City of Toronto Emergency Plan
OPERATIONAL SUPPORT FUNCTION
Incident Management System
Office of Emergency Management
Version 2.0
December 2012
Incident Management System OSF – Approved December 2012
Revision History
Revision
Number
1.0
Name of Contributor
Summary Of Changes
Revision Date
J. Smysnuik

Document Creation
October 14, 2011
2.0
J. Smysnuik and W.
Banon (OEM)

Update IMS colour
codes, re-review,
reformat and convert into
new OSF Template
Revised with EMWG
input
December 28,
2012

3.0

4.0

5.0

6.0

7.0

Incident Management System OSF – Approved December 2012
3
Table of Contents
1.0
Introduction .................................................................................................................... 4
1.1
Purpose ......................................................................................................................... 4
1.2
Scope ............................................................................................................................ 4
2.0
Concept of Operations ................................................................................................... 5
2.1
General ......................................................................................................................... 5
2.2
Five Major Functions of an IMS Organization ............................................................... 7
2.3
17 Concepts and Principles of IMS ............................................................................... 8
2.4
Organization ................................................................................................................ 11
2.5
Incident Action Plan / EOC Action Plan ....................................................................... 17
2.6
Incident Management System – Site / EOC Relationships ......................................... 17
2.7
Conclusion .................................................................................................................. 19
3.0
Roles and Responsibilities .......................................................................................... 19
3.1
Primary / Lead Agency / Division ................................................................................ 19
3.1.1
Office of Emergency Management ........................................................................ 19
Incident Management System OSF – December 2012
4
Operational Support Function
Incident Management System
Primary / Lead Agency / Division:
Office of Emergency Management
Supporting Agencies / Divisions:
(ABCD's)
City Divisions
External Supporting Agencies:
City Agencies, Boards, Commissions
1.0
Introduction
Incident Management System (IMS) is a standardized approach to emergency
management encompassing 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.
1.1
Purpose
The purpose of this Operational Support Function (OSF) is to describe a
standardized IMS that provides functional interoperability at all levels of
emergency management. This document conforms to the Provincial Emergency
Management Ontario Incident Management System Doctrine, which can be
referred to for further information.
The goal of the IMS is to provide an effective, flexible, and consistent structure
and process that is scalable to manage incidents by all levels of government,
emergency response organizations, communities, ministries, non-government
organizations (NGOs), and the private sector.
1.2
Scope
The scope of this document includes the use of a standardized IMS as it relates
to an Emergency Operations Centre (EOC), an emergency site or a Divisional
Operations Centre (DOC).
Incident Management System OSF – December 2012
5
2.0
Concept of Operations
2.1
General
Operational 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 Agencies, Boards, Commissions and
Divisions in the most frequently grouped operational functions responding to
emergencies and are updated on a regular basis.
Figure 1 illustrates the relationship between the Toronto Emergency Plan, this
IMS OSF, and the other OSFs and Risk Specific Plans (formerly Emergency
Operating Procedures – EOPs).
Incident Management System OSF – December 2012
6
City of Toronto – Emergency Plan
Operational Support Functions and Risk Specific Plans
Identification of Lead Agencies
Toronto Emergency Plan
Operational Support Functions
(OSF’s)
Emergency Level
Notifications
Emergency
Information
Risk Specific Plans
(RSP’s)
Nuclear
OEM
OEM
Strategic
Communications
EOC Operations
Evacuation
OEM
Police Service
Incident
Management
System
Mass Casualty
Floods
Emergency Medical
Services
Toronto & Region
Conservation Authority
Toronto Public Health
Power Disruption
(Electricity)
OEM
Toronto Hydro
OEM
Animal Care &
Relief
Municipal Licensing &
Standards
Damage
Assessment
Toronto Building
Debris
Management
Solid Waste
Management
Donations
Management
Mass Fatality
Police Service
Psychosocial
Response &
Recovery
Toronto Public Health
Shared Fleet
Management
Fleet Services
Traffic
Management
Office of Partnerships
Transportation
Services
Emergency
Human Services
Volunteer
Management
OEM
Human Resources
Toronto Public
Health Plan for an
Influenza Pandemic
Incident Management System OSF – December 2012
Fuel Distribution
Fleet Services
7
2.2
Five Major Functions of an IMS Organization
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 Agencies, Boards, Commissions and
Divisions across the City of Toronto to respond to emergencies. A coordinated
City-wide response will maximize our capacity to escalate our response, utilize
