This lesson discusses managing resources during an incident.

At the end of this lesson, you should be able to:

• Describe the activities and procedures to identify requirements, order and acquire, mobilize, track and report, demobilize, and reimburse and restock resources.
• Describe the resource management process for accounting for each resource from request to final demobilization.

During an incident, personnel continually identify, validate, and refine resource needs.

This process involves identifying:

• The type and quantity of resources needed.
• The location where resources should be sent.
• Who will receive and use the resources.

Resource availability and needs constantly change as an incident evolves.

Incident management personnel and their affiliated organizations should coordinate as closely and as early as possible, both in advance of and during incidents.

The first step in determining resource needs is a thorough assessment or “sizeup” of the current incident situation and future incident potential.

This assessment provides the foundation for the incident objectives, and without it, it is impossible to identify the full range of resources that will be needed.

The Incident Commander develops incident objectives—a statement of what is to be accomplished on the incident. Not all incident objectives have the same importance.

The National Response Framework defines the priorities of response are to:  

• Save lives: deal with immediate threats to the safety of the public and responders.
• Protect Property and the Environment: deal with issues of protecting public and private property or damage to the environment.
• Stabilize the Incident: contain the incident to keep it from expanding and objectives that control the incident to eliminate or mitigate the cause.
• Meet Basic Human Needs by Stabilizing Community Lifelines: the seven Community Lifelines represent the most basic services a community relies on, which when stable, enable all other activity within a community. Examples include safety, food, water, shelter and medical.

Using the priorities of response (save lives, protect property and the environment, stabilize the incident, and provide for basic human needs by stabilizing Community Lifelines) helps in prioritizing incident objectives. They can also be used to prioritize multiple incidents, with those incidents having significant life safety issues being given a higher priority than those with lesser or no life safety issues.

Incident objectives are not necessarily completed in sequence determined by priority. It may be necessary to complete an objective related to incident stabilization before a life safety objective can be completed.

Click on the audio or transcript buttons to access lessons learned from a dam incident.

The management by objectives focus of ICS is reinforced and implemented through the planning process.

Personnel managing the incident develop an Incident Action Plan (IAP) for each operational period. 

For resource management the IAP:

• Informs incident personnel of the incident objectives for the operational period
• Identifies the specific resources that will be applied and actions that will be taken during the operational period to achieve the objectives
• Shows how supervisory personnel and operational elements fit into the organization

Implementing the formal incident action planning process early in the incident, and maintaining the discipline imposed by it, helps the ICS organization attain its objectives.

The Operations Section Chief develops strategies and detailed tactics for accomplishing the incident objectives.

Resources are identified and assigned to execute each tactic - this is the basis for identifying tactical resource needs.

The Operational Planning Worksheet (ICS Form 215) is used to indicate the kind and type of resources needed to implement the recommended tactics to meet the incident objectives. This worksheet includes the number of resources on site, ordered, and needed.

Click on this link to learn more about the Operational Planning Worksheet.

There are other non-tactical incident resource needs that are not identified on the ICS 215. For example, the Logistics Section may identify a need for personnel to begin planning for demobilization. It is important to work with the Command and General Staff leaders to identify other, non-tactical resources that may be required to support the incident.

Just as tactics define tactical resource requirements, resource requirements drive organizational structure. The size and structure of the Incident Command organization will be determined largely based on the resources that the Incident Command will manage. 

As the number of resources managed increases, more supervisory personnel may be needed to maintain adequate span of control, and more support personnel may be added to ensure adequate planning and logistics.

It is important that the incident organization's ability to supervise and support additional resources is in place prior to requesting them.

Personnel and logistical support factors (e.g., equipping, transporting, feeding, providing medical care, etc.) must be considered in determining tactical operations. Lack of logistical support can mean the difference between success and failure.

Typically, incidents will have an initial commitment of resources assigned.

As incidents grow in size and/or complexity, more tactical resources may be required and the Incident Commander may augment existing resources with additional personnel and equipment.

