Lesson 13: Avalanche Incident-Site Organisation

This lesson focuses on incident-site organization using the Incident Command System (ICS). The ICS is an internationally recognized best practice for emergency management and is the recommended method for managing AvSAR operations. It consists of procedures for controlling personnel, facilities, equipment, and communication, and is designed to be applied from the time an incident occurs until the requirement for management and operations no longer exist.

Advantages of the ICS

Eleven principles create a framework for ICS that allows execution to occur consistently:

  1. Five primary management functions.
  2. Establishment and transfer of command.
  3. Unity of command; single or unified command structure.
  4. Management by objectives.
  5. Consolidates incident action plans.
  6. Comprehensive resource management.
  7. Manageable span of control.
  8. Modular organization.
  9. Personnel accountability.
  10. Common terminology.
  11. Integrated communications.

The key to mastering ICS is to understand these 11 principles and how to consistently apply them to emergency response.

Organizational Structure

The ICS organizational structure develops in a modular fashion based on:

  • The size and complexity of the incident.
  • The hazard environment at the incident site.
  • The management needs of the incident.

The ICS organization builds up from the ground up, meaning another layer of management is created only when needed. Initial responsibility is placed with an Incident Commander. If the need exists, the Incident Commander may expand the structure to include Sections, Units, Groups, or Divisions. Consider that in an ICS organization:

  • Only necessary functions / positions are filled.
  • Each activated element in the structure must have a person in charge.

An effective span of control must be maintained at all times. This means that each leader should be in charge of no more than seven individuals at a time, with five being the ideal number. If the number of reporting elements falls outside of three to seven, expanding or consolidating the structure may be necessary.

Incident Management

There are five primary management functions within the ICS. Not all functions need to be utilised or staffed, however they exist for every type of response.

Management functions within the ICS framework.

In a small-scale response the Incident Commander performs each of these functions, including directing the response. In a large-scale event, each function can be expanded and resources assigned to a corresponding role. In this way, top-heavy management structures are not established; instead, a “light” management structure ensures clear communication and effective leadership.

There are five levels of incident-response:

Incident Commander

The Incident Commander is responsible for all aspects of avalanche incident response, including activation, extension, and termination of the AvSAR effort. They develop operation periods (duration of a work shift), objectives for that period, an Incident Action Plan (a road map of everyone’s roles and responsibilities), and then they manage that plan. They set priorities, and define the ICS organizational structure. This position is always designated even if other positions are not.

The Incident Commander must:

  • Assess the situation and/or obtain a briefing from the previous Incident Commander.
  • Brief responders/staff of the incident status.
  • Establish immediate priorities, especially the safety of responders, other emergency workers, bystanders, and people involved in the incident.
  • Establish an appropriate level of ICS response.
  • Approve the use of trainees, volunteers, and auxiliary personnel.
  • Determine incident objectives and strategies to achieve those objectives. Develop and Incident Action Plan from this process.
  • Authorize release of information to the media.
  • Ensure meetings for planned purposes are scheduled as required.
  • Establish and monitor incident organization.
  • Approve implementation of the written or oral Incident Action Plan.
  • Coordinate activity for all Command Staff and General Staff.
  • Approve requests for additional resources or for the release of resources.
  • Keep relevant agencies and organizations informed of the incident status.
  • Ensure the incident status summary is complete and forwarded to the appropriate higher authority.
  • Order demobilization of the incident when appropriate.

Transfer of Command

Transfer of command is the process of moving the responsibility for incident command from one Incident Commander to another.

Transfer of command may take place when:

  • A jurisdiction or agency is legally required to take command.
  • Change of command is necessary for effectiveness or efficiency.
  • The incident complexity changes.
  • There is a need to relieve personnel from incidents of extended duration.
  • Personal emergencies occur (E.g. Incident Commander has an urgent family matter).
  • The agency administrator directs a change in command.

The arrive of a more qualified person on scene does not necessarily mean a change in incident command. The more qualified individual may:

  • Assume command according to agency guidelines.
  • Maintain command as is and monitor command activity for effectiveness.
  • Request an even more qualified Incident Commander from the agency with a higher level of jurisdictional responsibility.

Operational Section

The Incident Commander determines whether there is need for a separate Operations Section at an incident. Until such a section is established, the Incident Commander has direct control over tactical resources and activity. If an Operations Section is needed, the Operations Section Chief carries out the response activities described in the Incident Action Plan.

Operations Section Chief. The OSC is responsible for managing all operations directly related to the incident, and reports to the Incident Commander. The OSC is part of the General Staff and develops and manages the Incident Action Plan in conjunction with the Command Staff. The OSC also direct the preparation of various team operational plans, requests or issues resources, and makes required changes to the action plan.

