fire IAP
City IAP
City Fire IAP
City Police
IAP
Joint Search
and Rescue
IAP
Joint
Emergency
Route
Clearance
County IAP County IAP
Figure 1: IAPs Developed Across All Echelons of an Incident
2
2
The State may create its own IAP prior to forming a joint IAP.
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Incident Action Planning
The IAP is the vehicle by which the senior leaders of an incident—the Governor of an affected
State, through the State Coordinating Officer (SCO); the Tribal/Territorial Chair/Council through
the Tribal Coordinating Officer (TCO); and the President, through the Federal Coordinating
Officer (FCO)—communicate their expectations and provide clear guidance to those managing
an incident. The incident action planning process requires collaboration and participation among
all incident partners involved in the incident (Emergency Support Functions [ESFs],
NGOs/private sector, STT, etc.) to achieve unity of effort through the disciplined incident action
planning process.
The incident action planning process is built on the following phases:
1. Understand the situation
2. Establish incident objectives
3. Develop the plan
4. Prepare and disseminate the plan
5. Execute, evaluate, and revise the plan
The IAP identifies incident objectives and provides essential information regarding incident
organization, resource allocation, work assignments, safety, and weather. A well-conceived,
complete IAP facilitates successful incident operations and provides a basis for evaluating
performance in achieving incident objectives.
ICS is used on all incidents in which FEMA coordinates Federal response efforts—both Stafford
Act and non-Stafford Act. IAPs and the incident action planning process are used for all Level I
and II incidents and for some Level III incidents.
3
3
Consult the FEMA Incident Management and Support Keystone and Incident Management Manual for more detail
about incident level classifications.
5
Why is an IAP useful to incident personnel?
• Gives staff the clear objectives of STT and Federal leaders. Staff validate that their
actions are in support of those objectives and tailor their efforts to support them.
• Shows how individuals fit in the organization.
• Provides a road map of all operations during an operational period to help individuals
understand how their efforts affect the success of the operation.
• Clearly identifies work assignments to be accomplished.
• Provides a tool to communicate what your organization is doing to ensure that it is
properly supported.
• Provides a tool for staff so they can best synchronize and de-conflict their efforts by
showing what the entire operation is doing.
• Provides a schedule of the key events during operational periods.
• Provides information about safety and phone numbers of key staff, and graphically
represents the incident area.
• Informs partners at other echelons (FEMA regional and national levels) of the objectives
at the incident level for the next operational period and the specific resources and actions
that will be applied to achieving those objectives.
Incident Action Plan Considerations
Because the IAP and the incident action planning process are inherently operational, the UCG
may determine that an IAP is not needed for certain incidents (i.e., Level III). This is most likely
to occur on incidents where no Federal response operations are required or anticipated and where
FEMA activities are focusing exclusively on delivery of Public Assistance (PA) and Hazard
Mitigation (HM) programs. Typically, such incidents are the result of Stafford Act declarations
that are made days or even weeks after the actual disaster or emergency and after State, Local,
Tribal, and Territorial (SLTT) officials have completed response operations. In non-Stafford Act
incidents, incidents that involve a multi-agency response the IAP process and forms may be used
in order to ensure an organized effort.
In the absence of an IAP, the UCG should consider utilizing an Incident Strategic Plan and/or
other established planning products (Situation Report, etc.) and refer to those appropriate
guidance documents for additional information.
6
Resolving Inconsistencies between FEMA and State, Tribal, or Territorial
Incident Action Plan Guidance
Some STT agencies have protocols for
incident action planning that vary from
Managing More Than One Incident
FEMA’s process. In such cases and in the
A UCS may begin managing one incident and
interests of achieving unity of effort, the
be required to take on another disaster in the
UCG may make adjustments to the IAP and
same geographic area—which will likely
to the incident action planning process. To
increase the size and complexity of the incident
resolve the conflict, the UCG may agree to
management organization. The UCG may
refer to the Federal/State (or tribal/territorial)
decide to include all incidents assigned to the
UCS in a single IAP. The Planning Cycle and
joint IAP by other names such as the Incident
operational periods for all of the disasters will
Coordination Plan.
be the same, allowing for efficient and effective
use of the staff’s time. The UCG will be
Multiple Incident Action Plans
developing priorities for each disaster as it
ICS doctrine states there is one IAP per
develops the incident objectives in coordination
incident. FEMA aligns incidents to the Joint
with the Operations Section Chief.
Field Office (JFO) or FCO identified in the
declaration. FEMA may, therefore, have
multiple incidents aligned with a single JFO or FCO. A single IAP will suffice for multiple
FEMA incidents resulting from the same disaster or emergency. For example, the hurricane that
has a pre-landfall emergency declaration and then a post-landfall major disaster declaration
would have a single IAP. A single IAP may also suffice for multiple unrelated incidents if
activities and timing significantly overlap. When one IAP is used for multiple declarations, each
declaration number shall be listed on the cover page.
Incident Action Planning with Tribal Governments
Federally recognized tribal governments may request a Presidential emergency or major disaster
declaration independently of a State. The tribal government may also seek assistance under a
State declaration request. In either case, if the incident involves a federally recognized Indian
tribe, then incident action planning shall involve the appropriate tribal officials.
A FEMA Tribal Affairs Specialist (TBSP) may be assigned to facilitate and coordinate
communication with tribal officials. When collaborating with tribal partners, it is important to
understand the culture of the particular tribe(s). The TBSP may provide important background
and cultural information to the UCG, and Planning/Operations Section personnel.
It is important that the Planning Section Chief (PSC) works with the TBSP during the incident
action planning process to:
• gain tribal cultural awareness and training, as applicable
• ensure meetings and discussions adhere to tribal customs
• identify appropriate tribal titles and positions
7
Planning Process Phases
The Planning “P” (figure 2) depicts the phases and activities in the incident action planning
process. The leg of the “P” includes the initial steps to gain awareness of the situation and
establish the organization for incident management. Although maintaining situational awareness
is essential throughout the life cycle of the incident, the steps in Phase 1 are done only one time.
Figure 2: The Planning “P” – The Incident Action Planning Process
Once Phase 1 steps have been accomplished, incident management shifts into a cycle of planning
and operations, informed by ongoing situational awareness, which continues and is repeated each
operational period. This cycle, which is depicted in the barrel of the “P,” becomes the Operations
“O” (figure 3).
8
Figure 3: The Operations “O” – The Operational Period Cycle of the Incident Action Planning Process
IAP Forms during the Process
The IAP process requires the completion of nine primary forms with the option of additional
forms to be utilized as needed. These forms are tools used to document final decisions and
provide an organized means of documenting and conveying tasks and resource needs for
meetings. Form input and completion of the forms is a joint UCS responsibility. However, the
Planning Section is responsible for the final product and publication of the IAP. A complete IAP
always includes at least the seven forms highlighted in table 1; additional forms may be used
dependent on the incident. (See appendix C for more information on additional forms.)
Some forms used in the IAP process are not contained in the published IAP. The FEMA ICS
Form 201 (Incident Briefing Form) is not included in the IAP but may be used to conduct the
incident briefing. While not included in the published IAP, the Operational Planning Worksheet
(FEMA ICS Form 215) is an important form. FEMA ICS Form 215 is used to document key
tasks and resource needs of the Operations Section. These forms are initially populated prior to
the Operations Tactics meeting, and refined following the meeting. FEMA ICS Form 215s are
finalized in the planning meeting to determine which tasks will occur during the next operational
period. Tasks approved by the Operations Section Chief (OSC) are transferred to the
Assignment List (FEMA ICS Form 204).
9
Table 1: ICS Forms and Description
Form
Description
FEMA ICS Form 200 (Cover Sheet)
Provides the plan number, incident name, declaration
numbers, initial operating facility (IOF)/JFO address,
approval blocks
FEMA ICS Form 201 (Incident
Briefing)
4
Description of current situation
FEMA ICS Form 202 (Incident
Objectives)
Describes the UCG’s incident objectives, also provides
weather and safety considerations for use during the next
operational period
FEMA ICS Form 204 (Assignment
List)
Informs field staff about their assignments, duties,
responsibilities, and key personnel contact information for
an operational period
FEMA ICS Form 205 A (Incident
Telephone Communications Plan)
Lists positions, names, and phone numbers of UCS
FEMA ICS Form 206 (Medical Plan)
Provides important information on medical emergency
procedures and the locations and phone numbers of
medical aid facilities, emergency medical transportation,
and hospitals in the incident area
FEMA ICS Form 207 (Incident
Organization Chart)
Shows how incident is organized, what positions are filled,
what the reporting structures are, and who is filling these
positions. On Level I and II incidents, the organization
charts include unit leaders, group/division supervisors
positions, and above. Organizations will be configured
according to incident needs and current accepted program
structure. These charts will accurately reflect the
organization.
FEMA ICS Form 215 (Operational
Planning Worksheet)
5
Aids Operations personnel in capturing their tactics and in
identifying resource assignments prior to the Operations
Tactics Meeting
FEMA ICS Form 230 (Meeting
Schedule)
Schedule of all incident action planning process meetings
4
The ICS Form 201 is used in the process but is not included in the final IAP.
5
The ICS Form 215 is used in the process but is not included in the final IAP.
10
These forms are completed in the five phases of the Planning “P” as shown in figure 4.
Figure 4: Where ICS Forms are executed during the Incident Action Planning Process
Initial IAP
In the beginning of an incident, the situation can be chaotic and situational awareness hard to
obtain, especially in no-notice incidents. Regional deliberate plans and the first Regional Support
Plans (RSPs) may be used to determine priorities and objectives for the initial IAP when
situational awareness and other sources of information are limited. Thereafter, the IAP should
continue to reference and adapt the objectives and tasks in deliberate plans.
Deliberate Plans
Deliberate plans can provide a common starting point for the incident, regional, and national
levels. This ensures that there is a common understanding of the actions that need to occur and
what resources are necessary to ensure an efficient stand up of operations in the initial
operational period of an incident. Deliberate plans are an important starting point in the absence
of information. Planners and operators must determine the most current situational awareness to
understand the points of departure from the plan.
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Using a FEMA Deliberate Plan to Develop an IAP
FEMA develops deliberate plans in conjunction with SLTT planners to ensure that the Agency’s
actions during an incident are in support of SLTT response (table 2). These plans are often
excellent tools to initiate the development of an initial IAP, particularly for Phase 1 and Phase 2
of the IAP process. Knowing how to read and extract pertinent information from a FEMA
deliberate plan to support IAP development is not a difficult process. The base plan contains the
primary information on which the operation will be based. The plan contains information on the
situation, mission, execution, finance and administration, and oversight and coordination. The
annexes contain more information in the same format. Annexes are used to provide more
detailed information than is found in the base plan.
Table 2: Linkage between Incident Action Planning Process and Deliberate Plans
Incident Action Planning Process
Deliberate Plan
Initial Situational Awareness
Annex B: Critical Information Requirements
(CIRs)/Information Collection Plan
(ICP)/Essential Elements of Information (EEIs)
Initial Incident Briefing (Form 201)
Annex B: Intelligence
Initial Priorities
3.0 Execution: Phase 2a Priorities
Initial Incident Objectives (Form 202)
3.0 Execution: Phase 2a Operational Objectives
Annex C:
Critical Considerations/Critical
Assumptions/End State
Initial Operational Planning
3.0 Execution: Concept of Operations
Worksheets (Form 215)
Annex D: Logistics/Phase 2A resources
Linking National/Regional Support Plans to Incident Action
Planning
National Support Plans (NSPs) and RSPs can vary in terms of scope, content, and granularity but
may contain some specific components that can inform the IAP process. The UCG and C&GS
components will review the NSP/RSP appropriately throughout the incident action planning
process and incorporate information as applicable. Some examples of aspects of NSPs and RSPs
that may be pertinent include:
• resource ordering/mission assignment of future assets to meet current or unmet requests
for resources
• future establishment of critical logistics supply chain facilities
• identification of resource gaps
• key decisions and CIRs
• status of national or regionally controlled capabilities
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CHAPTER 3: PHASE 1—UNDERSTAND THE
SITUATION
Effective actions during Phase 1 may mean the difference between a successfully managed
incident and one in which effective incident management is achieved slowly or not at all. Phase 1
is accomplished only once, at the beginning of incident action planning for any incident. Phase 1
activities focus on the actions that take place before joint incident action planning begins as team
members work to understand the situation and establish initial incident priorities.
Gaining Initial Situational Awareness
Gaining an understanding of the situation includes gathering, recording, analyzing, and
displaying information regarding the scale, scope, complexity, and potential incident impacts.
Comprehensive situational awareness is essential to developing and implementing an effective
IAP. Obtaining accurate, reliable situational awareness during the initial hours of an incident is
often challenging. Situational awareness is further complicated by the urgency of collecting,
analyzing, and disseminating situational information. Initial situational awareness involves the
gathering of information from as many sources as possible, as quickly as possible, to ensure that
decision makers have the knowledge they need
to make the best possible decisions.