Dispatch organizations service incidents on a first-come, first-served basis with the emergency response resources in the dispatch pool. In many jurisdictions dispatchers have the authority to activate mutual aid and assistance resources.

More formalized resource-ordering protocols and the use of a Multiagency Coordination (MAC) Group or policy group may be required when:

• The organization does not have the authority to request resources beyond the local mutual aid and assistance agreements.
• The dispatch workload increases to the point where additional resources are needed to coordinate resource allocations.
• It is necessary to prioritize limited resources among incidents.

Those responsible for managing resources, including public officials, should recognize that reaching around the official resource coordination process between the Incident Command and their supporting Emergency Operations Center creates serious problems.

In other words, even if you think it is helpful, never send resources to the scene that have not been requested through the established system.

Requests from outside the established system for ordering resources:

• Can put responders at risk
• Typically lead to inefficient use and/or lack of accounting of resources

The Incident Commander should communicate:

• Who within the organization may place an order with Logistics. This authority may be restricted to Section Chiefs and/or Command Staff, or may be delegated further down the chain of command.
• What resource requests require the Incident Commander’s approval. The Incident Commander may want to review and approve any non-routine requests, especially if they are expensive or require outside agency participation.
• What resource requests may be ordered without the Incident Commander’s approval. It may not be efficient for the Incident Commander to review and approve all resource orders for routine supplies, food, etc., on a major incident.

The Incident Commander should establish guidelines for emergency purchasing. Finance/Administration and Logistics staff must understand purchasing rules, especially if different rules apply during an emergency than day to day.

Writing these in a formal delegation of authority ensures that appropriate fiscal controls are in place, and that the Incident Management Team expends funds in accordance with the direction of the jurisdiction's Senior Official/Agency Administrator.

• Detailed item description including quantity, kind, and type (if known), or a description of required capability and/or intended use
• Required arrival date and time
• Required delivery or reporting location
• The position title of the individual to whom the resource should report
• Any incident-specific health or safety concerns (e.g., vaccinations, adverse living/working conditions, or identified environmental hazards)

Resource orders should also document action taken on a request, including but not limited to:

• Contacts with sources or potential sources for the resource request.
• Source for the responding resource.
• Identification of the responding resource (name, ID number, transporting company, etc.).
• Estimated time of arrival.
• Estimated cost.
• Changes to the order made by Command, or the position placing the order.

Such detailed information is often critical in tracking resource status through multiple staff changes and operational periods.

The Logistics Section may use the Resource Order form (ICS 213, 213 RR) to record the type and quantity of resources requested to be ordered. In addition, this form is used to track the status of the resources after they are received.

Organizations and agencies may use local forms instead of the ICS forms; incident personnel should consult their local jurisdiction to determine what form is used for resource requests.

Click here to view an example ICS Form 213RR.

Occasionally, incident personnel may not know the specific resource or mix of resources necessary to complete a task. In such situations, it is advisable to state the requirement rather than request specific tactical or support resources.

By clearly identifying the requirement, the agency fulfilling the order has the discretion to determine the optimal mix of resources and support needed.

For example, many local governments use a requirements-based approach with the American Red Cross for providing shelter services. The order describes the population needing shelter (location, size, special needs, and estimated timeframe) and the American Red Cross selects an appropriate facility and provides staff, equipment and supplies, and other resources.

During smaller incidents, where only one jurisdiction or agency is primarily involved, the resource order is typically prepared at the incident, approved by the Incident Commander, and transmitted from the incident to the jurisdiction or agency ordering point.

Methods for placing orders may include:

• Verbal (face to face, telephone, radio, Voice Over IP)
• Electronic (data transmitted by computer based systems, electronic messaging, email, or fax)

For all incidents, using a single-point ordering system is the preferred approach.

Click on this link to learn more about single-point versus multipoint resource ordering.

• The date, time, and place of departure.
• Mode of transportation to the incident.
• Estimated date and time of arrival.
• Reporting location (address, contact name, and phone number).
• Anticipated incident assignment.
• Anticipated duration of deployment.
• Resource order number.
• Incident number.
• Applicable cost and funding codes.

