CITY OF TORONTO EMERGENCY PLAN
Emergency Support
Function
Incident Management System (IMS)
Office of Emergency Management
Version 4.0
June 2016
Table of Contents
Introduction ............................................................................................... 1
Purpose ......................................................................................................... 1
Scope............................................................................................................. 1
Concepts of Operations............................................................................ 2
General .......................................................................................................... 2
IMS and the Role of the Emergency Operations Centre ................................ 2
IMS Structure in the Emergency Operations Centre Diagram ....................... 3
17 Concepts and Principles of IMS ................................................................ 4
2.4.1 Accountability..................................................................................... 4
2.4.2 Applicability ........................................................................................ 5
2.4.3 Comprehensive Resource Management............................................ 5
2.4.4 Emergency Operations Centre Incident Action Plan .......................... 5
2.4.5 Designated Incident Facility ............................................................... 6
2.4.6 Information Management ................................................................... 6
2.4.7 Integrated Communications ............................................................... 6
2.4.8 Interoperability ................................................................................... 6
2.4.9 Inter-Organizational Collaboration ..................................................... 7
2.4.10 Management by Objectives ............................................................... 7
2.4.11 Modular and Scalable Organization ................................................... 7
2.4.12 Simplicity and Flexibility ..................................................................... 7
2.4.13 Standardization .................................................................................. 8
2.4.14 Standard Terminology ....................................................................... 8
2.4.15 Sustainability...................................................................................... 8
2.4.16 Span of Control .................................................................................. 8
2.4.17 Unity of Command ............................................................................. 8
Organization .............................................................................................. 9
City of Toronto's Fully Expanded Emergency Operations Centre Diagram ... 9
Toronto Emergency Management Program Committee/Control Group ....... 10
Management Team ...................................................................................... 11
3.3.1 EOC Management Team Diagram .................................................. 11
3.3.2 EOC Director ................................................................................... 11
3.3.3 EOC Deputy Director ....................................................................... 12
3.3.4 Liaison ............................................................................................. 12
3.3.5 Councillor Liaison ............................................................................ 12
3.3.6 Safety .............................................................................................. 12
3.3.7 Information ....................................................................................... 13
General Staff................................................................................................ 13
Operations Section ...................................................................................... 14
3.5.1 Operations Section Diagram ............................................................ 14
3.5.2 Operations Section Chief ................................................................. 14
3.5.3 Police ............................................................................................... 15
3.5.4 Fire .................................................................................................. 15
3.5.5 Paramedic........................................................................................ 15
3.5.6 Emergency Social Services ............................................................. 15
3.5.7 Engineering...................................................................................... 16
3.5.8 Health .............................................................................................. 16
3.5.9 Utilities ............................................................................................. 16
3.5.10 Environmental .................................................................................. 16
Planning Section .......................................................................................... 17
3.6.1 Planning Section Diagram ............................................................... 17
3.6.2 Planning Section Chief .................................................................... 17
3.6.3 Situation ........................................................................................... 18
3.6.4 Resources........................................................................................ 18
3.6.5 Documentation................................................................................. 18
3.6.6 Advance Planning ............................................................................ 18
3.6.7 Technical Specialists ....................................................................... 18
3.6.8 Demobilization ................................................................................. 18
3.6.9 Recovery.......................................................................................... 19
Logistics Section .......................................................................................... 20
3.7.1 Logistics Section Diagram ............................................................... 20
3.7.2 Logistics Section Chief .................................................................... 20
3.7.3 Information and Technology (I&T) ................................................... 20
3.7.4 EOC Support ................................................................................... 21
3.7.5 Supply .............................................................................................. 21
3.7.6 Personnel......................................................................................... 21
3.7.7 Transportation.................................................................................. 21
Finance & Administration Section ................................................................ 22
3.8.1 Finance & Administration Section Diagram...................................... 22
3.8.2 Finance & Administration Section Chief ........................................... 22
3.8.3 Time ................................................................................................. 22
3.8.4 Procurement .................................................................................... 23
3.8.5 Compensation & Claims .................................................................. 23
Cost 23
IMS in the EOC and External Relationship Diagrams .......................... 24
IMS Structure in the Emergency Operations Centre Diagram ..................... 24
Emergency Operations Centre and Emergency Site Diagram ..................... 26
Emergency Operations Centre and Divisional Operations Centre Diagram. 27
Emergency Operations Centre and Provincial Emergency Operations Centre
Diagram .............................................................................................................. 28
Roles and Responsibilities ..................................................................... 29
Office of Emergency Management (OEM) ................................................... 29
Conclusion ............................................................................................... 29
Revision History ...................................................................................... 30
Emergency Support Function
Incident Management System
Primary / Lead Agency / Division:
Supporting Divisions/Agencies/Corporations
(DACs):
Office of Emergency Management
City Divisions
Introduction
The Incident Management System (IMS) is a standardized approach to emergency
management that encompasses personnel, facilities, equipment, procedures and
communications operating within a common organizational structure.
IMS is predicated on the understanding that in every incident there are certain
management functions that must be carried out regardless of the number of persons
who are available or involved in the emergency response.
Purpose
The purpose of this Emergency Support Function (ESF) is to describe the standardized
IMS used by the City of Toronto in the Emergency Operations Centre (EOC). The IMS
provides functional interoperability at all levels of emergency management.
The IMS applied in the EOC conforms to the Provincial Emergency Management
Ontario Incident Management System and industry best practices.