Crisis Management System
Collection
A crisis management system is an All-
Information collection is based on established
Hazards emergency preparedness
software application to securely share
EEIs and CIRs.
critical information that incident
personnel and first responders use to
• EEIs are important and standard
effectively prepare for, respond to, and
information items that incident managers
recover from an emergency.
need to make timely and informed
The crisis management system used by
decisions. EEIs also provide context and
FEMA, WebEOC®, is an example of a
contribute to analysis. EEIs are included
crisis management system that is a web-
in situation reports.
enabled incident management
• CIRs are particular elements of
collaboration tool used to create and share
information across FEMA and with
information that incident leaders
external emergency managers at the
specifically requested. These items are of
SLTT levels.
such importance that leaders are notified
immediately when the Planning Section
receives updates on a CIR item.
Analysis
Analysis breaks down problems and issues into manageable smaller elements. In this way,
complex problems that appear to be daunting may have achievable fixes. Analysis also allows
13
for the identification of sub-issues and problem areas that can be solved through effective
decision making and planning.
Information analysis begins during Phase 1 and continues throughout the incident. This analysis
consists of correlating, comparing, and filtering the available information to determine the
critical issues and the potential for changes in the situation. This analysis allows leaders to
understand what is going on for each operational period as well as the impacts of those issues
both currently and in the future.
Dissemination
Information shall be disseminated in a timely manner and provided in a readable format that the
audience can easily understand. Doing this effectively during Phase 1, and throughout the
incident, minimizes confusion, reduces duplication of effort, and facilitates effective and
efficient management of incident resources.
Ongoing Assessment/Situational Awareness
Accurate situational awareness is essential throughout the life cycle of an incident. After the
initial efforts to gain situational awareness, the iterative information collection process continues
to inform all aspects of incident action planning. This process includes the collection, analysis,
and dissemination of information to assist operations and support functions in planning for the
provision of support and resources to disaster survivors during each operational period.
Appendix E provides details on this continuous assessment process.
Establishing Initial Incident Priorities
Initial incident priorities are generally established by higher-level authorities such as the
Governor of the affected State, tribal and territorial officials, and the Regional Administrator
(RA). As indicated previously, priorities may be understood prior to an incident and could be
found in resources such as deliberate plans.
When senior officials establish priorities for the incident, a recommended approach is to
articulate priorities based on the core capabilities described in the National Preparedness Goal
(see table 3). The core capabilities provide a standard list of the essential prevention, protection,
mitigation, response, and recovery activities to properly execute disaster operations. Framing
incident priorities in terms of the core capabilities improves understanding through consistent
titles, ensures that all the mission areas are considered, and helps to keep priorities focused
strategically on desired outcomes.
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Table 3: Core Capabilities by Mission Area (from National Preparedness Goal)
Prevention
Protection
Mitigation
Response
Recovery
Planning
Public Information and Warning
Operational Coordination
Forensics and
Access Control
Community
Critical
Economic
Attribution
and Identity
Resilience Transportation Recovery
Intelligence and
Verification
Long-term Environmental Health and Social
Information
Cybersecurity
Vulnerability Response/Health
Services
Sharing
Intelligence and
Reduction and Safety
Housing
Interdiction and
Information
Risk and Disaster Fatality
Infrastructure
Disruption
Sharing
Resilience Management
Systems
Screening,
Interdiction and
Assessment Services
Natural and
Search, and
Disruption
Threats and Infrastructure
Cultural
Detection
Physical
Protective
Measures
Risk Management
for Protection
Programs and
Activities
Screening,
Search, and
Detection
Supply Chain
Integrity and
Security
Hazard
Identification
Systems
Mass Care
Services
Mass Search and
Rescue
Operations
Fire Management
and Suppression
On-scene
Security,
Protection, and
Law Enforcement
Operational
Communications
Logistics and
Supply Chain
Management
Public Health,
Healthcare, and
Emergency
Medical Services
Situational
Assessment
Resources
Federal and SLTT deliberate plans may identify or suggest incident response priorities. Clear
initial priorities are important to establishing unity of effort early in the incident response
process. When the members of the team clearly understand the priorities, they are equipped to
act decisively and make better decisions. While many things vie for attention, especially in the
immediate aftermath of a disaster, not everything can be a priority. The axiom that “if everything
is a priority, then nothing is a priority” clearly applies to incident management.
15
Developing the Action Planning Team
Incident action planning requires a collaborative effort by all members of the UCS and State
partners. This collaboration must also include other key Federal, tribal, local, NGOs, and private-
sector partners. The incident action planning process fosters teamwork and unity of effort by
promoting communication, cooperation, and coordination. While staff in the Planning Section is
responsible for facilitating the incident action planning process and producing the final plan, the
section primarily responsible for incident action planning and executing the IAP is the
Operations Section. All elements of the UCS support and participate in the process, and the UCG
provides the leadership to ensure success.
Initiating Incident Action Planning
The following sections describe actions for initiating a successful incident action planning
process. A successful incident action planning process involves specific actions based on
situational awareness and operational needs. Figure 5 depicts the steps for initial actions during
an incident.
Establishing the foundation for incident action
planning:
• Conducting an incident briefing
• Forming the UCG
• Developing and communicating priorities
• Conducting the initial Incident Management
Assistance Team (IMAT) meeting
• Designing the incident operational approach
• Developing the C&GS organization
•
Determining initial staffing and resource
requirements
Figure 5: Phase 1 of the Incident Action Planning Process
Conducting Incident Action Planning Meetings and Briefings
Collaboration and coordination are the keys to incident action planning, and it is important that
the meetings and briefings are conducted effectively and efficiently. Guidance for conducting
these meetings and briefings is provided in the FEMA IMH.
Initial Incident Briefing
The RA (or designee) is responsible for providing the initial incident briefing to the FCO and the
IMAT to prepare them for assuming control of the incident. An Incident Briefing Form (FEMA
ICS Form 201) can be used to present the information for this brief. The head of the National
Response Coordination Staff or Regional Response Coordination Staff (RRCS) is typically
responsible for assisting the RA with the initial briefing by collecting and presenting situational
information to the FCO and C&GS. IMATs should have ICPs, which include information such
as:
16
• boundaries and scope of the incident
• number of displaced survivors
• sheltering information
• critical infrastructure damage assessment, locations, and types
• status of communications and other utilities
• incident facilities, types, and location
• resources on hand, en route, and on order
• STT (if applicable) emergency management organization and facilities
• location of the IOF
• health-related concerns, including fatalities and injuries
• life-saving operations
• arrangements for use of military resources (i.e., joint force command)
Some of the situation information for use in the initial incident briefing can be found in the
following documentation:
• Stafford Act declaration (indicates counties/jurisdictions designation, categories of
assistance authorized, and cost share), interagency agreement or interagency
memorandum of understanding for non-Stafford Act incidents
• pertinent deliberate plans
• maps of the incident area and geospatial information systems (GIS) products and satellite
imagery
• preliminary damage assessment
• telephone numbers and e-mail addresses for RRCS, STT officials, and STT emergency
operations center (EOC) and other incident facilities
• NSPs/RSPs
The work product from this briefing is the RA delegating the authority for incident management
and the control of assigned Federal resources to the FCO in writing. The delegation of authority
document includes detailed instructions (leader’s intent) for the conduct of the incident
management and the RA’s priorities. This initial briefing will include the transition procedures
from the region to the incident operational level. The initial incident briefing also gives the FCO
and C&GS situational information, including constraints and limitations, to make informed
decisions.
17
Forming the Unified Coordination Group
Following the initial incident briefing, the FCO typically begins efforts to establish the UCG,
including contacting the SCO/TCO and jointly determining the need for other UCG members.
Once the UCG is formed, members discuss:
6
• priorities
• issues and concerns
• integration of Federal, STT, and other stakeholders in a single incident management
organization
• joint incident action planning
• logistical processes and resource ordering
• joint information center requirements
• roles and authorities
Developing and Communicating Priorities
In forming the UCG, members jointly establish initial incident priorities based on priorities of
the Governor, Tribal Chair/Council, the RA, and other authorities as appropriate. Incident
priorities inform the C&GS’s actions and serve as focus items in the initial UCS meeting. When
communicating incident priorities to the staff, the UCG gives the necessary guidance to ensure
that the staff understands the intent and context of the priorities.
As indicated above, incident priorities should be developed based on the National Preparedness
Goal. These priorities help to establish the order of importance for incident objectives developed
during Phase 2 of the incident action planning process.
Initial Command & General Staff meeting
The purpose of the initial C&GS meeting is to ensure that incident management personnel
understand UCG expectations. The PSC facilitates the initial C&GS meeting; however, as the
leader of Federal response efforts, the FCO is the primary presenter, explaining the UCG’s intent
and articulating expectations regarding team interaction, information sharing, and team processes
for planning, decision making, coordination, and communication. The FCO describes the
composition of the UCG and his or her plans for integrating other UCG members into the
C&GS. The FCO outlines assumptions that the team will use if actual information is not
available, as well as direction regarding the development of the organizational structure for the
incident. Furthermore, the FCO reiterates the expectation for communication and collaboration
with Federal and SLTT government partners, as well as NGOs and the private sector.
6
See the IMH for further guidance on the UCG discussion/meeting.
18
Next, the FCO, OSC, or PSC describes the initial strategies proposed to address the initial
priorities and how the initial strategies are to be accomplished. The PSC or FCO then announces
the start time, duration of, and incident action planning meeting schedule for the first operational
period.
The results from the initial C&GS meeting are as follows: (1) all UCS members understand UCG
expectations, guidance, and direction (leader’s intent) for the incident and initial strategies; (2)
the C&GS has a clear understanding of direction and guidance to begin developing the
organization; and (3) agreement is reached regarding the time and duration of the initial
operational period and the incident action planning meeting schedule.
The work products from the initial C&GS
Importance of Providing Clear
meeting are as follows:
Guidance
• a list of UCG priorities and strategies (for
Providing clear operational guidance is
distribution to the C&GS and to be
an essential element of command at all
displayed in the C&GS meeting room)
levels within the incident organization.
It provides subordinates with
• the meeting schedule (FEMA ICS Form
information that defines, refines,
230) for the first operational period or
and/or places into context assignments
initial incident action planning cycle
or directives. It addresses constraints
(typically published and displayed in the
and limitations, establishes parameters,
and assists in better identifying an
IOF or the JFO)
expected outcome.
Establishing the Organizational Structure
Before an organizational structure can be implemented, the incident area must be considered and
a decision made as to whether to establish a functional or a geographic organization for
FEMA/State incident activities. That decision dictates the operational approach to the incident.
FEMA and State OSCs work together to decide on the organizational structure.
The OSCs’ goal is to design an ICS-compliant organization that meets the leader’s intent, the
Agency’s mission, and the incident’s needs. This decision has a significant effect on operational
outcomes and the achievability of IAPs. It also impacts the Logistics Section, Planning Section,
Finance/Administration Section, and Safety. The OSCs design the incident carefully, because
once the organization is established it is difficult to change. For further information on
organizational structure, refer to the Incident Management Manual.
Develop Command & General Staff Organizations
The C&GS and their STT counterparts jointly develop their organizations based on leader’s
intent, the situation, and the needs of the incident.
19
To do this, they validate current situational information and analyze it regarding current
conditions, damage assessment, scale of the incident, and resource status (i.e., availability of
personnel, equipment supplies, and facilities). They also review any pertinent deliberate plans.
The C&GS and their STT counterparts then coordinate closely with the OSCs to determine
whether the proposed geographic or functional incident design will affect how other
organizational elements are structured.
Ultimately, the OSC determines what facilities (disaster recovery centers [DRCs], staging areas,
operations field offices, aviation facilities, camps, fueling stations, etc.) are required to meet
incident needs. The OSC then discusses these findings and recommendations with the FCO and
SCO/TCO, or designee, for approval.
Once approved, information regarding C&GS organizations is provided to the Planning Section
for the GIS Unit to build the initial incident map and to the Resource Unit to develop the initial
Incident Organization Chart (FEMA ICS Form 207).
Develop Staffing and Resources Requirements
After developing incident design and organizational structures, the C&GS identify the resources
needed to staff and support their organization, and meet UCG priorities.
To determine resource requirements the C&GS and STT counterparts consult with the Planning
Section Resources Unit to identify resources currently assigned. The consultation also yields
such details as the kind and type of each resource, current location and status, identifier if
assigned, and supervisor’s contact information. If a required resource is not currently available,
the C&GS members and STT counterparts contact the Logistics Section Ordering Unit to
determine what resources have been ordered. Finally, if a required resource is neither currently
available nor on order, the appropriate C&GS members and STT counterparts order them
through the established ordering processes. More detailed information on the resource ordering
process can be found in Phase 3.
20
CHAPTER 4: PHASE 2—ESTABLISH INCIDENT
OBJECTIVES
During Phase 2, the UCG establishes incident objectives and provides the guidance necessary to
achieve these objectives (figure 6).
Incident objectives drive the incident organization as it conducts response, recovery, and
mitigation activities. The UCG establishes these objectives based on incident priorities, which
are informed by situational awareness, leader’s intent, and delegations of authority.
Figure 6: Phase 2 of the Incident Action Planning Process
Responsibilities
The UCG develops incident objectives and provides the guidance necessary for developing,
resourcing, implementing, and evaluating the results of incident objectives. As the leader of
Federal response efforts, the FCO is personally responsible for the development of incident
objectives for FEMA. The C&GS often provide input to the UCG/FCO regarding incident status
and operational requirements to support the development of incident objectives and the guidance
to achieve them. Planning Section staff document the incident objectives on the IAP Incident
Objectives (FEMA ICS Form 202).