resources and skills, and allow our community to access clear and appropriate
information. Incident Management System is designed to allow individual
agencies to coordinate their efforts as well as integrate their activities with those
of other responding divisions or agencies.
Figure 2 below illustrates the standard IMS system used by the City of Toronto.
The Five Major Functions of an IMS Organization
Incident Management System OSF – December 2012
8
2.3
17 Concepts and Principles of IMS
The IMS is based on a series of 17 concepts and principles from business, military
and emergency response organizations. The 17 concepts and principles are the
foundation of the decisions we make in the IMS.
Concepts and
Principles
Accountability
Definition
All functional areas and jurisdictional levels remain
responsible for their own actions at all times during an
incident. To help guide responders in being diligent in, as well as
being able to explain their incident management actions, specific
procedures are required for safety and security; resource
management; and response activities such as decision-making and
tactical operations. In a controlled area (i.e. a “hot zone”), specific
2
and ongoing tracking Figure
of personnel
entering and exiting the area, is
required.
Applicability
IMS may be applied in small, simple, or large, complex
incidents, as it is easily adaptable to any given scenario. It may
be applied by responder organizations, municipal and provincial
governments, private and Non-Governmental Organization (NGO)
sectors. It is suitable for scenarios involving multiple
municipalities, other provinces/territories, or international partners.
Comprehensive
Resource
Management
IMS provides processes for categorizing, ordering,
dispatching, tracking, and recovering resources. To assure
readiness, there should be in place, prior to the incident, a
standardized, comprehensive database of resources as well as
protocols to access, utilize, and demobilize such resources.
Consolidated
Incident Action
Plan (IAP)
A consolidated IAP outlines incident response goals,
objectives, strategies, and tactics. It also outlines safety,
communications, and resource management information.
Under IMS, an IAP is prepared for a specific period known as an
‘operational period’. The IAP may be modified during an
operational period, should circumstances or information change.
The IAP may also need to be revised prior to the commencement
of the next operational period. An IAP may be spoken or written.
Designated
Incident
Facilities
IMS requires certain facilities to accommodate and facilitate
the carrying out of its various functions for an incident, which could
include (as required) an incident command post, a base, one or
more staging areas, one or more camps, a helicopter base, and
associated landing/taking off spots, reception centres, or a mass
casualty triage area. An emergency operations centre may be
Incident Management System OSF – December 2012
9
needed to support the incident.
Information management is important, both for internal and
external audiences. IMS requires that there should be
processes to acquire, analyze, and disseminate information at
all levels in a timely manner.
Information
Management
Internal information is needed to: maintain a common operational
picture; and to formulate broad incident strategies, incident action
plans, and field decisions.
Information for an external audience such as the public and the
media may be needed to: provide notification and instructions: and
to manage public reaction.
IMS requires integrated communications to ensure all
jurisdictions and organizations participating in the response
to an incident can communicate and transmit incident
Integrated
information in a timely manner across jurisdictional lines, and
communications
establish an emergency information management system. For
communications to be integrated, interoperability and common
terminology must exist among participating organizations.
Interoperability is the ability of responders to interact and work
well together. Interoperability should exist technologically as well
as in relation to the performance of IMS functions.
Interoperability
Technological interoperability (such as telecommunications
interoperability) should allow for the sharing of information among
responders, as well as with other jurisdictions. Technological
interoperability should encompass all resources likely to be utilized
in incident management (e.g. radios, computers, satellite,
telephones).
Functional interoperability may be achieved through the
application and use of standardized terminologies, structures, and
procedures amongst responders. IMS is designed to specifically
allow for functional interoperability through the adoption and
application of standardization.
InterOrganizational
Collaboration
Where an incident involves multiple organizations and/or multiple
jurisdictions, inter-organizational collaboration and coordination are
critical to ensuring an effective response. It is important to define
the roles, relationships and the accountability framework in
which organizations collaborate. Collaboration also requires
interoperability.
Management by Leadership and “management by objectives” are reflected at all
Objectives
levels of organization and activity. In IMS, one first determines
Incident Management System OSF – December 2012
10
the objectives and then directs all efforts to achieving them.
Results are documented for analysis and evaluation, and where
necessary, corrective actions are taken. The process involves the
following:

Determining the overarching objectives

Establishing specific and measurable objectives for various
functional activities

Developing and issuing plans, procedures, and protocols

Assigning tasks

Establishing an evaluation
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 without
losing their distinct functions. This makes it scalable to match
the size and complexity of any incident.
Simplicity and
Flexibility
The simplicity and flexibility of the IMS structure make it suitable to
expand and contract. This flexibility means that only the required
components need be activated to provide the functions
needed as situation unfolds. This keeps the IMS structure as
uncomplicated and minimalist as possible.
Standardization
IMS provides a standardized structure and functions for managing
incidents, which allow stakeholders to work together using a
common approach and understanding. Standardization
enhances all other concepts and principles.
Standard
Terminology
IMS employs a standard terminology for organizational
elements (i.e. Sections and Units), functions, facilities, operational
locales and resources. This enhances interoperability.
Sustainability
Incident management requires the ability to sustain response
activities until either a predetermined end-point, or the end of
the incident. The level of sustainability will depend on the
capacity of each organization or jurisdiction to furnish the
appropriate amounts and types of resources required for the
incident. This may involve maintaining 24/7 staffing and
conducting 24/7 operations. Measures to ensure sustainability
include deliberately maintaining excess capacity or designating
alternates who possess the same level of authority and
qualifications as those whom they will replace or relieve.
Span of Control
An underlying principle of IMS is the need to optimize the number
Incident Management System OSF – December 2012
11
of subordinates reporting to a supervisor in the interest of greater
efficiency. This is known as maintaining the “span of control”. A
normal ratio is three to seven individuals reporting to one person.
An optimum span of control consists of five individuals reporting to
one. If the number of subordinates falls outside of this range,
expansion or contraction of the organization may be necessary. In
routine, repetitive environments with lower-risk assignments, or
where resources work in very close proximity to each other, it may
be acceptable to exceed the standard recommended span of
control. Conversely, in complex incidents where safety is a major
factor or where there is a large distance between resources, it may
be advisable to lower the span of control limit.
Unity of
Command
2.4
IMS operates on a defined and specific command and control
structure that provides an orderly line of command and
accountability, and which is based on the function to be
performed and the expertise of the incident management staff,
rather than rank, organization or jurisdiction. To ensure unity
of command, each individual should have one clearly designated
supervisor, who may or may not come from the same jurisdiction or
service. Command of an incident may be exercised through a
single command process when one response organization has
jurisdictional or functional responsibility for the incident, or under a
unified command process, where multiple response organizations
or jurisdictions have jurisdictional or functional responsibility for the
incident. Whether the IMS is operating under a single or unified
command structure, unity of command must be maintained.
Organization
The organization of the IMS is built around five major management functions:
Command, Operations, Planning, Logistics, and Finance & Administration.
These 5 functions are the foundation upon which the IMS organization develops.
Each of the primary IMS sections; Command, Planning, Operations, Logistics,
Finance & Administration, may be sub-divided as needed. The IMS organization
has the capability to expand or contract to meet the needs of the incident. A
basic IMS operating guideline is that the person at the top of the organization is
responsible until the authority is delegated to another person.
The use of IMS can be adapted to any organization or level of government. It is
of utmost importance to first identify the scope prior to setting up the IMS. For
example, an IMS set up at the site will be much different than that set up in the
EOC or DOC. At the site, the IMS runs and provides a coordinated response to
all site operations. At the EOC, the scope of the IMS is much broader and will
Incident Management System OSF – December 2012
12
coordinate the overall municipal response and deal with on-going City
operations. At a DOC, the IMS will coordinate and support the tactical response
of City Divisional resources operating at the emergency site.
A Divisional Operations Centre (DOC) is a facility from which City Divisions and
other agencies, with predetermined roles and responsibilities, coordinate the
delivery of an Operational Support Function (OSF), a Risk Specific Plan, or other
essential services, during an emergency.
A DOC is distinct and separate from both the City's Emergency Operations
Centre (EOC) and an emergency site Incident Command Post (ICP) but plays a
pivotal role in supporting the operations of both facilities.
A DOC supports a City Division's Branch Coordinator in the EOC, who is
generally in the Operations Section, by providing DOC operational updates and
status reports and updates, as required, and by executing EOC Action Plans, as
applicable.
Function
or
Group
Purpose/Responsibilities
Command
Command is the first and primary organizational component of the IMS
structure. The command element consists of the person or team with
responsibility for managing the responses to an incident. The
Commander’s responsibilities include:

Ensuring the safety of all responders:

Assessing and reassessing the situation (this may require obtaining
information from other levels of response)

Determining goals, strategies, objectives and priorities appropriate to
the level of response

Establishing an appropriate command structure using IMS

Coordinating all incident management activities

Coordinating overall incident activities with other levels of response

Establishing and maintaining liaison with supporting, or assisting
organizations

Providing information to/briefing senior and elected officials as
required
Incident Management System OSF – December 2012
13

Establishing or activating IMS facilities, as needed

Establishing an operational planning cycle (as required)

Approving an Incident Action Plan (IAP)

Managing incident resources (including approval of volunteers, etc)

Managing sensitive issues arising from the incident

Authorizing the release of emergency information to the public in
cooperation with other levels of response