Scope
This document includes the use of standardized IMS concepts and principles applied at
the City of Toronto's Emergency Operations Centre (EOC) and its linkages to the
emergency site, Divisional Operations Centre (DOC), external agencies and the
Provincial Emergency Operations Centre (PEOC).
This document does not provide direction on IMS implementation at an emergency site
or a DOC.
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Concepts of Operations
General
Emergency Support Functions are supporting documents to the City of Toronto
Emergency Plan (COTEP). While these are stand-alone documents not contained in the
Emergency Plan, they contain the structure and framework for integrated support by
lead and supporting Divisions, Agencies and Corporations (DACs) and are updated on
a regular basis.
IMS and the Role of the Emergency Operations Centre
The foundation of IMS is collaboration and coordination in the establishment of goals,
the setting of priorities and the assignment of resources to effectively manage an
emergency.
The IMS is a function-driven model used by the City of Toronto's Emergency Operations
Centre to respond to Incidents, Emergencies and Major Emergencies as described in
the Emergency Levels Notification ESF. A coordinated City-wide response will
maximize capacity to escalate response, utilize resources and skills, and allow the
community to access clear and appropriate information.
The Incident Management System is designed to allow the Emergency Operations
Centre to coordinate their efforts as well as integrate their activities with emergency
site(s), Divisional Operations Centres (DOCs), external agencies and the Provincial
Emergency Operations Centre (PEOC) depending on the level: Level 1 (Incident), Level
2 (Emergency) or Level 3 (Major Emergency).
The IMS provides the EOC with the structure and process to provide:
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Effective policy and strategic direction to the emergency;
Support of emergency operations at the site(s);
Consequence management;
Resource management to support the emergency site(s);
Coordination of management links to other Command/Divisional Operations
Centres, external agencies and the Provincial Emergency Operations Centre;
Information to the public and news media; and
Business continuity maintenance for the rest of the City.
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IMS Structure in the Emergency Operations Centre Diagram
Control Group
EOC Director
Liaison
Deputy EOC Director
Councillor Liaison
Safety
Information
Operations
Planning
Finance &
Administration
Logistics
Diagram 1: Illustrates the IMS structure used by the City of Toronto in the EOC.
Diagram Description: The Incident Management System is organized around five major
functions.
Management Team (represented by green)
Operations Section (represented by red)
Planning Section (represented by blue)
Logistics Section (represented by yellow); and
Finance & Administration Section (represented by grey)
The EOC Director reports to the Toronto Emergency Management Program
Committee/Control Group.
The EOC Deputy Director, Liaison, Councillor Liaison, Safety, Information, Operations
Chief, Planning Chief, Logistics Chief and Finance & Administration Chief report to the
EOC Director.
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17 Concepts and Principles of IMS
The IMS is based on a series of 17 concepts and principles and are the foundation of
decisions made in the EOC. The following sections outline how each concept and
principle is applied in the EOC.
2.4.1 Accountability
The EOC applies IMS to manage all Level 1 (Incident), Level 2 (Emergency) and Level
3 (Major Emergency) events. The IMS system is divided into key functions with the
following accountability:
Toronto Emergency Management Program Committee/Control Group:
Responsible for providing overall policy and strategic direction, setting expenditure
limits, approving higher level requests for assistance, changing and/or amending bylaws
or policies, authorizing declaration and terminating an emergency; providing direction on
public information activities and acting as official spokesperson(s);
Management Team: Responsible for implementing emergency policy and
coordination, public information and media relations, agency and provincial liaison, and
proper risk management procedures through the joint efforts of City of Toronto
Divisions, Agencies, Corporations and external organizations;
Operations: Responsible for providing a communications link with emergency site(s),
Divisional Operations Centre(s) and external agencies, and coordination of all City of
Toronto operations in support of the emergency response through implementation of the
EOC Incident Action Plan;
Planning: Responsible for anticipating the long-range planning needs of the EOC;
collecting, organizing, validating, analyzing and disseminating information; establishing
the EOC Incident Action Plan, Incident Briefings, Status Boards and Maps in
coordination with other functions and maintains all EOC documentation;
Logistics: Responsible for ensuring that the EOC is operational and provides
Information & Technology, EOC support (facilities, security, clerical), supplies (material,
equipment), personnel, and transportation resources;
Finance and Administration: Responsible for overseeing all financial management
including cost tracking, analysis and reporting, administering procurement contracts and
overseeing purchasing processes including overall expenditure management.
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2.4.2 Applicability
The IMS system will be scaled according to the response and recovery process
required to effectively coordinate and manage Level 1 (Incident), Level 2 (Emergency)
or Level 3 (Major Emergency) events.
2.4.3 Comprehensive Resource Management
The IMS provides processes for categorizing, ordering, dispatching, tracking and
recovering resources.This includes a standardized, comprehensive database of
resources as well as protocols to access, utilize, and demobilize resources.
2.4.4 Emergency Operations Centre Incident Action Plan
A Emergency Operations Centre Incident Action Plan describes the:
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Emergency Operations Centre Activation Level;
Current Situation;
Outstanding Issues and Challenges;
Anticipated Priorities and Actions;
Weather Forecast; and
Key Media Messages.
The EOC Incident Action Plan is created by the Planning Section as follows:
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Agency Reports for every Operational Period are completed by each activated
role and rolled up to the Section Chief;
The Section Chief reviews and summarizes the Agency Reports and forwards it
to the Planning Section Chief;
The Planning Section Chief rolls the EOC Incident Action Plan up to Command;
and
The completed EOC IAP is available for review by all sections.