Priorities
Incident priorities initially established by leadership during Phase 1 are reviewed and modified
as required during each operational period and help to clarify the order and importance of
incident objectives (table 4). While incident objectives are based on requirements, priorities
guide the allocation of resources to objectives. Although priorities help determine incident
21
objectives, they are not listed on the 202. Senior leaders sometimes include non-operational
priorities in their guidance. When this happens, these non-operational priorities are generally not
addressed in the incident action planning process.
Incident Objectives
Management by objective is a key characteristic of NIMS and one that FEMA follows. Incident
objectives, per NIMS, are “statements of guidance and direction needed to select appropriate
strategy(s) and the tactical direction of resources. Incident objectives are based on realistic
expectations of what can be accomplished when all allocated resources have been effectively
deployed.”
Incident objectives must be flexible enough to allow for strategic and tactical alternatives.
Incident objectives set guidance and strategic direction but do not specify tactics. Incident
objectives drive response and recovery activities. Simply stated, incident objectives answer the
question of what must be accomplished. For example, Complete debris clearance from critical
transportation corridors within 72 hours.
In the initial stages of an incident response, objectives
will often be quite general. For example, Conduct
registrations and outreach in all affected counties
with major damage is an acceptable incident objective
in the immediate aftermath of a storm. As response
work progresses, situational awareness improves, and
resources status becomes clearer, objectives can
become more specific, for example, Register
individuals in shelters in designated counties.
Good Incident Objectives:
• are concise and stated in the
form of a command
• begin with an action verb (but
not “continue” or “maintain”)
• provide “actionable guidance”
for the Operations Section
•
address incident operations,
not administrative and internal
support activities
Incident objectives can be distinguished from tasks or work assignments by the fact that
objectives do not answer specific questions. Tasks and work assignments identify specific
resources and specific locations, and must be accomplished within the operational period.
Incident objectives, on the other hand, do not specify who will accomplish the action and are not
necessarily to be achieved in the current operational period. Appendix A provides more
information on how to develop incident objectives.
The UCG formulates incident objectives based on several factors: incident priorities and other
direction from a higher authority, the situation, and members’ professional judgment and
experience. Incident objectives should be clear, measurable, achievable, and flexible. They
include sufficient detail to ensure understanding, but are not so prescriptive as to preclude
innovation.
22
Table 4: Priorities—Objectives—Strategies—Tactics, Tasks, Work Assignments
Guidance
Element
Description
Developer
Examples
Priorities
Define the intent of leaders, in general terms,
with regard to the most important things that
must be accomplished. They are generally
expressed in terms of the core capabilities
defined in the National Preparedness Goal.
Initially established by the
competent authorities, e.g.,
Governor, Tribal Chair/Council,
FEMA Administrator, FEMA RA;
subsequently reviewed and
adjusted throughout the life
cycle of an incident by the UCG
Search and rescue operations
Objectives
Define what must be accomplished to achieve
the priorities and based on best knowledge of
the current situation and the resources available
UCG
Complete all search and rescue
operations by 12 March
Strategies
Carefully devised plans of action to achieve one
or more objectives. Strategies describe what
actions and resources are required in working to
achieve the specific objective.
OSC
Deploy FEMA Urban Search and Rescue
teams, Emergency Management
Assistance Compact search and rescue
assets from Kentucky and Indiana, and
Canadian search and rescue teams to
work in a unified operation under the
tactical control of Memphis Fire
Services.
Tactics/
Tasks
Define how specific actions will be performed to
achieve a planned outcome. Tactics specify who,
what, where, and when in describing the
deployment and direction of resources for
implementing strategies to achieve incident
objectives. Tactics/tasks/ work assignments are
initially recorded on Form 215 and subsequently
reflected on the Form 204 and included in the
IAP for the given operational period.
OSC
California Task Force-3 will report to
Memphis Fire Station 19 at the corner
of Chelsea and Boxwood Street at 0600
[of the operational period} with all
equipment and support personnel to
deploy and operate under the direction
of Memphis Fire Services until 1800.
Specific direction for the team will be
provided by Memphis Fire Service
officials.
23
FEMA has established guidelines to ensure that incident objectives are handled consistently:
• Incident objectives are displayed on the 202. They are numbered sequentially from the
beginning of the incident to its conclusion and are not renumbered for each operational
period.
o Either cross out or remove incident objectives that have been achieved.
o Incident objectives can be modified and maintain the same tracking number as long
as the intent of the objective does not change.
o If an objective is modified, it is assigned a new sub-letter under the same objective
number, and the old objective is retired. For example, if objective 2 is modified, it
becomes 2a, and objective 2 is retired. If this objective is modified again, it
becomes 2b, and 2a is retired.
• The UCG prioritizes incident objectives as operational period requirements dictate.
Incident objectives are listed on the 202 in order of priority, regardless of their tracking
number. The first listed objective is therefore the highest priority. The last listed objective
is the lowest priority.
Unified Coordination Group Develops and Updates Objectives
The UCG will meet before the C&GS meeting to review and, if necessary, revise incident
priorities and determine the incident objectives for the next operational period. This meeting is
often conducted informally and frequently includes the OSC and PSC.
The expected results of this meeting are:
• a common understanding among the UCG of the incident’s issues and the key
requirements of the response and recovery
• agreement regarding incident priorities and objectives for the next operational period
• recognition of constraints and limitations affecting accomplishment of incident
objectives, and operational guidance (for accomplishing incident objectives) that
accounts for and mitigates identified limitations
The work product from this meeting is a documented list of incident objectives (i.e., a FEMA
ICS Form 202) in preparation for the C&GS Meeting.
The Command & General Staff Meeting
The C&GS meeting is the opportunity for the UCG to meet with the staff to gather input or to
provide immediate direction. It is also the opportunity for the UCG to articulate and approve
incident objectives for the next operational period and to share important information regarding
incident management.
The PSC facilitates this meeting. The UCG presents the priorities and incident objectives and
articulates guidance on how incident operations will proceed. The participants review the
24
incident objectives and discuss strategies for accomplishing the objectives. Table 5 provides a
sample agenda.
Table 5: Sample Agenda for the C&GS meeting
Agenda Topic
Briefed By
Roll call and introduction of new participants and guests
PSC
Opening remarks
UCG
Describe/update current situation
Situation Unit Leader (SITL)
Open discussion, including the following:
• Current status and issues
• Constraints, limitations, and shortfalls
•
Input needed to finalize the incident objectives and strategies
OSC
Others – as needed
Present incident objectives for the upcoming operational period
PSC
Establish precedence of incident objectives based on incident
priorities
PSC
Outline of guidance to achieve objectives
UCG
Open discussion (optional)
PSC
Closing remarks
UCG
25
CHAPTER 5: PHASE 3 - DEVELOP THE PLAN
Operational planning is a continuous process, but time-specific operational planning begins
immediately following the C&GS meeting. The Operations Section develops strategies to meet
incident objectives and tactics to accomplish the strategies (figure 7). Operations Section staff
match the work required to execute the tactics to resources to create work assignments, which are
documented on the Form 215. As work assignments are developed, the Safety Officer, Logistics
Section Chief, Security Manager, and others review the work assignments and provide input.
Figure 7: Phase 3 of the Incident Action Planning Process
Strategies
Strategies are ways to achieve incident objectives. Strategies may be developed during all phases
of an operation and by all elements involved in the operation and are not restricted to specific,
short- or long-term operational periods. Strategies describe what actions and resources are
required to achieve specific objectives and are distinct from tactics, which address the conduct of
specific operations. A strategy describes how things work; tactics describe what must be done.
For example:
• Strategy: Establish a mix of fixed and mobile DRCs to provide easy access to FEMA
programs for survivors at the following locations: [list of locations follow]
• Tactics: Identify when, where, and the type of DRC to be established.
26
Determining Strategies
The process of developing strategies does not
occur during a formal meeting. It is
accomplished in the period between the
C&GS Meeting and the Operations Tactics
Meeting.
The Operations Section staff begins the
process of developing strategies immediately
when they receive the incident objectives for
an operational period. The OSC develops
strategies collaboratively with section staff
and in consultation with others such as
Logistics, Safety, and Security personnel to
ensure that the strategies are fully supportable.
All strategies must be weighed against
available resources, time, and the probability
of achieving the desired outcomes.
Strategies Inform the Development of Sound Tactics
Strategies are developed to accomplish the UCG’s incident objectives and frame the
development of tactics. Strategies must be complementary and able to be integrated into a single
coordinated course of action. Effective strategies restrict the pool of possible tactics and help to
ensure that tactical decisions do not conflict. Sound strategic planning takes into account
dynamic situations, as well as constraints and limitations, in incidents.
Determining Tactics
Tactics define specific actions to be performed to achieve a planned outcome. Tactics specify
who, what, where, and when for implementing strategies to achieve incident objectives. Tactics
describe the deployment and direction of resources, based on the strategy to accomplish the
incident objectives. Once the strategies have been developed, Operations personnel are
responsible for developing the tactics to implement the strategies taking into account constraints,
limitations, and other considerations. Examples of considerations for determining resource
requirements include what resources are available for the next operational period and whether
any road closures or hazardous conditions may affect tactical implementation. Once the kind,
type, and qualification of available resources are known and any constraints or limitations are
identified, a course of action (COA) can be developed.
The following activities are used to develop COAs:
1. Determine what has to be done to implement a strategy and what method(s) are likely to
achieve success.
Strategy Development Tips
OSCs often hold an informal meeting with
Operations Section staff members, who have
operations planning responsibilities, to develop
the operations strategies and to:
• solicit broad input
• ensure that staff understand and agree on
the strategies developed
• adjust strategies in consultation with
branch directors and group supervisors
Good strategies:
• are feasible, practical, suitable, and likely
to achieve the desired outcome
• meet acceptable safety norms
• are cost effective
• reflect sound environmental practices
• consider political implications
• address core capabilities
27
2. Develop a list of resources (personnel, teams, equipment, supplies, and facilities) that are
required.
3. Provide a list of resources available (done by the Resource Unit).
4. Compare the resources required with resources available and discuss the findings with
the OSC prior to the Operations Tactics Meeting.
5. Draft the COA based on this analysis.
Additional personnel, supplies, services, and equipment required to implement the COA are
requested. This is done with the understanding that resources will usually not arrive in time to be
applied in the next operational period.
Once that COA has been developed and the requisite resources identified, Operations Section
personnel select specific resources to perform specific work assignments. They then write work
assignments for each resource and identify reporting locations.
Assigning Resources and Describing Work Assignments
Work assignments for resources that are not in direct support of incident objectives and/or field-
related are not included in the COA unless the OSC determines that there is a compelling reason
to do so. Planning, administration, data entry, and report writing are examples of such resources
and activities not included in the IAP. Work assignments are also not typically included for the
following operations leaders unless they are non-administrative in nature: OSCs, geographic and
functional branch directors, and division and group supervisors.
Assign Resources to Operations Organizations According to Geographic Area or Functional
Group
On FEMA incidents, functional operations resources and ESFs are initially assigned to a specific
functional branch/group (Individual Assistance [IA], PA, HM, and ESF). Operations Section
personnel consider requirements for each task and select the best resource. Representatives from
the functional branches/groups and the primary agencies of the ESFs control their assigned
resources when the incident is organized functionally.
On incidents that are organized geographically, functional branches/groups assign their resources
to geographic operations branches/divisions where the resources will be employed during the
operational period. While assigned to a geographical operations branch/division, these resources
are under the supervision of the Operations Branch Director-Geographic (OPBD). Resources
assigned to the division are directly supervised by other personnel outside of the division, such as
an OPBD, functional branch director/group supervisor, or ESFs/other Federal agencies/Recovery
Support Functions. The functional branches/groups plan the tactical activities and assign their
resources through the IAP to operations branches or divisions to perform designated work
assignments during the operational period. While assigned to a division, these resources are
under the management of the division supervisor (DIVS). However, the DIVS does not have
28
“direct supervisory authority” for any of the “resources assigned to the division.” Resources that
are not so assigned remain under the supervision of the appropriate functional branch/group.
Those resources assigned to a geographic branch/division are under the supervision of the
assigned OPBD/DIVS. That DIVS ensures that the work assignments prepared by the functional
branches, groups, and ESFs are carried out as prescribed in the work assignment. Functional
branches, groups, and ESFs may modify work assignments in coordination with the appropriate
geographic OPBD/DIVS. Conversely, if changes are needed to meet SLTT officials’ concerns
that affect functional resources assigned and their work assignments, the DIVS consults with the
OPBD, the appropriate functional branch director, the group supervisor, and the ESF lead.
If a resource will be assigned to more than one branch or division during a single operational
period, a work assignment is prepared for each. If a particular resource will be doing multiple
tasks in a single division, Operations Section personnel combine the work assignments on a
single line on the FEMA ICS Form 215 and the appropriate FEMA ICS Form 204.
Also, when determining a reporting location, Operations Section personnel in a geographic
organization refer to the incident map to determine to which operations branch and/or division
the resource will be assigned. The incident map depicts the geographical boundaries of branches
and divisions—boundaries that remain in effect throughout the life cycle of the incident.