When resources arrive on scene, they must be formally checked in.

Mobilization procedures should detail how staff should expect authorized notification, and designate who will physically perform the call-out. Procedures should also describe the agency's policy concerning self-dispatching and freelancing.

There are a number of software programs that can perform simultaneous alphanumeric notifications via text/email/pager, or deliver voice messages over the telephone. Backup procedures should be developed for incidents in which normal activation procedures could be disrupted by utility failures, such as an earthquake or hurricane.

Mobilization procedures must be augmented with detailed checklists, appropriate equipment and supplies, and other job aids such as phone trees or pyramid re-call lists so that activation can be completed quickly.

Incident managers use established procedures to track resources from mobilization through demobilization.

Resource tracking occurs prior to, during, and after an incident.

This process helps staff prepare to receive and use resources; tracks resource location; facilitates the safety and security of personnel, equipment, teams, and facilities; and enables effective resource coordination and movement.

Resource tracking:

• Provides a clear picture of where resources are located.
• Helps staff prepare to receive resources.
• Protects the safety and security of personnel, equipment, and supplies.
• Enables resource coordination and movement.

Resource tracking responsibilities are shared as follows:

• The Planning Section is responsible for tracking all resources assigned to the incident and their status (assigned, available, out of service).
• The Operations Section is responsible for tracking the movement of resources within the Operations Section itself.
• The Finance/Administration Section is responsible for ensuring the cost-effectiveness of resources.
• EOCs support resource needs and requests of the Incident Command; this role includes resource allocation and tracking.

As soon as the incident is discovered and reported, and often even before responders are dispatched, volunteers, survivors, and spectators will converge at the scene. When responders arrive, they must separate first spectators and then volunteers from disaster survivors, and secure a perimeter around the incident.

Securing a perimeter allows the incident response organization to:

• Establish resource accountability.
• Provide security and force protection.
• Ensure safety of responders and the public.

It is important to have advanced procedures in place for:

• Establishing controlled points of access for authorized personnel.
• Distinguishing agency personnel who have been formally requested from those who self-dispatched.
• Verifying the identity, qualifications, and deployment authorization of personnel with special badges.
• Establishing affiliation access procedures to permit critical infrastructure owners and operators to send in repair crews and other personnel to expedite the restoration of their facilities and services.

The Incident Command System uses a simple and effective resource check-in process to establish resource accountability at an incident.

The Planning Section Resource Unit establishes and conducts the check-in function at designated incident locations. If the Resources Unit has not been activated, the responsibility for ensuring check-in will be with the Incident Commander or Planning Section Chief. Formal resource check-in may be done on an ICS Form 211, Check-in List.

Click here to view an example ICS Form 211.

Information collected at check-in is used for tracking, resource assignment, and financial purposes, and includes:

• Date and time of check-in
• Name of resource
• Home base
• Departure point
• Order number and resource filled
• Resource Leader name and personnel manifest (if applicable)
• Other qualifications
• Travel method

Depending on agency policy, the Planning Section Resources Unit may contact the dispatch organization to confirm the arrival of resources, personnel may contact their agency ordering point to confirm their arrival, or the system may assume on-time arrival unless specifically notified otherwise.

• Account for the overall status of resources at the incident.
• Track movement of Operations personnel into and out of the incident tactical operations area.
• Be able to handle day-to-day resource tracking, and also be flexible enough to track large numbers of multidisciplinary resources that may respond to a large, rapidly expanding incident.
• Have a backup mechanism in the event on-scene tracking breaks down.

The more hazardous the tactics being implemented on the incident, the more important it is to maintain accurate resource status information.

The "Passport" system is an on-scene resource-tracking system that is in common use in fire departments across the country. The system includes three Velcro-backed name tags and a special helmet shield for each employee. When the employee reports for work, he or she places the name tags on three "passports." The primary passport is carried on the driver's-side door of the apparatus to which the employee is assigned. The secondary passport is carried on the passenger-side door, and the third is left at the fire station.