Definitions:
Operational Period: The time scheduled for executing a given set of actions, as
specified in the EOC Incident Action Plan. Operational periods can be of various
lengths, although usually not over 24 hours. Each EOC Incident Action Plan covers one
Operational Period.
Reporting Period: Each Section Chief determines the number of reporting periods for
their Section during an Operational Period. The reporting periods are used to gauge the
status of how the Section is tracking against the priorities of the EOC Incident Action
Plan.
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2.4.5 Designated Incident Facility
The Emergency Operations Centre is the designated incident facility.
2.4.6 Information Management
The EOC communicates with a number of different stakeholders including; the Toronto
Emergency Management Program Committee (TEMPC), the Emergency Management
Working Group (EMWG), elected officials, City of Toronto Agencies, Boards,
Commissions, Corporations, Divisions, Non-Governmental Organizations, other
jurisdictions and levels of government, media and the public.
Effective information management is important for both internal and external
stakeholders. Information is collected, organized, validated, analysed and disseminated
in the EOC using the IMS system through the development and sharing of the following
documents:
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Emergency Operations Centre Incident Action Plan;
o Section Reports;
o Agency Reports;
Incident Briefings;
Status Boards;
Position Logs;
EOC Organization Chart;
Maps; and
Media releases.
2.4.7 Integrated Communications
The IMS requires integrated communications to ensure all jurisdictions and
organizations participating in a response can communicate and transmit information in a
timely manner across jurisdictional lines and establish an information exchange
process. Communications must be integrated and interoperable. Common terminology
and documentation is utilized amongst participating organizations.
2.4.8 Interoperability
Interoperability is the ability of responders to interact and work well together.
Interoperability in the EOC exists technologically as well as in relation to the
performance of IMS functions.
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Technological interoperability (such as telecommunications) allows the sharing of
information among responders as well as with other jurisdictions. Technological
interoperability encompasses all resources likely to be utilized in incident
management (e.g. radios, computers, satellites, telephones, social media
platforms, etc.).
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Functional interoperability is achieved in the EOC through the application and
use of standardized terminology, structure, procedures, information management
and documentation.
2.4.9 Inter-Organizational Collaboration
Where an incident, emergency or major emergency involves multiple organizations
and/or multiple jurisdictions, inter-organizational collaboration and coordination are
critical in ensuring an effective response. Roles, relationships and accountability in the
EOC are defined within the IMS framework. Examples of the following structures are
found in the IMS in the EOC and External Relationship Diagrams section of this
Emergency Support Function:
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City of Toronto's Fully Expanded Emergency Operations Centre Diagram
Emergency Operations Centre and Emergency Site
Emergency Operations Centre and Divisional Operations Centre
Emergency Operations Centre and Provincial Emergency Operations Centre
2.4.10 Management by Objectives
At the EOC, objectives are determined and efforts are then directed to achieving them.
Results are documented for analysis and evaluation and, where necessary, corrective
actions are taken. The process involves the following:
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Determining overarching issues and challenges;
Establishing specific and measurable actions for issues and challenges;
Developing and issuing plans, procedures and protocols;
Assigning tasks; and
Establishing an evaluation.
2.4.11 Modular and Scalable Organization
The IMS framework is modular and scalable in terms of structure and processes with
discrete, but interrelated functional components. Components may expand or contract
within the EOC without losing their distinct functions. The EOC is scalable to match the
size and complexity of an event.
2.4.12 Simplicity and Flexibility
The simplicity and flexibility of the IMS structure ensures its ability to expand and
contract. Only required components are activated within the EOC as an event unfolds
into a Level 1 (Incident), Level 2 (Emergency) or Level 3 (Major Emergency), thus
keeping the IMS structure of the EOC as uncomplicated as possible.
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2.4.13 Standardization
IMS provides standardized structure for managing Level 1 (Incident), Level 2
(Emergency) or Level 3 (Major Emergency) which allows stakeholders to work together
using a common approach and understanding.
2.4.14 Standard Terminology
IMS employs standard terminology for organizational elements such as Section Chiefs,
functions and branches. This enhances the interoperability of the EOC and its linkages.
2.4.15 Sustainability
The IMS requires the ability to sustain response activities until either a predetermined
end-point or the end of the incident. This usually involves 24/7 staffing. The EOC
sustains capacity through the pre-training of staff from other divisions (five-deep staffing
plan) and by designating alternates who possess the same level of authority and
qualifications as those they will replace or relieve.
2.4.16 Span of Control
An underlying principle of IMS is the need to optimize the number of subordinates
reporting to a supervisor in the interest of greater efficiency. This is known as
maintaining the “span of control”. If the number of subordinates falls outside of this
range, expansion or contraction of the IMS structure may be necessary. All sections
can appoint a Deputy Chief if required.
2.4.17 Unity of Command
IMS in the EOC operates on a defined and specific structure that provides an orderly
line of authority and accountability. The structure is based on the function to be
performed and the expertise of the EOC staff, rather than rank, organization or
jurisdiction. To ensure unity of command each individual should have one clearly
designated supervisor who may come from the same jurisdiction, agency or service.
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Organization
The organization of the IMS is built around six primary functions: Toronto Emergency
Management Program Committee/Control Group, Management Team, Operations,
Planning, Logistics, and Finance & Administration. These functions are the foundation
upon which the IMS organization develops. Each of the primary IMS sections may be
sub-divided as required.