Operations branches and divisions can be combined when appropriate as workload diminishes.
Combining operations branches and divisions means that multiple branches may be assigned
under a single branch director or multiple divisions are assigned under a single division
supervisor. The branch/division boundaries and designators remain the same. For example,
combining Divisions A, B, and C under a single DIVS would look the same on the map but
would identify the division as Division A, B, and C on the FEMA ICS Form 204.
Write a Specific Work Assignment for Each Assigned Resource
The supervisor or person responsible for the implementation and completion of the work
assignment should receive a sufficient amount of information for the implementation and
completion of the assignment. This information must be clear and concise and include the
following:
• task to be accomplished
• objective being supported
• reporting time and location
• level of effort required to accomplish the task
• any special equipment required
• logistical support needs
• any contact information
• any constraints or limitations
29
Identify the Reporting Location
The reporting location is where the assigned resource reports at the beginning of the operational
period. This is not the branch, division, group, or ESF but the physical location to which the
resource must report. Examples of reporting locations are:
• address of the DRC
• address or number of points of distribution for the delivery of commodities
• location within a geographic and/or jurisdictional area for disaster survivor assistance
activities
• address and time for the PA applicants briefing
• street address by the U.S. National Grid (USNG) Reference System
• rallying point
Sometimes a specific time for arrival may also be necessary as part of the work location. This
could be a direction to not arrive before or after a certain time, or a period in which the work
assignment needs to be initiated. This information should be included with the reporting location
when relevant.
Determine Logistical Support Needs to Complete the Assignment
Work assignments often require specific logistical support—requirements that the functional
branches and groups are responsible for identifying. The Logistics Section receives these
requirements and acts to meet them. Examples of such requirements are as follows:
• Needs for IA mobile DRC #3:
o shade tent approximately 10x10 feet
o water for 200 people
o 25 folding chairs
• Needs for HM Community, Education, and Outreach Crew #1:
o 1 folding table, 6 feet long
o 5 folding chairs
• Needs for point of distribution #15:
o 5 truckloads of water
o 1 truckload of tarps
o 2 truckloads of meals-ready-to-eat
Using the Operational Planning Worksheet (FEMA ICS Form
215)
Developing the Operational Planning Worksheets (FEMA ICS Form 215) is an essential part of
the incident action planning process. The worksheets are particularly important tools for the
success of response and recovery operations on larger incidents. FEMA ICS Form 215 aids
Operations personnel in capturing their tactics and in identifying resource assignments prior to
30
the Operations Tactics Meeting. Reviewing these worksheets during the Operations Tactics
Meeting facilitates discussion and focuses on the review of tactics and resource assignments.
Functional operations branches/groups, ESFs, and geographic branches/divisions use the Form
215 to document the assignment of resources and supporting information as determined above.
The worksheet is designed to capture work assignment information and to aid in both the
operations review process and preparation of the FEMA ICS Form 204.
For each assigned resource, the following general guidelines must be entered on the FEMA ICS
Form 215:
1. In the “Objective” column, indicate the number of the incident objective or objectives that
the task supports. This will help inform the UCG of activities associated with each objective.
If a task is not associated with any objective, the UCG may need to adjust the objectives or
the task should be reconsidered.
2. Include only resources that are either on hand or that the Ordering Unit verifies have been
ordered and will be on hand for the assignment.
3. Enter the incident name.
4. Enter the date and time the form was prepared.
5. Enter the date and time for the operational period.
6. Enter the geographic branch number.
a. If the resource is being assigned to a functional group, leave blank.
7. Indicate a geographic or functional operations organization assignment, citing the following
according to the level of the incident:
a. Where applicable, for Level I and II incidents involving a geographic branch, show
the branch number (I, II, III, etc.) and division letter (A, B, C, etc.).
b. For Level I and II incidents involving a functional branch, cite the branch (IA, PA,
HM, etc.) and any operational branches/groups such as air operations, staging, and
disaster emergency communications.
c. For Level III incidents, cite the functional group (IA, PA, HM, etc.) and any
operational groups such as air operations, staging, and disaster emergency
communications.
8. Enter the resource identifier for the assigned resource.
a. Consult with the Planning Section’s Resource Unit for resource identification
information.
b. When there are multiple resources of the same kind and type ensure each resource has
an individual resource identifier assigned (i.e. Mobile DRC #3, Disaster Survivor
Assistance Crew #3, etc.).
9. Enter the contact name and phone number for the resource.
a. Consult with the Planning Section’s Resource Unit to identify the resource contact
name and number.
10. Enter the number of people or the quantity of the resource.
31
a. the number of people assigned to the resource (i.e. Crews, Task Force, etc.) or
b. the quantity of the resource (liters of water, number of meals ready to eat, number of
tarps, etc.)
11. Enter the work assignment.
12. Enter the reporting location and time (as needed).
a. For operational periods longer than one day, the date must be added if needed.
13. Logistical needs should include what is on hand, what is required and the delta (if any).
a. This will be helpful to stimulate discussion with Logistics Section personnel during
the Operations Tactics Meeting. It may also necessitate a change in strategies to
address shortfalls.
14. Under “Additional information,” list safety issues, security concerns, etc. that may affect the
associated task.
Once the draft worksheet is completed, it is transmitted electronically to the Resources Unit prior
to the Operations Tactics Meeting. The PSC and OSC negotiate the actual deadline for the
FEMA ICS Form 215, and the OSC is responsible for ensuring that the deadline is met.
The Resources Unit captures all FEMA ICS Form 215s and prepares them for display, review,
and editing at the Operations Tactics Meeting.
The Operations Tactics Meeting
The purpose of this meeting is to review and finalize the draft FEMA ICS Form 215s. To
accomplish this, the OSC leads participants in reviewing the work assignment drafts to determine
whether they are complete and whether they support the incident objectives and strategies.
Participants also identify gaps and duplication in work assignments and resolve any conflicts or
coordination issues. Participants must also ensure that resources are identified correctly (resource
identifier) and that when there are multiple resources of the same kind and type, an individual
identifier is assigned. Participants also consider resource and logistical issues and identify
shortfalls, excesses, safety issues, and the accuracy of the incident map.
Participants in the Operations Tactics Meeting include functional branch directors (or designee
for branch planning); functional group supervisors (when no branch director is assigned); ESF
leads; the geographic branch director (operations branch directors) and division supervisors (if
requested by the OSC); the Resource Unit Leader (RESL); the Logistics Section Chief (LSC);
and the Safety Officer and Liaison Officer, and others as invited by the OSC.
Informational items available at the Operations Tactics Meeting, supplied by the Planning
Section, include the list of current incident objectives, a large incident map, a list of operational
resources (including the unassigned resources available for assignment), and displays of any
other information pertinent to the meeting. Table 6 provides an example agenda of an Operations
Tactics Meeting; the actual agenda should be tailored as applicable.
32
Table 6: Sample Agenda for the Operations Tactics Meeting
Agenda Topic
Briefed By
Review established incident objectives
OSC
Review, discuss, and concur on draft work assignments
OSC
Ensure Resources Identifiers are correctly assigned
OSC
Identify resource shortfalls and excesses
RESL
Identify the logistical needs of the work assignments
LSC
Discuss and address the safety issues of the work assignments
Safety Officer
Consider the limitations and needs of ESF support
Liaison Officer
Approve the FEMA ICS Form 215
OSC
Update the incident map
OSC & LSC
Discuss other topics as needed
OSC
During the meeting, the OSC may determine the following options for a submitted work
assignment:
• Approve FEMA ICS Form 204 conversion into the final IAP
• Disapprove for not supporting an objective, not field-based, no longer applicable, etc.
• Retain for a future operational period
• Capture the information in another format (i.e. FEMA ICS Form 213 General Message,
Action Tracker, etc.)
At the conclusion of the meeting, copies of the approved FEMA ICS Form 215s are made
available to the Resource Unit either electronically or uploaded to a web-based application. It is
important that the Operations entities provide the FEMA ICS Form 215s in a timely manner so
that the Planning Section has adequate time to prepare and conduct quality assurance on the
required information for the IAP meetings.
33
CHAPTER 6: PHASE 4 - PREPARE AND
DISSEMINATE THE PLAN
Phase 4 (figure 8) begins when the Planning Section receives the approved FEMA ICS Form
215s from the Operations Section at the conclusion of the Operations Tactics Meeting. It ends
with the IAP being approved at the planning meeting and signed by the UCG. The Planning
Section (Planning Support Unit Leader) is responsible for completing the appropriate IAP forms
and assembling the IAP. Other sections contribute key information and supporting documents.
Figure 8: Phase 4 of the Incident Action Planning Process
At the end of this phase, a draft IAP has been approved by the UCG. The items that make up the
IAP are listed in table 7, along with pertinent information on each item.
34
Table 7: IAP Components and Sequence of Assembly
Order
FEMA ICS
Form
Title
Required
Prepared by
1
200
Cover Sheet
Always
SITL
2
202
Incident Objectives
Always
SITL
3
205
Incident Radio
Communications Plan
As the incident
requires –
Radio Use
Communications Unit Leader
(COML)/Disaster Emergency
Communications Group
Supervisor/Mobile Emergency
Response Support
Coordinator
4
205 A
Incident Telephone
Communications Plan
Always
RESL
5
207
Incident Organization
Chart
Always
RESL
6
Incident Map
Always
SITL/GIS Unit Leader
7
204
Assignment List
Always
RESL
8
220
Air Operations
Summary
As the incident
requires - Air
Ops
OSC/Air Operations Branch
Director
9
206
Medical Plan
Always
Safety Officer
10
230
Meeting Schedule
Always
SITL
11
208
Safety Message
Optional
Safety Officer
12
213
General Message
Optional
Any Message Originator
13
Other
components
as needed
Optional
Planning Support Unit Leader
Planning Section Responsibilities
This section is responsible for collecting the various components of the IAP and compiling them
during the time between the Operations Tactics Meeting and the Planning Meeting.
Planning Section Chief
The PSC is responsible for producing the draft IAP. He or she will also track any changes made
to the draft IAP during the final review and approval process.
• Overseeing the IAP’s Preparation—The PSC oversees the preparation and assembling of
the draft IAP to ensure that it is completed in time to be presented at the planning
meeting. The PSC ensures the quality and completeness of the IAP, which includes
coordinating with other sections and functions. The PSC adjudicates requests to add
items to the IAP.
• Reviewing the Assembled Draft—The PSC schedules time with the OSC to review the
IAP prior to the Planning Meeting.
• Facilitating the Planning Meeting—The PSC is responsible for scheduling, managing,
and facilitating the Planning Meeting. (See the planning meeting section below.)
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• Ensuring the IAP is approved—While all players in the incident action planning process
contribute to the success of the plan, the PSC is responsible for obtaining the UCG’s
approval for the IAP.
Resource Unit
The Resource Unit is responsible for preparing a number of forms that are key to the IAP. Those
forms include the following:
Assignment List (FEMA ICS Form 204)
The Planning Section prepares the Assignment Lists (FEMA ICS 204) using information the
Operations Section provided on the FEMA ICS Form 215s. It is the heart of the IAP and must be
organized in a way that enables staff to understand clearly their work assignments. The
Assignment List is prepared in accordance with the guidance in table 8.
Table 8: Assignment Lists Dos and Don'ts
Dos
Don’ts
• Sequence FEMA ICS Form 204 according
• Do not modify the form or use a modified form.
to the organization chart for the Operations
Section (e.g., Branch I and Divisions A
through G, followed by Branch II and
• Do not include work assignments that are not
in direct support of incident objectives.
Divisions H through N, followed by IA
• Do not include work assignments for OSCs,
Branch and Groups, PA Branch and
branch directors, division or group supervisors,
Groups, HM Branch and Groups, etc.)
and managers assigned in the JFO on the
• If the incident is organized geographically,
organize the FEMA ICS Form 204s
FEMA ICS Form 204 if they are administrative
in nature or relate to personnel management.
geographically; if the incident is organized
• Do not include more than one work assignment
functionally, organize the FEMA ICS Form
line for an individual, task force, team or crew
204s functionally.
on the FEMA ICS Form 204 for any particular
• List all resources working in a particular
division on that division’s FEMA ICS Form
204.
division. Combine multiple work assignments
and display them on one assignment line. A
particular individual, task force, team, or crew
may, however, be assigned to more than one
• Specify exactly which resource (individual,
division on FEMA ICS Form 204 when assigned
task force, team, crew, or squad with a
to work locations in other divisions.
designation number or other specific
nomenclature) is responsible for each work
assignment.
• Do not leave blocks blank. Where information
for a block is not available, use placeholders
(“TBD,” “N/A,” or “UNK”) to indicate that the
• Ensure that names, contact numbers, and
topic of the block has been addressed.
resource identifiers are correct.
Incident Telephone Communications Plan (FEMA ICS Form 205 A)
The Incident Telephone Communications Plan (FEMA ICS 205 A) is a telephone contact list of
key staff and staff agencies (FEMA, State, other Federal agencies, etc.). The Resource Unit
prepares and maintains this plan.
36
Important considerations when preparing the FEMA ICS Form 205 A are as follows:
• Include only positions at (i.e., personnel assigned to) the division/group supervisor and
unit leaders levels and above.