Upon arrival at an incident, the apparatus officer gives the primary passport to the Incident Commander, or the Division/Group Supervisor to which the resource is being assigned. The Incident Commander or Division/Group Supervisor will keep the passport until the resource is released from his or her supervision, when it will be returned to the company officer. The secondary passport may either remain with the apparatus, or be collected by the Resources Unit to aid overall incident resource tracking. The third passport serves as a backup mechanism documenting what personnel are on the apparatus that shift.

The helmet shield is placed on the employee's helmet upon receiving an incident assignment. The shield provides an easy visual indication of resource status and helps control freelancing.

Click on this link to learn more about recovery and demobilization of nonexpendable and expendable resources.

Managers should plan and prepare for the demobilization process at the same time that they begin the resource mobilization process. Early planning for demobilization facilitates accountability and makes the transportation of resources as efficient as possible—in terms of both costs and time of delivery. Indicators that the incident may be ready to implement a demobilization plan include:

• Fewer resource requests being received.
• More resources spending more time in staging.
• Excess resources identified during planning process.
• Incident objectives have been accomplished.

Click on this link to review considerations for demobilization of support and management resources.

When planning to demobilize resources, consideration must be given to:

• Safety: Organizations should watch for "first in, last out" syndrome. Resources that were first on scene should be considered for early release. Also, these resources should be evaluated for fatigue and the distance they will need to travel to their home base prior to release.
• Cost: Expensive resources should be monitored carefully to ensure that they are released as soon as they are no longer needed, or if their task can be accomplished in a more cost-effective manner.

A formal demobilization process and plan should be developed when personnel:

• Have traveled a long distance and/or require commercial transportation.
• Are fatigued, causing potential safety issues.
• Should receive medical and/or stress management debriefings.
• Are required to complete task books or other performance evaluations.
• Need to contribute to the after-action review and identification of lessons learned.

In addition, written demobilization plans are useful when there is equipment that needs to be serviced or have safety checks performed.

Agencies will differ in how they establish release priorities for resources assigned to an incident. An example of release priorities might be (in order of release):

• Scarce resources requested by another incident
• Contracted or commercial resources.
• Mutual aid and assistance resources.
• First-in agency resources.
• Resources needed for cleanup or rehabilitation.

Agency policies, procedures, and agreements must be considered by the incident management prior to releasing resources. For example, if the drivers of large vehicles carry special licenses (commercial rating, for example), they may be affected by local, tribal, State, and Federal regulations for the amount of rest required before a driver can get back on the road.

Incident personnel are considered a part of the Incident Command until they check-in at their home base or new assignment. In some circumstances this may also apply to contracted resources. For reasons of liability, it is important that the incident organization mitigate potential safety issues (such as fatigue) prior to letting resources depart for home.

On large incidents, especially those which may have personnel and tactical resources from several jurisdictions or agencies, and where there has been an extensive integration of multijurisdictional or agency personnel into the incident organization, a Demobilization Unit within the Planning Section should be established early in the life of the incident. A written demobilization plan is essential on larger incidents.

Reimbursement includes the payment of expenses incurred by resource providers for specific activities.

Reimbursement processes are important for establishing and maintaining resource readiness and establishing the means to pay providers in a timely manner. Processes include mechanisms for collecting bills, validating costs against the scope of the work, replacing or repairing damaged equipment, and accessing reimbursement programs.

Reimbursement procedures are often specified in mutual aid and assistance agreements.

Restocking is replenishing depleted resources.

Preparedness plans, mutual aid agreements, and assistance agreements should specify reimbursement terms and arrangements for:

• Collecting bills and documentation.
• Validating costs against the scope of the work.
• Ensuring that proper authorities are secured.
• Using proper procedures/forms and accessing any reimbursement software programs.

This lesson focused on the six primary tasks of resource management during an incident.

1. Identify Requirements
2. Order and Acquire
3. Mobilize
4. Track and Report
5. Demobilize
6. Reimburse and Restock