City of Toronto's Fully Expanded Emergency Operations Centre
Diagram
Control Group
EOC Director
Liaison
Deputy EOC Director
Councillor Liaison
Safety
Information
Operations
Planning
Police
Situation
Fire
Resources
Paramedic
Documentation
Emergency Social
Services
Advance Planning
Engineering
Technical Specialists
Health
Demobilization
Utilities
Recovery
Logistics
Information &
Technology
EOC Support
Supply
Finance & Administration
Time
Procurement
Compensation &
Claims
Personnel
Cost
Transportation
Environmental
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Diagram 2: The fully expanded EOC organizational structure includes 8 branches under
Operations, 7 under Planning, 5 under Logistics and 4 under Finance and
Administration.
Diagram Description:
The Management Team reports to the Toronto Emergency Program Committee
(TEMPC) / Control Group.
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The four major sections (Operations, Planning, Logistics and Finance &
Administration) report into the Management Team that consists of the EOC
Director, Deputy EOC Director, Liaison, Councillor Liaison, Safety and
Information;
The eight branches under Operations include Police, Fire, Paramedic,
Emergency Social Services (ESS), Engineering, Health, Utilities and
Environmental;
The seven branches under Planning include Situation, Resources,
Documentation, Advance Planning, Technical Specialists, Demobilization and
Recovery;
The five branches under Logistics include Information & Technology, EOC
Support, Supply, Personnel and Transportation; and
The four branches under Finance & Administration include Time, Procurement,
Compensation & Claims and Cost.
Toronto Emergency Management Program Committee/Control
Group
The Toronto Emergency Management Program Committee/Control Group
responsibilities include:
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Providing overall policy and strategic direction;
Setting expenditure limits;
Approving higher level request for assistance;
Changing and/or amending bylaws or policies;
Authorization declaration and termination of an emergency;
Providing direction on public information activities; and
Acting as official spokesperson(s).
Membership of the Toronto Emergency Management Program Committee/Control
Group is defined under Toronto Municipal Code: Chapter 59: Emergency Management
Sections 59.2 and 59.3.
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Management Team
The Management Team consists of the EOC Director, EOC Deputy Director, Liaison,
Councillor Liaison, Safety and Information. The Management Team's responsibilities
include:
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Responsible for implementation of emergency policy and coordination;
Public information and media relations;
Agency liaison; and
Proper risk management procedures through the joint efforts of local government
agencies and private organizations.
3.3.1 EOC Management Team Diagram
Control Group
EOC Director
Liaison
Deputy EOC Director
Councillor Liaison
Safety
Information
Diagram 3: Illustrates the command structure of the Management Team at the EOC.
Diagram Description:
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The Deputy EOC Director, Liaison, Councillor Liaison, Safety and Information
functions are represented by green and report to the EOC Director; and
The EOC Director reports to the Toronto Emergency Management Program
Committee/Control Group.
3.3.2 EOC Director
The EOC Director has overall authority and responsibility for activities of the EOC, and
for ensuring organizational effectiveness. In conjunction with the EOC Management
Team, the EOC Director establishes staffing levels, sets EOC priorities and objectives
for each operational period and ensures objectives are carried out. The EOC Director
briefs the TEMPC and senior officials, ensuring effective inter-agency coordination and
directs appropriate public information in connection with the Information Function.
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3.3.3 EOC Deputy Director
Given the scale and complexity of major emergencies in the City of Toronto, the EOC
Director may appoint an EOC Deputy Director to assist in managing the section. The
Deputy Director is a fully qualified individual who, in the absence of the EOC Director, is
delegated the authority to manage a function and perform specific tasks.
3.3.4 Liaison
The Liaison Officer is responsible for inviting required agencies to the EOC, as identified
by the EOC Director and EOC Management Team, and for maintaining contact with
external agencies and other EOCs. The Liaison Officer also assists the EOC Director
with activities pertaining to agency coordination, briefings, meetings and conducting
EOC facility tours. The Liaison Officer gathers information from and about organizations
that are involved with the incident and serves as a coordinator for organizations not
represented in the EOC.
3.3.5 Councillor Liaison
The Councillor Coordination Liaison is responsible for facilitating the two-way
communication of information between Councillors and the EOC during and, if
applicable, after an Emergency or Major Emergency. The Councillor Coordination
Liaison will work with Strategic Communications to develop communication tools to
support Councillors, including daily messages, short news items; appropriate notices
suitable for posting in hardcopy at local facilities or venues; information used on
Councillor websites, and distributed electronically via email or through Councillors'
social media accounts. The Councillor Coordination Liaison will collect information from
Councillors to help Strategic Communications craft relevant messaging to the media or
the public. The Councillor Coordination Liaison will ensure that Councillors' questions
are taken and communicated to the appropriate functions in the EOC. The Councillor
Coordination Liaison will respond to Councillors' questions in a reasonable manner and
timeframe. Where possible, the Councillor Coordination Liaison will provide wardspecific information in addition to general City-wide information. The Councillor
Coordination Liaison, in consultation with Strategic Communications, will coordinate the
most effective way for Councillors to provide and receive information or ask questions
relevant to the emergency or major emergency. The Councillor Coordination Liaison will
escalate any urgent matter or important information brought forward by a Councillor to
the appropriate parties at the EOC.
3.3.6 Safety
Safety responsibilities include monitoring, assessing, and recommending modifications
to safety conditions in the EOC and halting unsafe operations. This role is performed by
the EOC Director.