• Ensure that the information on the plan is consistent with the information on the Incident
Organization Chart (FEMA ICS Form 207).
• Once the JFO is established, ensure that contact numbers listed for FCO, SCO, TCO, and
other key staff are desk phone numbers for their administrative assistants. Do not list
personal cell phone numbers for any staff members. Include government-issued cell
phone numbers, if available.
• Include the USNG coordinates with the incident facility location/address. If the address is
not known, specify only the USNG coordinates.
Incident Organization Chart (FEMA ICS Form 207)
Organization charts are important to inform staff of not only how the staff is organized, but also
what positions are filled and who is assigned to key positions. The Incident Organization Charts
include positions/personnel assigned as unit leaders, group/division supervisors, managers
(where appropriate), and above. The IMH provides guidance for displaying appropriate incident
organizations. The Incident Organization Chart will accurately reflect the organization.
The Planning Section Resource Unit prepares and maintains the Incident Organization Chart,
using the following important considerations:
• Include geographic branch director(s) and/or division supervisors on incidents that are
organized geographically. Use program branches (IA, PA, and HM), Air Operations
Branch, etc. when applicable. (See IMH, Chapter 5, Operations Section).
• Include the major components of the C&GS organization on the organization chart. Also,
include FEMA program areas when they are assigned, which are typically organized and
displayed as branches but may be displayed as groups on smaller incidents.
• Display the organization on the organization chart according to the general incident
organization structure in the IMH.
• Show deputy positions box in the same box as the primary position. Deputies do not have
separate organizations under them. If there is a need for additional positions to
accommodate span of control, assign assistants.
• Ensure that position titles and names on the organization chart are consistent with the
position titles and names on the Form 205 A and throughout the IAP.
• Include only division/group supervisor and unit leader positions and above on general
staff organization charts. Include only managers/advisors and above on command staff
organization charts.
• Include no more than two organization charts in the IAP (typically one for C&GS
organization and one for the Operations Section).
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Situation Unit
The Situation Unit is responsible for the preparing the Incident Objectives (FEMA ICS Form
202), Meeting Schedule (FEMA ICS Form 230), and coordinating the development of the
Incident Map with the GIS Unit. The SITL also delivers the situation briefings at the C&GS
meeting and the Planning Meeting and may brief at the operations briefing. The SITL also
develops and maintains other key information items, including maps and situational displays that
are typically posted in the Planning Meeting room.
Incident Objectives (FEMA ICS Form 202)
The first page of the IAP (after the cover sheet) is the Incident Objectives (FEMA ICS Form
202). In addition to the objectives, this page also provides weather and safety information.
Important considerations when preparing the Form 202 include the following:
• Include only incident objectives in Block 5.
• Number objectives sequentially from the beginning of the incident; do not renumber
objectives for each operational period.
• List the incident objectives in order of priority regardless of their tracking number.
• Remove incident objectives that have been achieved.
• Do not include items of guidance labeled “goals,” “priorities,” or “incident priorities.”
• Focus the weather message on weather forecasted for the operational period that may
affect operations.
• In collaboration with the Safety Officer, focus the safety message on information that is
relevant and actionable for field personnel.
Meeting Schedule (FEMA ICS Form 230)
The Meeting Schedule (FEMA ICS Form 230) describes the important incident meetings that
will take place during the operational period and indicates where and when they will be held.
The schedule also describes the purpose of the meetings. There is some discretion with regard to
what meetings are listed on the schedule; incident action planning meetings and briefings are
always included. The meeting schedule helps to ensure that other meetings do not conflict with
incident action planning meetings.
Important considerations when preparing the Form 230 include the following:
• List and conduct the following for each operational period: C&GS Meeting, Operations
Tactics Meeting, Planning Meeting, and Operations Briefing.
• Use common terminology, as identified in the IMH, to describe all meetings and
briefings. (Refer to IMH chapter 9 for further guidance.)
• Do not include items on the schedule that are not meetings or briefings.
38
Incident Map
The incident map is an essential IAP component that identifies key incident facilities and
operational boundaries. The Situation Unit provides information and coordinates with the GIS
Unit to produce the map.
Important considerations when preparing the incident map include the following:
• Include the following on the incident map:
o scale
o true north
o date and time
o legend
o incident organization boundaries (branches and/or divisions, etc.)
o key facilities
o camps
• Use naming conventions and map symbols as shown in appendix B.
• Produce the map in black and white to facilitate reproduction.
• Additional, special purpose maps may also be attached to the IAP (e.g., DRC map).
IAP Cover Sheet (FEMA ICS Form 200)
The IAP cover sheet provides specific information about the IAP. The incident IAP cover sheets
must be consistent with and reflect FEMA standards. Logos for FEMA, the State, Tribe, and
other UCG member organizations may be used on cover sheets and must be produced in black
and white. IAP cover sheets must contain the following information:
• title (e.g., Joint Incident Action Plan)
• plan number (the first IAP completed is 01; subsequent IAPs are numbered sequentially)
• incident name that identifies the nature of the disaster (e.g., severe storms)
• declaration numbers for Stafford Act incidents and for any State or other UCG
organization declarations
• JFO/IOF address with USNG coordinates
• operational period (date and time)
• signature blocks for the SCO, TCO, FCO, and any other UCG members
Planning Support Unit
The Planning Support Unit compiles the completed ICS forms for the IAP, prepares the IAP
cover sheet, and performs a quality control check on the IAP.
Command/General Staff
The Safety Officer, Logistics Section, and the Operations Section’s Air Operation Branch are
also responsible for preparing and maintaining certain components of the IAP.
39
Safety Officer
The Safety Officer is responsible for identifying any
risks or threats for incident personnel and developing
the general safety message on the FEMA ICS Form
202, Safety Analysis (FEMA ICS Form 215 A), and
the Medical Plan (FEMA ICS Form 206).
General Safety Message on FEMA ICS Form 202
The Safety Officer prepares the general safety message
to be included on the Form 202 for each IAP. The
message focuses on information that is relevant and
actionable to field personnel for operations during the
operational period. The message may be changed for
each operational period based on conditions.
Medical Plan (FEMA ICS Form 206)
The Medical Plan (FEMA ICS Form 206) is key to the
welfare of incident personnel and is included in all
IAPs. The FEMA ICS Form 206 provides important
information on medical emergency procedures and the locations and phone numbers of medical
aid facilities, emergency medical transportation, and hospitals in the incident area. The Medical
Plan includes how to contact Emergency Services, local urgent care centers, and hospitals in the
applicable areas.
Important considerations when preparing the FEMA ICS Form 206 are as follows:
• List urgent care and hospital emergency rooms as well as incident aid stations established
at the JFO and incident camps in block 5, “Incident Medical Aid Stations.”
• Indicate the emergency phone number in block 6, “Transportation.”
• If any ambulances are assigned to the incident, include the locations and phone numbers
in block 6.
• In block 7, “Hospitals,” list not only the facility that normally services the main JFO but
also the hospitals located throughout the incident area. (Typically, those selected have
emergency room capability.).
• Include sufficient information in block 8, “Emergency Medical Procedures,” to enable
incident employees to know what to do and whom to notify in the case of a medical
emergency.
Safety Analysis (FEMA ICS Form 215a)
The Safety Officer reviews the Form 215 and develops the Safety Analysis (FEMA ICS Form
215 A) in coordination with Operations Section staff as they develop the worksheets. The FEMA
ICS Form 215 A contains the results of a systematic analysis of risks associated with each work
The Safety Officer is
responsible for creating the
following:
• FEMA ICS Form 202:
General Safety Message
• FEMA ICS Form 206:
Medical Plan
• FEMA ICS Form 208: Site
Safety Plan (as applicable)
• FEMA ICS Form 215A:
IAP Safety Analysis
The Safety Officer, or designee,
attends and provides a high-level
safety briefing at the Operations
Tactics meeting when Command
Staff support is required.
40
assignment. This analysis assists Operations Section personnel in altering tactics, if necessary, to
promote the safety of the field personnel. If this alters the work assignments or the resources
required, the Safety Officer confers with the OSC and the PSC so that the Form 204 can be
adjusted.
Logistics Section
On incidents where radio communications are used, this section is responsible for preparing the
Incident Radio Communications Plan (FEMA ICS Form 205) and the traffic plan.
Incident Radio Communications Plan (FEMA ICS Form 205)
The COML/Disaster Emergency Communications Group Supervisor/Mobile Emergency
Response Support Coordinator prepares the FEMA ICS Form 205 when radios are a significant
part of operational communications to provide specific incident radio frequency assignments for
the operational period. The plan shall identify all assigned radio frequencies, trunked radio
systems, and talk group assignments for the operation elements identified on the FEMA ICS
Form 207 and the FEMA ICS Form 203.
Traffic Plan
The traffic plan is included in the IAP, when required, but does not have an ICS Form number.
The Ground Support Unit prepares the traffic plan when incident personnel must be informed of
special traffic requirements, including required routes of travel, missing directional signage on
incident transportation routes, and special driving conditions.
Air Operations Branch (Operations Section)
Air Operations Summary (FEMA ICS Form 220)
When the Air Operations Branch is activated, it prepares the Air Operations Summary (FEMA
ICS Form 220) to be included in the IAP.
Additional Items to the IAP
Additional items (i.e., FEMA ICS Form 208) may be attached to the IAP on a case-by-case basis
with the concurrence of the OSC and PSC.
The Planning Meeting
The Planning Meeting is facilitated by the PSC. The purpose of the meeting is to gain
concurrence of all participating sections for the next operational period. The meeting provides
the opportunity for the C&GS, as well as other incident management personnel, agency officials,
and cooperating/assisting agencies and organizations to discuss and resolve any outstanding
issues before assembling the IAP. After the review has been completed and updates have been
made, C&GS affirm their commitment to support the plan. Table 9 provides a sample of
potential topics to be included in the agenda; the actual agenda should be tailored as applicable.
41
Table 9: Sample Agenda Items for the Planning Meeting
Agenda Topic
Briefed By
Review agenda
PSC
Provide opening remarks
UCG
Provide briefing on current situation and national implications
SITL
Review incident objectives
PSC
Present and review the draft Form 204
OSC
Ensure that the draft operational plan meets incident objectives
PSC
Review any open actions/tasks
PSC
Solicit feedback from the C&GS
PSC
Obtain commitment from the C&GS to support the plan
PSC
Obtain the UCG’s approval of the IAP
PSC
Final comments and direction
UCG
In the planning meeting, the OSC elaborates, as necessary, on the strategy and tactics to be
employed during the operational period.
After the Planning Meeting
The PSC is responsible for ensuring changes are made to the IAP that were agreed upon during
the Planning Meeting. The PSC does this by directing the Planning Support Unit to make all
necessary changes. The PSC also ensures that the final IAP is signed by the appropriate members
of the UCG.
Printing and Distributing the IAP
Once the IAP has been approved by the UCG, it is ready to be printed and distributed. This is the
responsibility of the PSC. The Planning Support Unit reproduces hard copies of the IAP for
members of the C&GS. Furthermore, it distributes the IAP electronically by posting it to the JFO
Reports section of FEMA Crisis Management System (WebEOC).
The target audience for the IAP is branch directors, division and group supervisors, task force
leaders, team leaders, crew leaders, squad leaders, and incident support staff. Field supervisors
are responsible for ensuring their staff can access the IAP. When optional ICS forms are included
in the IAP, they must be available to all recipients as part of the IAP. The Planning Section
Documentation Unit collects and archives all original IAP forms.
42
CHAPTER 7: PHASE 5 - EXECUTE, EVALUATE, AND
REVISE THE PLAN
Phase 5 (figure 9) begins with the operations briefing and continues as the IAP is executed and
evaluated in preparation for it to be revised during the next operational period.
Figure 9: Phase 5 in the Incident Action Planning Process
Operations Briefing
The OSC conducts the operations briefing before each operational period begins, ensuring that
those who need the information have access to it. The purpose is to roll out the IAP for the
upcoming operational period. The OSC may adjust work assignments or resource allocations
during the briefing. Table 10 lists topics that are typically addressed in the operations briefing;
the actual agenda should be tailored as applicable.
Table 10: Sample Agenda for Operations Briefing
Agenda Topic
Briefed By
Review incident objectives
OSC
Review weather conditions and forecast
SITL
Present the current situation
OSC/SITL
Brief operations field personnel
OSC
Communications
COML
Logistics
LSC
Safety
Safety Officer
Finance
Finance Section Chief
Other items
Specialists
43
C&GS members receive the briefing if they are supporting field personnel identified in the IAP.
Attendees also include branch directors, division/group supervisors, and others as needed.
Once the IAP has been distributed and the operations briefing has been held, the IAP is executed.
As field personnel perform their work assignments, supervisors assess the progress and the
effectiveness of the work. This assessment often requires field visits to observe progress.
Individuals, crews, and task forces inform their supervisors of the status of assignments.
Changes are often required to reassign resources or modify work assignments during the
operational period. The changes can come from the field level, in which case changes are
communicated up to the OSC through the branch directors, division supervisors, and group
supervisors. The OSC, in turn, communicates the changes to the Planning Section. Changes can
also come from other sources and would be communicated from the OSC down to the branch
directors, division supervisors, and group supervisors.