Ordering incident demobilization as appropriate
Operations
The Operations Section implements the IAP. An Operations Chief heads
it. The responsibilities of the Operations Section Chief include:

Developing and managing the Operations Section to accomplish the
incident objectives set by Command

Organizing, assigning, and supervising all resources assigned to an
incident, including air operations and resources in a Staging Area

Working closely with other members of the Command and General
Staff to coordinate operational activities
Planning
The Planning Section develops the IAP. A Planning Section Chief heads
it. The major activities of the Planning Section may include:

Collecting, collating, evaluating, analyzing, and disseminating
incident information

Managing the planning process including preparing and documenting
the Incident Action Plan for each operational period

Conducting long-range and/or contingency planning

Developing plans for demobilization in preparation for when the
incident winds down

Maintaining incident documentation

Tracking resources assigned to the incident
Incident Management System OSF – December 2012
14

Managing the activities of Technical Specialists assigned to the
Planning Section

Working closely with Command and members of the General Staff to
be sure that information is shared effectively and results in an
efficient planning process to meet the needs of the incident
Logistics
The Logistics Section provides all supporting resources, to the incident.
A Logistics Section Chief heads it. The major activities of the Logistics
Section include:

Obtaining, maintaining, and accounting for essential personnel,
equipment, and supplies beyond those immediately accessible to
Operations

Developing the telecommunications plan

Providing incident telecommunication/IT services and resources

Setting up food services

Setting up and maintaining incident facilities

Providing support transportation

Providing medical services to incident personnel
Incident Management System OSF – December 2012
15
Finance & Administration
The Finance & Administration Section provides the financial and cost
analysis support to an incident. A Finance & Administration Section
Chief heads it. The major activities of the Finance & Administration
Section include:

Monitoring sources of funding

Tracking and reporting on the financial usage rate

Tracking timesheets for incident personnel and equipment

Making reimbursements (individual and organization/department)

Contract negotiation and monitoring

Timekeeping

Preparing costs analysis, including the identification of incremental
and extraordinary costs associated directly with the incident

Making cost estimates for alternative response strategies

Compensation for injury or damage to property

Procuring equipment

Tracking Mutual Assistance arrangements and monitoring costs

Tracking disaster relief assistance including local funding raising, if
relevant

Reconciliation in conjunction with the planning and logistics sections
While the full expansion of the IMS structure may appear complex, this would occur only
during complex incidents, and would serve to maintain the optimum span of control by
injecting appropriate supervisory levels.
Incident Management System OSF – December 2012
16
Example of IMS applied in the City's Emergency Operations Centre
Figure 3
Incident Management System OSF – December 2012
17
2.5 Incident Action Plan / EOC Action Plan
Every incident site should have an Incident Action Plan (IAP). The purpose of
this IAP is to provide all personnel with direction for actions for the upcoming
operational period. immediate future actions. Action plans include measurable
objectives to be achieved (selection of resources, resource assignments and
performance monitoring).
2.6 IMS – Site / EOC Relationships
EOC Responsibilities:
 Effective policy and strategic direction to the emergency
 Support of emergency operations at the Site(s)
 Providing resource management to support site operations
 Coordinating management links to other Command / Operations Centres,
Divisions, Agencies, Boards and Commissions
 Providing information to the public and news media
 Maintaining business continuity for the rest of the City
Figure 4 illustrates the relationship between the Site and the EOC
Incident Management System OSF – December 2012
18
Figure 4: Example of the Emergency Operations Centre /
Divisional Operations Centre / Site Interface
Incident Management System OSF – December 2012
19
2.7
Conclusion
An effective IMS is intended to provide a standard approach to the management
of emergency incidents. As we have seen, 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 will facilitate the cooperation of all of these agencies. The IMS
organization may change over time to reflect the various phases of the incident.
The organization should develop to meet the functions required.
The
characteristics of the incident, and the management needs of the Incident
Commander, will determine what organizational elements should be established.
3.0
Roles and Responsibilities
3.1
Primary / Lead Agency / Division
3.1.1 Office of Emergency Management
The role of the OEM is to strengthen the City's ability to prepare, respond
& 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 Operational Support Function
 Ensures that this OSF complies with the City's Emergency Plan, and all
other Operational Support Functions (OSF), Risk Specific Plans and
other relevant City of Toronto, Provincial and Federal emergency
management legislation
 Ensuring Emergency Operations Centre Readiness
 Supporting implementation of the City Incident Management System at
both site and Emergency Operations Centre levels
 Conducting Training
 Developing a multi-year comprehensive exercise program
 Conducting a Hazard Identification and Risk Assessment
 Delivering Public Education and Outreach
Incident Management System OSF – December 2012