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3.3.7 Information
The Information Officer serves as the coordination point for all public information and
media relations. Responsibilities include establishing and maintaining media contacts,
preparing news releases, coordinating interviews, news conferences, or media
briefings; developing public information materials, overseeing social media, providing
messaging for use by call centres and EOC staff, establishing communications
strategies, monitoring media reports and correcting inaccuracies, liaising and
coordinating messaging with other Information Officers and obtaining EOC Director
approval for all external messages.
General Staff
The General Staff consists of the Operations Section, Planning Section, Logistics
Section and Finance & Administration Section. General Staff support Management in a
variety of ways to plan, coordinate and carry out response to an incident, emergency or
major emergency. Each General Staff Section is comprised of functional branches that
solve specific problems. The activated branches are determined by the nature and
scope of the incident. In some cases one division can staff several branches, for
example, a representative from Toronto Water may staff Health, Utilities and
Environmental for a single event.
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Operations Section
The Operations Section may communicate directly with site(s), field personnel,
activated Divisional Operations Centres (DOCs) and Command Centres. The function of
the Operations Section is to gather situation information from site and share it with the
Planning Section and other members of the EOC Management Team, coordinate any
resource requests from site, support site operations and coordinate multi-agency or
multi-divisional support of the site.
3.5.1 Operations Section Diagram
Operations
Police
Fire
Paramedic
Emergency Social
Services
Engineering
Health
Utilities
Environmental
Diagram 4: Illustrates the command structure of the Operations Section at the EOC.
The Operations Section is represented by red.
Diagram Description:
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The Operations Chief Leads the Operations Section; and
The Operations Section is comprised of 8 branches: Police, Fire, Paramedic,
Emergency Social Services, Engineering, Health, Utilities and Environmental.
3.5.2 Operations Section Chief
The Operations Section Chief is responsible for developing and managing the
Operations Section and implementing the EOC Incident Action Plan objectives as set by
the Management Team. This position reports directly to the EOC Director and has
supervisory/management responsibilities. The Operations Chief ensures all resources
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appointed to an incident are organized, assigned and supervised. The Operations
Section Chief works closely with the Management Team and all other EOC sections to
coordinate operational activities.
3.5.3 Police
The Police Branch is activated within the EOC when the situation involves a security
risk or a public safety concern. This branch of the Operations Section is filled by the
Toronto Police Service at the EOC in consultation with other levels of Police Services as
required (e.g. Ontario Provincial Police, Royal Canadian Mounted Police). This branch
coordinates and supervises law enforcement, traffic control operations, evacuations,
and search & rescue as part of the EOC Incident Action Plan.
3.5.4 Fire
The Fire Branch is activated within the EOC when the situation requires fire suppression
and hazardous materials management. This branch of the Operations Section is filled
by Toronto Fire Services at the EOC in consultation with other municipalities, agencies
and the Office of the Fire Marshal as required. This branch coordinates mutual aid
resources and arranges the transportation of external resources to the City of Toronto.
The Fire Branch Lead implements and coordinates the EOC Incident Action Plan
objectives assigned to Toronto Fire Services.
3.5.5 Paramedic
The Paramedic Branch is activated within the EOC when an incident requires care and
transportation of sick or injured people. This branch of the Operations Section is filled
by Toronto Paramedic Services in consultation with the the Ministry of Health and Long
Term Care and Health Canada as required. The Paramedic Branch Coordinator
implements and coordinates the EOC Incident Action Plan objectives assigned to
Toronto Paramedic Services.
3.5.6 Emergency Social Services
The Emergency Social Services (ESS) Branch is activated when an incident requires
emergency food, clothing, shelter, registration & inquiry, and personal services for
Toronto residents impacted by an incident. The Emergency Social Services Branch
includes staff from the Office of Emergency Management, and may include Parks,
Forestry & Recreation, the Canadian Red Cross and other appropriate divisions and
agencies. This branch provides direction and support to all activated ESS activities (e.g.
Reception Centres) and coordinates the ESS objectives outlined in the EOC Incident
Action Plan.
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3.5.7 Engineering
The Engineering Branch is activated when local facilities and infrastructure systems
such as roads and bridges that are affected by an incident. The Engineering Branch
may be filled by the Toronto Transit Commission (TTC), Toronto Water, Transportation
Services, Toronto Building and/or Engineering & Construction Services, in consultation
with City of Toronto Divisions, other municipalities, associated Ministries, the Provincial
Emergency Operations Centre and/or private agencies. This branch provides direction
and support for damage assessment, monitoring, and coordination of repairs of local
facilities as part of the EOC Incident Action Plan objectives.
3.5.8 Health
The Health Branch is activated when an incident requires the provision of public health
measures including immunization programs, food safety inspections, drinking and
recreational water quality, indoor air quality testing and monitoring, communicable
disease and infection control. This branch is filled by Toronto Public Health in
consultation with other divisions (e.g.Toronto Water), municipalities, associated
Ministries, health care resources and private agencies. The Health Branch implements
and coordinates the objectives of the EOC Incident Action Plan by providing direction
and support for health related incidents affecting residents of Toronto.
3.5.9 Utilities
The Utilities Branch is activated when an incident affects utilities including, but not
limited to, gas, electrical systems, telecommunications, water, and solid waste in
Toronto. This branch is filled by the appropriate local service provider (e.g. Enbridge,
Toronto Hydro) in consultation with other supporting service providers. This branch
surveys utility systems and coordinates restoration information and priorities in support
of the EOC Incident Action Plan.