Assess Progress and Effectiveness
Determining the effectiveness of the work accomplished during each operational period is
essential to drive activities for the following operational period. Determining items such as the
extent to which objectives were achieved, the rate at which consumable resources were depleted,
anticipated resource shortfalls and surpluses for the next operational period, and significant
changes in the conditions such as weather; will drive planning during the next operational
period’s Operations Tactics Meeting.
Information required to evaluate the work conducted based on the last IAP is collected in a
number of ways. An essential source is reports from field personnel. During supervisory visits,
field personnel provide assessments of their effectiveness during the operational period.
Supervisors pass information to the Planning Section Situation Unit. If field personnel do not
provide input on their work during each operational period—and the Situation Unit does not
provide a method to gather field input—then the effectiveness of the subsequent IAP may be
compromised.
44
Ending Incident Action Planning
As an incident progresses and a steady operational tempo is achieved, the UCG will consider
ending incident action planning. No set rules exist on when to stop developing IAPs. This
decision lies with the FCO and the UCG. The following criteria
may be helpful.
Examples of Post-IAP
products used by JFO
Consider halting incident action planning when:
personnel can include:
• Response activities have ended
• Incident Strategic
• There is no remaining threat to life or property
Plan
• Work occurring in the JFO is primarily programmatic
• SITREP
• All ESF resources except staff have been demobilized
• Operations are being conducted under a Recovery Support Function organization
• The operational period is longer than six days
• Most Planning Section efforts are focused on reporting rather than planning
• A Recovery Support Strategy is in place and being executed
• The transition from a JFO and a standard ICS structure to a National Disaster Recovery
Framework structure is underway or complete
45
ANNEX 1: ACRONYMS
C&GS Command and General Staff
CIR Critical Information Requirement
COA Course of Action
COML Communications Unit Leader
DIVS Division Supervisor
DRC Disaster Recovery Center
EEI Essential Element of Information
EOC Emergency Operations Center
ESF Emergency Support Function
FCO Federal Coordinating Officer
FEMA Federal Emergency Management Agency
GIS Geospatial Information Systems
HM Hazard Mitigation
IA Individual Assistance
IAP Incident Action Plan
ICP Information Collection Plan
ICS Incident Command System
IMAT Incident Management Assistance Team
IMH Incident Management Handbook
IOF Initial Operating Facility
JFO Joint Field Office
LSC Logistics Section Chief
NGO Nongovernmental Organization
NIMS National Incident Management System
46
NSP National Support Plan
OPBD Operations Branch Director-Geographic
OSC Operations Section Chief
PA Public Assistance
PSC Planning Section Chief
RA Regional Administrator
RESL Resource Unit Leader
RRCS Regional Response Coordination Staff
RSP Regional Support Plan
SCO State Coordinating Officer
SITL Situation Unit Leader
SLTT State, Local, Tribal, and Territorial
STT State, Tribal, and Territorial
TBSP Tribal Affairs Specialist
TCO Tribal Coordinating Officer
UCG Unified Coordination Group
UCS Unified Coordination Staff
USNG U.S. National Grid
47
ANNEX 2: GLOSSARY
Assistant: the title indicates a level of technical capability, qualifications, and responsibility
subordinate to the primary positions. Assistants except for subordinates of principal Command
Staff positions (External Affairs, Safety, Chief of Staff, and Liaison Officers) are not FEMA
Qualification System positions and will not have position task books. Assistants must be
qualified at the next lower level to the principal position. Assistants may be used to alleviate
span of control issues or assigned technical responsibilities.
Branch: the organizational level having functional or geographical responsibility for major
aspects of incident operations. A branch is organizationally situated between the section chief
and the division or group in the Operations Section, and between the section and units in the
Logistics Section. Branches are identified either by the use of Roman numerals or by functional
area.
Chain of Command: the orderly line of authority within the ranks of the incident management
organization.
Critical Information Requirement: particular elements of information specifically requested
by incident leaders. These items are of such importance that leaders are notified immediately
when the Planning Section receives updates on a CIR item.
Constraint: requirement that dictates or prohibits an action, thus restricting freedom of action.
Deliberate Planning: proactive planning process to address a potential situation or risk.
Deputy: a fully qualified individual who, in the absence of a superior, can be delegated the
authority to manage a functional operation or to perform a specific task. In some cases, a deputy
can act as relief for a superior and therefore must be fully qualified in the position. Deputies must
be fully qualified in the position for which they are assigned. Deputies are used to share position
responsibilities and serve as acting during the absence of the primary superior. Deputies are not
used to alleviate span-of-control issues. An FCO can assign a deputy to perform specific tasks.
Division: the organizational level responsible for operations within a defined geographic area.
Divisions are established when the number of resources exceeds the manageable span of control
of the Section Chief. See Group.
Essential Element of Information: important and standard information items that incident
managers need to make timely and informed decisions. EEIs also provide context and contribute
to analysis. EEIs are also included in situation reports.
Functional Planning: planning conducted, as required, to address particular operational issues,
such as interim housing, power restoration, demobilization, and continuity of operations.
48
Group: an organizational subdivision established to divide the incident management structure
into functional areas of operation. Groups are composed of resources assembled to perform a
special function not necessarily within a single geographic division. See Division.
Incident Objective: statement of guidance and direction needed to select the appropriate
strategy (or strategies) and the tactical direction of resources. Incident objectives are based on
realistic expectations of what can be accomplished when all allocated resources have been
effectively deployed. Incident objectives must be clear, achievable and measurable, yet flexible
enough to allow strategic and tactical alternatives.
Incident Planning: planning associated with an actual or potential incident, likely under
emergency conditions, that involves developing procedures for responding to actual or projected
effects.
Joint Field Office: a temporary Federal facility established to provide a central point for Federal
and SLTT governments and private-sector and nongovernmental organizations with
responsibility for incident oversight, direction, and/or assistance to effectively coordinate and
direct prevention, preparedness, response, and recovery actions. Typically, the JFO is located at
or near the incident area of operations. The JFO may be co-located with the State EOC.
Limitation: a factor or condition that, either temporarily or permanently, impedes mission
accomplishment.
Operational Period: the time scheduled for executing a given set of operation actions as
specified in the IAP. Operational periods can be of various lengths, although usually they last 12
to 24 hours immediately after an incident and longer as more time passes.
Priority: Incident priorities identify the most important needs and the core capabilities needed to
address those needs. Priorities facilitate the development of incident objectives and establish
their order of importance. Developed by the UCG, priorities also guide the employment and
allocation of resources.
Span of Control: the number of resources for which a supervisor is responsible, usually
expressed as the ratio of supervisors to individuals. Under NIMS, an appropriate span of control
is between 1:3 and 1:7, with optimal being 1:5, or between 1:8 and 1:10 for many large-scale law
enforcement operations.
Strategy: statement of course of action(s) to be taken in order to execute task(s), achieve
objective(s) or goal(s), fulfill mission(s), or realize end state(s) based on existing or expected
resources.
Tactic: the deployment and directing of resources on an incident to accomplish the objectives
designated by a strategy.
49
Task Force: any combination (number and mixture) of resources assembled to support a specific
mission or operational need. All resource elements within a task force must have common
communications and a designated leader. A task force may be pre-established and sent to an
incident, or formed at an incident.
Unified Coordination Group: the structure that executes unified command and leads incident
activities at the field level to achieve unity of effort. Its purpose is to establish and achieve shared
objectives. The UCG is comprised of senior leaders representing State and Federal interests and,
in certain circumstances, tribal governments, local jurisdictions, or the private sector. The FCO is
responsible for establishing the UCG.
Work Assignments: an assignment to be accomplished that leads to meeting an incident
objective(s). A tactical action supporting an incident objective(s) assigned to a specific resource
(individual, team, task force, crew etc.) and identified on Form 204 in the IAP.
50
APPENDIX A: HOW TO DEVELOP INCIDENT
OBJECTIVES
Incident objectives are the focal point for conducting response and recovery activities. They
represent the UCG’s intent for the conduct of the incident. Writing good incident objectives can
be as challenging as it is important. The following basic rules may be helpful.
Incident objectives are based on incident priorities
Incident priorities define senior leaders’ perspective regarding overarching requirements and
reflect the core capabilities outlined in the National Preparedness Goal. Incident objectives are
based on incident priorities and provide the basis for operational guidance, strategies, tactics, and
work assignments. Table 11 shows this relationship.
Table 11: Relating Incident Objectives to Incident Priorities
Based On
Answers…
Documented
in IAP
Who?
What?
Where?
When?
Incident Priorities
Governor, Regional
Administrator guidance
Incident Objectives
Incident priorities,
situation, resources
Tasks/Work
Assignments
Incident objectives
Note: A black dot means
always
; open circle means
sometimes
; blank means
never
.
Incident objectives:
• Are concise statements of what needs to be done or attained; they are not descriptions of
specific tasks.
• May include details on where and when; they do not indicate how or why.
• Should not address normal, inherent incident management activities, e.g., “Initiate
incident action planning,” “Gain situational awareness,” “Deploy liaisons to the State
EOC.”
7
• Are established for every operational period but need not be accomplished or
accomplishable in that single operational period; they frequently carry over from one
operational period to the next.
7
Such activities are important and should be tracked by the appropriate elements of the UCS but should not be
included in the IAP.
51
• Are the exclusive responsibility of the UCG and are generally developed with input and
assistance from the command staff and general staff.
• Are typically general during the initial operational periods of an incident and become
more specific, in terms of where and by when, as awareness of the situation improves.
• Must be measurable to make it possible to determine when a given objective has been
accomplished, achieved, or attained.
• Should address outcomes rather than outputs or program specifics whenever possible.
• Are specifically intended to guide incident operations and are not the appropriate place to
highlight the concerns of specific constituencies.
Incident Objectives should:
• Begin with a verb that describes a measureable/observable action (e.g., “provide
[something],” “deploy [something],” “conduct [something]”) and not soft verbs such as
“support,” “ensure,” “reinforce.”
• Not describe or include language on how the objective is to be accomplished. Incident
objectives should contain no adverbs (e.g., do not include “safely,” “quickly,”
“completely,” “especially”) and avoid the use of adjectives (e.g., “prompt,” “thorough,”
“compassionate”).
Table 12 provides more suggestions for words to use and avoid when writing incident objectives.
It also suggests the functional areas that are typically the focus of incident objectives.
Table 12: Suggestions for Writing Incident Objectives
What are good verbs to use when writing incident objectives?
Augment
Implement
Dispose of
Determine
Complete
Provide
Finalize
Devise
Deliver
Carry out
Pre-stage
Execute
Develop
Conduct
What verbs should be avoided?
Assess
Continue
Coordinate
Monitor
Work with
Support
Ensure
Reinforce
What modifiers should be avoided?
Quickly
Safely
Completely
Prompt
Accessible
Compassionate
Reliable
Thorough
What functional areas do incident objectives typically focus on?
Communication
Fuel resupply
Mortuary affairs
Public messaging
Search and rescue
Decontamination
Law enforcement
Planning support
Public safety and health
Emergency medical services
Mass care
Power
Mitigation support
Public assistance support
Route clearance
Transportation
Infrastructure
Debris removal
52
In the IAP, on FEMA ICS Form 202:
• Display only incident objectives—do not include priorities, strategies, or other extraneous
information.
• Assign individual tracking numbers to incident objectives serially from the beginning of
the incident to its conclusion.
• Do not renumber incident objectives. Each objective retains its original tracking number
until the objective is accomplished or achieved at which point the objective and its
tracking number are retired.
• Once an incident objective has been retired, do not include it on the ICS Form 202.
• If an objective is modified but retains its original intent, assign its tracking number a new
sub-letter and retire the original objective. For example, if objective 2 is modified, its
tracking number becomes 2a, and objective 2 is retired. If that objective is subsequently
modified again, the objective becomes 2b, and 2a is retired.
• If an incident objective is modified in a way that changes its original intent, retire the
original objective and assign revised objective a new tracking number.
• Prioritize incident objectives based on urgency, operational period requirements, and
guidance from the UCG.
o List the incident objectives on the ICS Form 202 in order of their priority,
regardless of their tracking number. The first objective listed is the highest
priority. The last listed objective is the lowest priority.
o Let incident priorities guide the prioritization of objectives. “While objectives
must be based on requirements,” the Incident Management and Support Keystone
states, “the status in which they must be addressed is guided by priorities.”
53
Examples of Incident Objectives
Table 13 provides examples of good objectives from IAPs. This list is not exhaustive and only
meant to illustrate the rules above.
Table 13: Examples of Good Incident Objectives
Example Incident Objectives
1
Identify specialty rescue assets for urban, swift water, and air search and rescue
2
Execute urban search and rescue and air search and rescue missions
3
Conduct medical evacuation from specified flood areas
4
Evacuate survivors from specified areas
5
Provide commodities and staffing to sustain shelter operations
6
Provide sheltering and life-sustaining commodities to survivors
7
Operate points of distribution
8
Provide life-sustaining commodities and supplies to survivors located in isolated communities
9
Restore power, water, wastewater disposal, and telecommunications to survivors in the
affected area
10
Establish and initiate operations at five Disaster Recovery Centers by DD Month YYYY and an
additional two Disaster Recovery Centers by DD Month YYYY
11
Establish and initiate operations at five Disaster Recovery Centers in counties of [County
Name], [County Name], [County Name], and [County Name] by DD Month YYYY
12
Open 18 Disaster Recovery Centers in the most impacted communities by DD Month YYYY
13
Clear routes to provide ingress for emergency personnel and equipment and egress for
survivors and victims
14
Initiate turn-key debris removal operation by US Army Corps of Engineers in [City] on DD Month
YYYY; execute debris removal operations throughout the remainder of impacted area as
requested
15
Provide specific guidance [to whom] regarding the proper collection, sorting, and disposal of
debris
16
Provide public health services in impacted areas, to include health inspections, restaurant
inspections, and food safety and environmental assessments
17
Provide medical care to survivors located in areas without power in Division B and Division D
18
Provide mental health services including crisis counseling to survivors in conjunction with the
State Department of Health
19
Conduct damage assessments in specified counties
20
Complete Preliminary Damage Assessments for specified counties within Branch III by DD
Month YYYY
21
Execute hazardous materials clean-up and pollution control operations
22
Execute hazardous materials and pollution control operations to collect household hazardous
materials
23
Reopen ports and navigable waterways
24
Operate Disaster Recovery Centers within impacted areas
25
Increase the number of Disaster Recovery Centers in operation to 28 by DD Month YYYY
26
Conduct refueling operations for incident personnel and specified non- incident personnel
27
Provide housing for displaced survivors
29
Provide temporary power and emergency repairs to enable residents to shelter in place in their
homes in [County], [County], and [County]
31
Assess specified beaches to provide alternative courses of action to state and county
governments for protection of life and improved property until permanent solutions are
developed
54
35
40
45
50
55
60
Example Incident Objectives
32
Schedule and conduct applicant briefings
33
Conduct applicant briefings focused on expedited Immediate Needs Funding and categories A
and B relief
34
Conduct 14 Applicant Briefings by DD Month YYYY
Focus and execute Housing Inspections in coastal areas that are without power
36
Conduct registration operations
37
Transition 90% of the current sheltered population into a better housing solution by DD Month
YYYY
38
Contact applicants to determine their needs for expedited category A and B projects
39
Contact applicants to identify needs for expedited categories A and B project worksheets;
schedule kick-off meetings within 21 days of Request for Public Assistance approval
Conduct 200 Public Assistance exploratory calls to set-up kick-off meetings by DD Month YYYY
41
Provide feeding and other life-sustaining commodities to survivors
42
Restore power, feed survivors, and provide Individual Assistance registration, and housing
inspection services
43
Provide technical assistance to [City], [County], and [County] Hazard Mitigation Programs to
expedite and enable municipalities to meet their obligations under the Hazard Mitigation
Grants Program
44
Identify and address unmet needs and integrate long-term recovery planning with daily
operations in the most severely impacted areas
Conduct initial community assessments for expedited recovery
46
Raise awareness of the new Advisory Base Flood Elevation data by reaching out to affected
communities and using that data to support reconstruction efforts
47
Implement Personalized Applicant Assistant Services to address the remaining temporary
sheltered hotel population and assist other eligible applicants in identifying interim housing
solutions
48
Identify the scope of the mold issue in disaster housing, determine assets available to address
the problem, and provide courses of actions to state and local government partners
49
Determine the need and validate the capacity of communities to engage in Community
Planning and Capacity Building
Provide commodities to designated points of distribution and isolated communities
51
Provide technical assistance to local building inspectors for the assessment and
determination of substantially damaged structures located within the floodplain
52
Provide building code and mitigation technique information to minimize damage from future
events
53
Increase flood insurance coverage under the National Flood Insurance Program
54
Identify housing resources for applicants impacted by the severe storms
Execute Housing Mission: identify housing resources for applicants; install temporary housing
units for applicant occupancy
56
Execute Housing Mission: identify housing resources for applicants; place 26 applicants in
temporary housing units by DD Month YYYY
57
Install 20 temporary housing units and make 18 units ready for occupancy by COB DD Month
YYYY
58
Assist 12 communities to develop their long-term community recovery plans and/or strategies
59
Conduct Disaster Case Management in support of [State] in 14 counties; transition to State
ownership by DD Month YYYY
Provide technical assistance to [State] in developing strategies to retain major employers
affected by [Incident]
55
APPENDIX B: INCIDENT COMMAND SYSTEM MAP
SYMBOLS
SYMBOL
FEATURE REPRESENTED
Joint Field Office
Camp (identify by name)
Helispot (identifier)
Helibase (include name if more than one)
Fixed Wing Base (include name if more than one)
Branches (use Roman numerals)
Branch Office
Divisions (use upper case alphabetical characters)
Division Office
Incident Support Base (identify by name)
Staging Areas (identify by name)
Disaster Recovery Center (use identifier)
Hazard/Incident Origin
Figure 10: Incident Command Map and Symbols
56
APPENDIX C: JOB AIDS FOR STAFF PREPARING
FEMA ICS FORMS FOR THE IAP
Using these job aid checklists will enhance the consistency of and provide standardization
among all IAPs, with the goal of improving the execution of incident-level operations.
Standardized IAPs are necessary for FEMA employees and all interagency, SLTT, and private-
sector partners—to have a common expectation of how IAPs will be developed, formatted, and
compiled. IAPs are critical to incident field personnel in facilitating their situational awareness
and understanding work assignments. The individual checklists below can be provided to the
staff members responsible for assembling each piece of the IAP.
Cover Sheet (FEMA ICS Form 200)
Information displayed on IAP Cover Sheets (FEMA ICS Form 200) should be consistent. IAPs are not
strictly FEMA documents, and their cover sheets will typically reflect UCG members’ participation. IAPs
are also national-level documents that must have a professional appearance fitting for audiences at the
FEMA Headquarters, Department of Homeland Security, and the White House levels.
The Cover Sheet (FEMA ICS Form 200) will include the following:
Situation
Unit Leader
Title: Joint Incident Action Plan
Plan number (the first IAP developed is #1: subsequent IAPs are numbered sequentially)
Incident name that describes the nature of the disaster (severe storms, tornadoes,
flooding, etc.)
FEMA Declaration Number (e.g. FEMA-XXXX-XX (EM/DR)-
XX(State/Tribe/Territory))
State and other participating UCG members’ declaration numbers
Joint Field Office (or initial operating facility) address and USNG
Operational period date and time
IAP approval signature blocks for the SCO/TCO, FCO, and any other UCG member(s).
Logos (black and white only) may be used for FEMA, the State, and any other UCG
member organizations
IAP approval signature blocks for the SCO/TCO, FCO and any other UCG member
57
Incident Objectives (FEMA ICS Form 202)
The Incident Objectives (FEMA ICS Form 202) is the first page of the IAP. This form not only describes
the UCG’s incident objectives but also provides weather and safety considerations for use during the next
operational period.
Incident Objectives (FEMA ICS 202) will include the following:
Situation
Unit Leader
In Block 5, only incident objectives will be displayed.
Number the incident objectives:
• Sequentially from the beginning of the incident to its conclusion.
• Do not renumber them for each operational period.
List the incident objectives in order of priority, regardless of their tracking number.
• The objective listed first is the highest priority.
• The objective listed last is the lowest priority.
Remove numbered incident objectives that have been achieved.
Note: Archive completed FEMA ICS Form 202 for future reference.
Modify an incident objective if necessary and maintain the same tracking number as long
as the original intent of the objective does not change.
Write out the incident objectives so that they provide actionable guidance for Operations.
Do not focus incident objectives so tightly that they become essentially similar to work
assignments.
Do not list “priorities” or “incident priorities” on the Form 202.
In Block 6, focus the weather message on weather that incident personnel can expect for
the operational period.
In Block 7, focus the safety message on information that is relevant and actionable to
field personnel.
58
Incident Telephone Communication Plans (FEMA ICS Form 205 A)
The purpose of this form is to inform incident personnel regarding which radio communications channels
are in use and which specific purpose each has been assigned. It is acceptable for Planning Sections to
replace the Incident Radio Communications Plan (FEMA ICS Form 205) in the IAP, where appropriate,
with a modified version, entitled the Incident Telephone Communications Plan (FEMA ICS Form 205 A).
The plan is a combined Organization Assignment List (FEMA ICS Form 203) and Form 205 that includes
professional contact telephone/cell phone numbers and professional email address (optional) for each
person listed. It also identifies if they are FEMA, State, or from other federal agencies. The inclusion of
both the Form 203 and Form 205 A in the IAP is unnecessarily duplicative and therefore confusing—
adding to the length of the IAP without providing additional needed information.
The Incident Telephone Communication Plan (FEMA ICS Form 205A) will include
the following:
Resource
Unit Leader
Only those positions and personnel assigned to division/group supervisors, unit leaders
and above.
Note: The exception to this is a Level III, event and the Form 205 A is no longer than one page
in the IAP.
Ensure that this plan does not become the incident phone directory.
Ensure that this plan corresponds with the incident organization chart with correct names
assigned to specific positions.
Contact numbers listed for FCO, SCO/TCO, and other key staff are the desk numbers for
their administrative assistants.
Do not show personal cell phones numbers or personal email addresses for any incident
staff.
59
Incident Organization Chart (FEMA ICS Form 207)
Incident Organization Charts (FEMA ICS 207) are important for incident personnel to understand how
the incident is organized, what positions are filled, what the reporting structures are, and who is filling
these positions. On Level I and II incidents, the organization charts include unit leaders, group/division
supervisors positions, and above. Organizations will be configured according to incident needs and
current accepted program structure. These charts should accurately reflect the organization.
Incident Organization Chart (FEMA ICS Form 207) will include the following:
Resource
Unit Leader
Chart displayed in way that is consistent with examples provided in the Incident
Management Handbook.
Position naming conventions that conform to the position names in the IMH.
Deputy positions shown in the same box as the primary position.
Deputies will not be shown with separate organization structures.
• If there is a need for another position to manage the span of control then the use
of assistants is appropriate.
The names on the chart are consistent with the names on the Form 205 A.
Ensure that on Level I and II incidents, the following occurs:
• Command staff includes only managers/advisors and above.
• The organization charts include unit leaders/group and division supervisors
positions and above only
• The organizations are configured according to incident needs.
• The Operations Section organization is organized geographically, unless there is
a compelling reason to organize functionally.
For a Level III incident, the following occurs:
• The organization is arranged functionally. (In rare situations, it can also be
organized geographically.)
• Include, as necessary, all the positions/names of the whole organization on the
chart.
On incidents that are organized geographically, the organization chart will include the following:
• Geographic branch director(s) and division supervisors
• Program branch directors, group supervisors, task force leaders, managers, and
crew leaders (IA, PA, and HM)
• Air Operations Branch
60
Incident Map
The incident map is an important IAP component for incident field personnel, which enables them to
locate critical incident facilities and operational geographic boundaries, and other critical information
such as declared counties. On Level I and II incidents, the incident map is extremely important for those
doing incident action planning. FEMA program branches in Operations and others (e.g., ESFs) need to
know where the geographic branches and divisions boundaries are located within the incident area so they
can assign their resources to the correct branch and division on the Operational Planning Worksheet
(FEMA ICS Form 215). The incident map is the responsibility of the Planning Section’s Situation Unit,
however, the updating and viability is the responsibility of the Operations Section Chief. Incident maps
should be produced in black and white using standardized fill patterns (i.e., vertical horizontal, and
diagonal) to indicate IA, PA, IA/PA, and Hazard Mitigation Grant Program if declared.
The incident map will include the following:
Situation
Unit Leader
Incident geographic branches and division boundaries
Critical operational facilities such as the following:
• Staging Areas, both Federal and State
• Operations field offices
• Helibases, fixed wing bases
• Disaster Recovery Centers
• Incident camps or other support facilities
• Designated counties
Ensure that the naming and identification map symbols, are all in accordance with IMH
Chapters 9 through 30 and appendix B of this document.
Ensure that incident map legends use black and white patterns, not color.
61
Assignment List (FEMA ICS Form 204)
Assignment Lists (FEMA ICS Form 204) are critical for informing field staff about their assignments,
duties, responsibilities, and key personnel contact information for an operational period. As a result, Form
204 should be complete, accurate, and organized in a manner that facilitates staff’s understanding of
operational work assignment details. Using the Operational Planning Worksheets (FEMA ICS Form 215),
the Operations Section develops the FEMA ICS
Form 204. Once Operations approves them, the FEMA
ICS Form 215s are given to the Planning Section to prepare the FEMA ICS Form 204s. Once the UCG’s
members affirm that the general staff can support the plan at the Planning Meeting, and the UCG then
approves the operational plan, the FEMA ICS Form 204s are included in the IAP for duplication and
distribution.
The Assignment List (FEMA ICS Form 204) will include the following:
Resource
Unit Leader
Do not use a modified FEMA ICS Form 204.
Do not include work assignments that are not in direct support of incident objectives.
Do not include for work assignments OSCs, geographic and program branch directors,
division supervisors, and managers assigned in the JFO if they are administrative in
nature or relate to personnel management.
Sequence the list according to the Incident Organization Chart (FEMA ICS Form 207)
for Operations.