3.5.10 Environmental
The Environmental Branch is activated when an incident involves adverse impact to air,
land or water from a hazardous spill, unauthorized waste disposal, outdoor air quality,
dam failure, etc. This branch may be filled by Toronto Public Health, Toronto Water,
Transportation Services, Solid Waste Management, and/or Parks, Forestry &
Recreation in consultation with regional, provincial, and federal environment officials
and the private sector (e.g. Toronto Region Conservation Authority, Ministry of the
Environment and Climate Change, Environment Canada and other agencies). This
branch coordinates local response efforts to environmental issues in support of the EOC
Incident Action Plan.
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Planning Section
The Planning Section, staffed by Office of Emergency Management staff, develops the
EOC Incident Action Plan for each operational period. The Planning Section Chief
manages the activities of the Planning Section including collecting, organizing,
validating, analyzing and disseminating incident information. The Planning Section
conducts long-range response, recovery and/or contingency planning as well as
develops plans for demobilization. The Planning Section reviews all Section Reports,
determines potential future impacts of the incident and provides periodic briefings on
advance planning issues for the EOC Director and Management Team.
3.6.1 Planning Section Diagram
Planning
Situation
Resources
Documentation
Advance Planning
Technical Specialists
Demobilization
Recovery
Diagram 5: Illustrates the command structure of the Planning Section at the EOC. The
Planning Section is represented by blue.
Diagram Description:


The Planning Chief Leads the Planning Section; and
The Planning Section is comprised of 7 branches: Situation, Resources,
Documentation, Advance Planning, Technical Specialists, Demobilization and
Recovery.
3.6.2 Planning Section Chief
The Planning Section Chief is responsible for developing the Planning Section and has
supervisory/management responsibilities. The Planning Chief reports to the EOC
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Director and ensures that the Director is informed of significant planning issues. This
position liaises with other Section Chiefs to ensure that Section Reports are submitted
to the Planning Section. The Section Reports are used as a basis of the EOC Incident
Action Plan.
3.6.3 Situation
The Situation Branch oversees the collection, organization, validation and analysis of
disaster situation information, including damage assessments. This branch assists in
the development of, and distributes, the EOC Incident Action Plan. The Branch reviews
all EOC section objectives and ensures that an EOC Incident Action Plan is developed
for each operational period. This branch also ensures all maps, status boards, major
event log, and other displays contain current, accurate information.
3.6.4 Resources
The Resources Branch coordinates resource tracking with the Operations and Logistics
Sections. This branch is responsible for tracking resources on a resource status board
or other tracking or display system, but does not obtain or supply resources.
3.6.5 Documentation
The Documentation Branch collects, organizes, reproduces, distributes and files all
completed incident related forms, including EOC Position Logs, EOC Incident Action
Plans, etc. This branch also assists the Recovery Branch with the preparation and
distribution of the EOC After Action Report and provides scribes for Section Chiefs as
required.
3.6.6 Advance Planning
The Advance Planning Branch utilizes all information sources to help assess, review,
anticipate, communicate and develop plans. This Branch anticipates potential future
impacts of an incident and develops an Action Plan consisting of possible response and
recovery related issues that are likely to occur beyond the next operational period (36 to
72 hours). This Branch prepares periodic advance planning briefings for the EOC
Director and Management Team.
3.6.7 Technical Specialists
The Technical Specialists Branch may be activated if there is a requirement for
specialized, technical observations and recommendations within the EOC.
3.6.8 Demobilization
The Demobilization Branch reviews pertinent Planning Section documentation and
develops the Demobilization Plan for the EOC.
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3.6.9 Recovery
The Recovery Branch oversees the transition from response to recovery, assesses the
requirements for community and individual recovery, and identifies immediate shortterm relief efforts that will initiate and speed recovery for an affected area. This branch
also identifies long term actions to restore local services to pre-incident conditions.
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Logistics Section
The Logistics Section ensures that the EOC is operational by providing the
fundamentals of Information & Technology, EOC Support, Supply, Personnel and
Transportation.
3.7.1 Logistics Section Diagram
Logistics
Information &
Technology
EOC Support
Supply
Personnel
Transportation
Diagram 6: Illustrates the command structure of the Logistics Section at the EOC. The
Logistics Section is represented by yellow.
Diagram Description:


The Logistics Chief Leads the Logistics Section; and
The Logistics Section is comprised of 5 branches: Information & Technology, EOC
Support, Supply, Personnel and Transportation.
3.7.2 Logistics Section Chief
The Logistics Section Chief reports directly to the EOC Director and has
supervisory/management responsibilities. This function includes the overall supervision,
coordination, administration and management of the Logistics Section and may assume
specific roles/functions within the section if they have not been assigned to other
personnel. The Section Chief ensures that all activities are in support of the EOC
Incident Action Plan.
3.7.3 Information and Technology (I&T)
The Information and Technology Branch is filled by the City of Toronto's Information &
Technology Division. This branch ensures communications and computer systems are
provided, supported and maintained within the EOC.
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3.7.4 EOC Support
The EOC Support Branch ensures that the EOC and other facilities have required
resources during the response effort, including securing access to the facilities and
providing the staff, furniture, supplies and materials necessary to configure the facilities
in a manner adequate to accomplish the EOC Incident Action Plan objectives. This
includes the provision of food and refreshments for EOC personnel. This branch is filled
by Facilities Management, Corporate Security and Office of Emergency Management
staff. Upon demobilization, this branch is also responsible for returning work space to its
original state.
The EOC Support Branch may be broken down into three distinct units. As needed, the
Facilities Unit, Security Unit and Clerical Unit can be set-up to support the EOC, and in
some cases as part of Incident Command at Site. The specific responsibilities of these
units would need to be further clarified within the branch at time of activation.
3.7.5 Supply
The Supply Branch oversees the acquisition and allocation of supplies, materials or
equipment not normally provided through mutual aid or normal department/agency
channels. This includes clarifying and verifying requests to ensure accuracy and
efficiency, communicating directly with suppliers/vendors and coordinating
shipping/delivery arrangements. The Purchasing & Materials Management Division
staffs this role.
3.7.6 Personnel
The Personnel Branch is responsible for worker care, feeding, orientation, credentialing
(verification and identification) for volunteers, temporary employees, contractors, etc.
Logistics is also responsible for volunteer management, screening and
training/orientation.
While each Section in the EOC is responsible for determining their staffing schedule,
the Personnel Branch's job is to coordinate staffing arrangements and develop the
written organization structure (tracking staff assignments). The Personnel Branch may
be filled by Human Resources and/or the Toronto Office of Partnerships.
3.7.7 Transportation
The Transportation Branch arranges incident related transportation such as shuttle
service, vehicle pool procedures (rental cars for shared use), fueling procedures, and
parking locations/authorization. This branch may be filled by Transportation Services
and/or Fleet Services.
Depending on the nature and scope of the emergency event, logistics may arrange
courier services and/or the transportation of goods from a supplier to the end users,
including shipping, receiving, loading and the effective packaging of goods.
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Finance & Administration Section
This section is responsible for overseeing all financial management including cost
tracking, analysis and reporting, administering procurement contracts and overseeing
the purchasing processes including overall expenditure management.
3.8.1 Finance & Administration Section Diagram
Finance & Administration
Time
Procurement
Compensation &
Claims
Cost
Diagram 7: Illustrates the command structure of the Finance & Administration Section at
the EOC. The Finance & Administration Section is represented by grey.
Diagram Description:


The Finance & Administration Chief Leads the Finance & Administration Section;
and
The Finance & Administration Section is comprised of 4 branches: Time,
Procurement, Compensation & Claims and Cost.
3.8.2 Finance & Administration Section Chief
The Finance & Administration Section Chief is responsible for overseeing all aspects of
the Finance Section within the EOC. This includes fulfilling the specific responsibilities
of any branches within the section that have not been assigned. This position reports
directly to the EOC Director and has both financial and supervisory/management
responsibilities. The extent of these responsibilities will vary depending on the level of
activation and overall scope of the event.
3.8.3 Time
The Time Branch is filled by Policy, Planning, Finance and Administration. This branch
is responsible for tracking and reporting personnel hours worked and
preparing/reviewing related forms, reports and statistical data.
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3.8.4 Procurement
The Procurement Branch is responsible for supporting Logistics with the acquisition of
goods and services, specifically as it relates to the development of service agreements
and/or contracts and the overseeing of purchasing processes. This branch is staffed by
the Purchasing & Materials Management Division.
3.8.5 Compensation & Claims
This Branch is responsible for ensuring all documentation related to worker injuries are
completed correctly and forwarded within designated timelines. It also coordinates the
investigation and review of property/equipment damage or loss claims arising from the
event. The Compensation & Claims Branch may be filled by Human Resources and Legal
Services Divisions.
3.8.6 Cost
The Cost Accounting Branch is filled by the Accounting Services Division and is
responsible for collecting all cost information, reviewing invoices, statements and other
vendor documents, and reporting on consolidated cost estimates.
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IMS in the EOC and External Relationship Diagrams
IMS Structure in the Emergency Operations Centre Diagram
Control Group
EOC Director
Liaison
Deputy EOC Director
Councillor Liaison
Safety
Information
Operations
Planning
Police
Situation
Fire
Resources
Paramedic
Documentation
Emergency Social
Services
Advance Planning
Engineering
Technical Specialists
Health
Demobilization
Utilities
Recovery
Logistics
Information &
Technology
EOC Support
Supply
Finance & Administration
Time
Procurement
Compensation &
Claims
Personnel
Cost
Transportation
Environmental
Diagram 8: The fully expanded EOC organizational structure includes 8 branches under
Operations, 7 under Planning, 5 under Logistics and 4 under Finance and
Administration.
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Diagram Description:






The Management Team reports to the Toronto Emergency Program Committee
(TEMPC) / Control Group;
The four major sections (Operations, Planning, Logistics and Finance &
Administration) report into the Management Team that consists of the EOC
Director, Deputy EOC Director, Liaison, Councillor Liaison, Safety and
Information;
The eight branches under Operations include Police, Fire, Paramedic,
Emergency Social Services (ESS), Engineering, Health, Utilities and
Environmental;
The seven branches under Planning include Situation, Resources,
Documentation, Advance Planning, Technical Specialists, Demobilization and
Recovery;
The five branches under Logistics include Information & Technology, EOC
Support, Supply, Personnel and Transportation; and
The four branches under Finance & Administration include Time, Procurement,
Compensation & Claims and Cost.