Example: Branch I and Divisions A through G, Branch II and Divisions H through N, IA
Branch and Groups, PA Branch and Groups, HM Branch and Groups etc.
Complete the list in a way that is clear and provides information for field staff to
understand their task, reporting location, reporting time, and key personnel contact
information.
Do not include objective numbers on the work assignment.
Note: It is the responsibility of the OSC to ensure work assignments are consistent with the
FEMA ICS Form 202 during the Objectives Strategies Meeting.
Ensure that all resources are listed on the appropriate FEMA ICS Form 204.
Ensure that division or functional forms include no more than one work assignment line
for an individual, crew, or task force.
• A particular individual, crew, or task force may be assigned to more than one
division form when assigned to work locations in other divisions.
• Multiple work assignments are combined and displayed on one assignment line.
No blank blocks on the list.
Note: Where information for a block is not available, use placeholders whenever possible to
indicate that the topic of the block has been addressed (TBD, N/A, UNK, etc.).
The following are detailed appropriately:
• Logistical needs
• Safety considerations
• Coordination requirements
• Critical support information
In Block 11, any special communication requirements, if different than those identified in
the FEMA ICS Form 205 A, are fully described
62
Medical Plan (FEMA ICS Form 206)
The Medical Plan (FEMA ICS Form 206) is critical for the safety of incident personnel when a medical
emergency occurs. FEMA ICS Form 206 provides important information to incident personnel such as
the following: medical emergency procedures, the locations of medical aid facilities within the incident
area, emergency medical transportation locations with contact numbers—including those of hospitals
located in or near the incident area. The responsibility for the development of the FEMA ICS
Form 206 is
the Safety Officer.
Medical Plan (FEMA ICS 206) will include the following:
Safety
Officer
The form being used is the official FEMA ICS Form 206 and has not been modified.
Include in Block 3 (incident medical aid stations), both urgent care and hospital
emergency rooms located within the incident area, and incident aid stations that may be
established at the JFO and incident camps.
Include in Block 4, whether 911 is the contact number for all emergency transportation
needs in all affected areas of the incident.
•
If 911 is not the contact for all emergency transportation needs, then the IAP
must reflect the information for each municipality.
• If an ambulance is assigned to the incident then the correct location and contact
numbers must be included.
Include in Block 7, (hospitals) not only the hospital that would service the JFO, but also
selected hospitals with emergency room capability located throughout the incident area.
Fill Block 6, correctly and with enough information so an incident employee will know
what to do and who to notify in the case of an accident or other medical emergency.
63
Daily Meeting Schedule (FEMA ICS Form 230)
The Daily Meeting Schedule (FEMA ICS Form 230) provides incident staff with the information
regarding what, where and when critical incident meetings will take place during the operational cycle.
The schedule also lays out the purpose of the meetings. Incident action planning meetings and briefings
will always be included in this schedule. The meeting schedule also ensures that other meetings do not
conflict with incident action planning meetings (i.e., Command and General Staff Meeting, Objectives
Strategies Meeting, Planning Meeting, and the Operations Briefing). The meeting schedule should reflect
the incident action planning cycle for the operational period, and include other critical incident meetings
as needed.
The Daily Meeting Schedule (FEMA ICS Form 230) will include the following:
Situation
Unit Leader
A C&GS meeting consisting of the UCG (FCO, SCO/TCO, and any other UCG
Coordinator) and staff will be conducted and listed on the meeting schedule for each
operational period.
The Objective Strategies Meeting will be conducted and listed on the meeting schedule
for each operational period.
The Operations Briefing will be held every operational period and listed on the meetings
schedule for each operational period.
•
Planning Meeting will be conducted and listed on the meeting schedule for each
operational period.
• All incident action planning meetings and briefings will have IMH compliant
names
Items that are not meetings are not included.
64
APPENDIX D: FINAL QUALITY ASSURANCE
CHECKLIST
The checklist below is intended to serve as a tool that the PSC uses before granting final
approval to the IAP.
Do the tasks listed on the Assignment List(s) (FEMA ICS Form 204) support the Incident
Objectives (FEMA ICS Form 202)?
Does the incident map reflect the operation elements identified on the Incident
Organization Chart (FEMA ICS Form 207) or the FEMA ICS Form 204?
Does the Incident Telephone Communications Plan (FEMA ICS Form 205 A) provide
information on the operation elements identified on the FEMA ICS Form 207 or the
FEMA ICS Form 204?
Are all assigned radio frequencies, trunked radio systems, and talk group assignments
identified on the Incident Radio Communications Plan (FEMA ICS Form 205), and does
the information reflect the operation elements identified on the FEMA ICS Form 207 or
the FEMA ICS Form 204?
Does information on the Medical Plan (FEMA ICS Form 206) identify the closest
medical facility to each operation element identified on the incident map, the FEMA ICS
Form 207, or the FEMA ICS Form 204? Does it identify what should be done if someone
is injured or is seriously ill?
Does the IAP use common Incident Command System terminology throughout the
document?
Does the Meeting Schedule (FEMA ICS Form 230) contain at a minimum, the following?
• appropriate incident action planning meetings
• strategy meetings
• team meetings
• public meetings
65
APPENDIX E: MAINTAINING SITUATIONAL
AWARENESS THROUGHOUT THE LIFE CYCLE OF
THE INCIDENT
It is necessary for FEMA to have an understanding of what is going on when, where, how, by
whom, and with what throughout the life cycle of an incident. This type of information provides
situational awareness. Initial situational awareness typically comes via the initial situation
assessment which is facilitated by deliberate plans. Subsequent situational awareness comes
through the information collection process. This appendix provides further information regarding
both of these processes.
Incorporating Deliberate Plans into Initial Situation
Assessment
FEMA has many deliberate plans at the national and regional level, including All-Hazards Plans
and Incident Specific Catastrophic Plans. The contents of these plans often provide strategic and
tactical information that has been agreed-upon between the State and FEMA. Table 14 lists
potential plan content items that may inform the Incident Action Planning Process.
Table 14: Deliberate Plan Elements and their Application in IAPs
Deliberate
Plan Element
Description Application Examples
Assumptions
Provides baseline
expectations for the
content of the rest of the
plan, including magnitude,
impacts, location(s), and
operational capabilities
Allows IMAT to identify
potentiality for plan use
and applicability of
operational requirements
Earthquake Magnitude
Hurricane Strength
Regional Response
Coordination Center
Capability
Resource Availability
Risk Analysis
Provides construct for
considering where
potential risk exists
Provides IMAT with initial
framework for
understanding the
potential impacts,
including those that may
not be typically considered
Demographics
Climate
Geology
Cascading Impacts
66
Deliberate
Plan Element
Description Application Examples
Projected
Timelines
Incorporates risk analysis
and assumptions into
currently understood
timelines to give
framework for expected
timelines for delivery of
resources, capabilities,
and program delivery
Informs process for
determining delivery of
resources, allows for
expectations to be
managed between State
and FEMA
Transportation Impacts &
Associated Timeline
Delays
Facility Availability and
Stand-up Times
Personnel &
Resource
Requirements
Provides specific, agreed-
upon resource
requirements based on
the assumed, modeled
impacts
Gives IMAT baseline for
Mission Assignment
scope, personnel ordering
requirements, JFO size
needs, and logistics
footprint requirements
Personnel Needs
Anticipated Shortfalls &
Federal Resource
Requirements
Commodity Shortfalls &
Federal Requirements
Operational
Checklists
Detailed list of actions
required to bring forth
personnel and resources
required. May provide
tactical assignment and
anticipated force laydown.
Gives guidelines for a
time-phased approach to
coordinate provision of
required resources to the
State. Helps to manage
tasks within specific
operational periods.
Resource Request Times
Logistics Footprint
Establishment
Timeframes
Anticipated Timeline for
Resource Delivery
EEIs/CIRs
EEI: Important and
standard information
items that incident
managers need to make
timely and informed
decisions
CIR: Particular elements of
information specifically
requested by incident
leaders
Provides initial input into
the Planning Section-
derived ICP.
Pre-Approved EEI List
Pre-Approved CIR List
Existing
Facilities
Listing of preapproved
facilities and their
anticipated use given the
plan scenario
Gives parameters for
Logistics and Operations
to identify resource
allocation and logistics
capabilities/limitations
Incident Support Base
List
Mobilization Center List
Pre-Approved JFO Sites
Points of Distribution Plan
State/Federal Staging
Area List
Incident
Priorities &
Objectives
Pre-determined list of joint
State/FEMA initial
priorities and supporting
objectives for the specific
incident
Gives baseline to IMAT for
initial objectives
development
Pre-Approved Priorities
List
Pre-Approved Objectives
List
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Post Initial Situation Awareness
After the initial efforts to gain situational awareness (Phase 1), the iterative information
collection process begins during Phase 2 and continues to inform all aspects of incident action
planning throughout the life cycle of the incident. This process includes the collection, analysis,
and dissemination of information to assist operations and support functions in planning for
providing support and resources to survivors during each operational period.
Good situational awareness must be available to
incident management personnel throughout the life
cycle of an incident to support timely and effective
decision making (figure 11). The quality of
decisions is directly related to the accuracy and
completeness of the information on which
decisions are based. Situational awareness is
gained from many sources. Site inspections,
official reports, media broadcasts, maps, and
formal and informal assessments all contribute to
the base of knowledge about the incident.
Developing situational awareness requires
continual monitoring, verifying, integrating, and analyzing relevant elements of information and
developing hazards. At its best, situational awareness provides up-to-date information on the
status of people, critical facilities, infrastructure, resources, and the environment.
Information Collection Plan
A well-designed ICP is an important tool for incident management.
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The ICP is a matrix of
information requirements that is keyed to the incident. This plan also lists sources, units of
measure, and schedules for collecting various items. Information gathered based on an ICP can
aid in the development of incident objectives.
Situational Awareness Products
Many products and reports provide situational awareness to incident personnel. Several are key
to assessing the progress of incident operations and the effectiveness of the incident action
planning process. Below are some examples of products that, while not part of the IAP, inform
staff on environment and effectiveness of operations.
Figure 11: Understanding the Situation
8
Refer to the Incident Management Manual.
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Situation Reports
The Planning Section produces Situation Reports, which are the primary summary of
information of the immediately completed operational period. Situation reports address EEIs, as
well as other pertinent information for the last operational period. Situation reports are also tied
directly to IAPs; reports should reflect the results of IAP work assignments. By reporting on the
results of work assignments the Situation Report can inform adjustments to objectives, strategies,
or priorities of the coming operational period.
Spot Reports
Information for Spot Reports may be generated by any element at the incident level. These
reports provide information on occurrences and/or conditions that may have an immediate and
significant effect on current operations. Spot Reports can provide information that is important to
incident objectives and tactics (e.g., severe weather or hazmat spills). Spot Reports often add
value to incident action planning efforts by providing timely information on significant aspects
of the incident. In the early stages of a response, Spot Reports may be the only source of
Situational Awareness until the planning cycle begins and the Situation Report is generated.
Situation Update Briefing
This briefing—based on the content of the Situation Report—updates leadership on the current
situation. The Situation Unit provides situation updates during the C&GS, tactics, and planning
meetings.
Gathering Information
Gathering and reporting situational awareness is accomplished using a wide variety of
methods, including:
• Providing planning specialist(s) to the STT Planning Section to monitor STT reporting
systems (WebEOC®, etc.) and to create/disseminate spot reports from that information
• Reading STT situation reports
• Developing or using a good ICP
• Maintaining direct communications with the Planning Sections of the RRCS and the
National Response Coordination Staff
• Deploying or using technical specialists such as National Weather Service
representatives
• Deploying and receiving reports from planning specialists
• Embedding planning specialists (liaisons) in the Operations, Logistics, and
Finance/Administration Sections
• Deploying information specialists to other facilities and operation field offices
• Analyzing and disseminating relevant geospatial products
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Responsibilities
The Command Staff and the Operations, Logistics, and Finance and Administration
Sections are responsible for regularly providing the Planning Section with clear, timely, and
accurate information.
The Planning Section is responsible for providing the Operations Section with information
products needed for effective decision making. Two units within the Planning Section are
principally responsible for providing these information products: the Situation and Resource
units.
The Situation Unit processes requests for information; develops reports, briefings, and
presentations; collects and analyzes information; and integrates geospatial and technical
information for situational awareness. This unit is the primary organization responsible for
maintaining situational awareness within the incident organization. The unit works with the
GIS Unit to prepare and maintain incident maps.
The Resources Unit develops and maintains the Incident Organization Chart (FEMA ICS
Form 207) depicting the C&GS, as well as an organizational chart depicting only the
Operations Section. The unit also develops the Incident Telephone Communications Plan
(FEMA ICS Form 205 A) for each operational period detailing key staff and their contact
information.
Summary
Applying accurate and timely situational awareness in each operational period includes:
• reviewing and analyzing information that may affect incident-level operations
• reexamining the actual or potential effects of the incident
• providing important real-time information to the Operations Section that could modify
one or more incident objectives
• assessing the effectiveness of efforts undertaken during the previous operational period
• assessing measures of effectiveness (i.e., performance metrics)
Effective situational awareness is supported by Situation Reports, Spot Reports, and briefings,
which in turn, support the development of incident objectives, tactics, and work assignments.
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