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Emergency Operations Centre and Emergency Site Diagram
Control Group
EOC Director
Liaison
Deputy EOC Director
Councillor Liaison
Safety
Information
Operations
Police
Situation
Fire
Resources
Paramedic
Documentation
Emergency Social
Services
Advance Planning
Engineering
Health
Utilities
Logistics
Planning
Finance & Administration
Information &
Technology
Time
Procurement
EOC Support
Supply
Compensation &
Claims
Technical Specialists
Personnel
Cost
Demobilization
Transportation
SITE
Recovery
Environmental
Incident
Command
Liaison
Safety
Information
Operations
Planning
Incident Management System ESF, Version 4.0 June 2016
Logistics
Finance &
Administration
Page 26 of 31
Diagram 9: The fully expanded EOC organizational structure illustrating a possible
connection to an Emergency Site.
Diagram Description: In this example, the Police Branch of the EOC Operations
Section maintains the relationship with the Police Emergency Site. This Police
Emergency Site follows the IMS Model.
Emergency Operations Centre and Divisional Operations Centre
Diagram
Control Group
EOC Director
Liaison
Deputy EOC Director
Councillor Liaison
Safety
Information
Operations
Planning
Police
Situation
Fire
Resources
Paramedic
Documentation
Emergency Social
Services
Advance Planning
Engineering
Health
Information &
Technology
EOC Support
Finance & Administration
Time
Procurement
Supply
Compensation &
Claims
Technical Specialists
Personnel
Cost
Demobilization
Transportation
Recovery
Utilities
Environmental
Logistics
DOC
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Diagram 10: The fully expanded EOC organizational structure illustrating a possible
connection to a Divisional Operations Centre.
Diagram Description: In this example, the Emergency Social Services Branch of the
EOC Operations Section maintains the relationship with a Divisional Operations Centre.
Emergency Operations Centre
Operations Centre Diagram
and
Provincial
Emergency
Control Group
PEOC
EOC Director
Liaison
Deputy EOC Director
Councillor Liaison
Safety
Information
Operations
Planning
Police
Situation
Fire
Resources
Paramedic
Documentation
Emergency Social
Services
Advance Planning
Engineering
Health
Utilities
Logistics
Finance & Administration
Information &
Technology
Time
Procurement
EOC Support
Supply
Compensation &
Claims
Technical Specialists
Personnel
Cost
Demobilization
Transportation
Recovery
Environmental
Diagram 11: The fully expanded EOC organizational structure illustrating the
connection of the EOC and the Provincial Emergency Operations Centre (PEOC).
Diagram Description: The EOC Maintains its relationship through the Liaison Branch of
the Management Team.
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Roles and Responsibilities
Office of Emergency Management (OEM)
The role of the OEM is to strengthen the City's ability to prepare, respond and recover
from major emergencies. The OEM is responsible for coordinating preparedness,
mitigation, response, and recovery activities for any major emergency or disaster
(manmade or natural) affecting the City of Toronto.
This is achieved through:











Maintaining the City's Emergency Plan;
Acting as curator of this Emergency Support Function;
Ensures that this ESF complies with the City of Toronto's Emergency Plan, and
all other Emergency Support Functions, Risk Specific Plans and other relevant
City of Toronto, Provincial and Federal emergency management legislation;
Ensures Emergency Operations Centre readiness;
Supporting the implementation of the City of Toronto's Incident Management
System at the Emergency Operations Centre;
Delivering Emergency Social Services to displaced residents during
emergencies;
Conducting training;
Developing a multi-year comprehensive exercise program;
Conducting a Hazard Identification and Risk Assessment (HIRA);
Delivering public education and outreach; and
Leading the City's Business Continuity Management Program.
Conclusion
The Office of Emergency Management applies the Incident Management System within
the Emergency Operations Centre to provide a standard approach to the management
of emergency incidents. An emergency event may take days, weeks or months to
resolve. The level of involvement of each of the participating divisions and agencies
may expand or contract as the consequences of the events are addressed.
The IMS model allows the EOC to facilitate the cooperation of all of participating
agencies. The IMS structure may change throughout the course of the emergency to
reflect the various phases of the incident. The structure should develop to meet the
functions required. The characteristics of the incident and the needs of the
Management Team will determine the organizational elements that should be
established.
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Revision History
Revision Name of Contributor
Number
Summary Of Changes
Revision Date
1.0
J. Smysnuik (OEM)

Document Creation
October 14, 2011
2.0
J. Smysnuik and W.
Banon (OEM)

Update IMS colour
codes, re-review,
reformat and convert
into new ESF Template
December 28,
2012
Updated IMS EOC
Section Title from
Command to
Management Team
July 31, 2015

3.0
Loretta Chandler,
James Kilgour and
Sherry Waters (OEM)





4.0
Loretta Chandler,
James Kilgour and
Sherry Waters (OEM)

Revised with EMWG
input
Updated IMS Diagrams
Reformatted for
Accessibility for
Ontarians with
Disabilities Act (AODA)
Compliance
Approved by Emergency
Management Working
Group EMWG) on
August 31, 2015.
Posted on the OEM
Website
August 31, 2015
September 1,
2015
Updated sections 2.4.4
and 2.4.6 to include the
creation and roll up of
the Emergency
Operations Centre
Incident Action Plan
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Revision Name of Contributor
Number
Summary Of Changes



5.0


Revision Date
Removed all references
to the Emergency
Operations Centre
having jurisdiction over
site
Minor administrative and
formatting changes
Approved by EMWG
Posted to OEM Website
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