OSC responsibilities include:

  • Site Safety:
    • Hazard management
    • Rescuer/subject head count
  • Site Organization:
    • Allocating tasks
    • Establishing site layout
  • Avalanche Search:
    • Visual sweep search
    • Transceiver search (ground/helicopter)
    • Remove triage
    • Dog search
    • RECCO search (ground/helicopter)
    • Probe search
  • Avalanche Rescue:
    • Excavation
    • Tactical triage
    • First aid
    • Evacuation

The Operations Section builds from the ground up. As more resources converge at the incident site, supervision must expand to maintain an adequate span of control.

The Operations section may include the following resources (starting from the initial response):

Initial Response:

  1. Single Resources: Single Resources refers to individual personnel and their required equipment, or to a specialized piece of equipment and its operators. Examples include a dog team, prober, transceiver searcher, or shoveller.

    Example of an ICS response Type 5 with the Incident Commander on scene directing a small group of single resources.

  2. Strike Team or Task Force: A Strike Team consists of similar-type responders who perform a specific job. A Task Force is a multi-discipline team that is assigned a particular task. All teams have an appointed Team Leader who responds to the next level of command. It is important not to exceed the span of control In AvSAR, teams must be properly equipped to manage hazards, and be prepared to survive without external support for at least 24 hours.

Examples of Strike Teams and Task Forces include:

  • Explosives Strike Team: Mitigates residual avalanche hazard utilizing explosives control.
  • AvSAR Task Force: A multi-discipline team capable of reaching and searching the incident site quickly and safely, and performing all AvSAR duties.
  • Search Strike Team: A team of similar Single Resources capable of searching an incident site quickly and safely.
  • Transceiver Search Strike Team: Finds the subjects starting with a signal search, then a coarse search and fine search. Would also be tasked with organizing a helicopter transceiver search.
  • Probe Strike Team: Spot-probes likely burial areas while transceiver searches occurs; then pinpoint searches to find the buried subjects whenever a transceiver search is complete. Also works in a probe line.
  • RECCO Strike Team: Utilizes RECCO detectors to search for buried subjects.
  • Shovel Strike Team: Utilized during large probe operations and rescue efforts where sufficient resources allow.
  • Rescue Task Force: A multi-discipline team capable of medical work and extrication.
  • Medical Strike Team: Provides Basic Life Support for subjects on site.
  • Transportation Strike Team. Manages subjects’ transportation needs (including packaging subjects for transport).
  • Technical Rescue Strike Team: Utilized when a technical rescue is required. This includes helicopter sling, high-angle, water/ice, or crevasse rescue.

As the incident expands and resources increase:

  1. Divisions: Divisions are established to divide the ICS structure based on geographical areas related to incident operations. A Supervisor is assigned to each Division.
  2. Groups: Groups are established to divide the incident into functional areas of operation. A Supervisor heads each Group.
  3. Branches: Branches are created to provide the correct span of control over Groups and Divisions. Each Branch is led by a Director. The Branch Director may have a Deputy as an assistant

Additional Operation roles:

  1. Staging Manager: In the Operations Section, Staging Areas are treated as a separate entity from the rest of the structure; the Staging Manager reports directly to the Operations Section Chief or the Incident Commander if no Section Chief has been appointed. Any resources in the Staging Area must be ready for operations within a set time. It is at the discretion of the Incident Commander or Operations Section Chief whether a Staging Area is needed.
  2. Dispatch: In most rescue operations, dispatch is the epicentre of communications. A dispatcher often receives the initial avalanche report. The dispatcher initiates the rescue call-out, following a set of instructions and checklists that are part of the AvSAR plan. In addition to managing rescue communications, dispatch is required to pass on relevant information to the Information Officer and attend planning meetings as required. It is critical that the dispatcher records all incident information in a Communications Log.

The Communications Log can be digital or hand-written. It further establishes a chronology of the rescue, assists with debriefing, helps the rescue team improve for future operations, and reduces liability through having a written timeline to refer to after the operations. The Communications Log also helps track resources by documenting a check-in schedule.

In large organizations, radio and phone communications may be handed off to a Communications Unit if a Command Post is formed. The Communications Unit reports to the Logistics Section Chief, and works closely with Operations to ensure clear and effective communications.

An expanded ICS response (Type 3) including groups, strike teams, and single resources.

Activating Additional Resources

Once the Incident Commander has assessed the initial incident details and ensured that the correct number and type of personnel have been requested, the Incident Commander or Operations Section Chief works with dispatch to complete the ICS Resource Request Form. Dispatch will then work to fill the resource request as quickly as possible. If the incident is large and complex, it is recommended that a Logistics Section Chief be added to the ICS structure. This person is responsible for filling resource requests.

Once resource needs are determined and reported, the appropriate resources are contacted in a priority sequence, using a pre-determined call list within the AvSAR plan. Available equipment resources and locations are also listed in the plan.

Incident-Site Demobilization

When all subjects are accounted for and are in transit, organized demobilization should be implemented. Built into the AvSAR plan, the Demobilization Plan provides specific instructions for all personnel and resources to demobilized. It occurs gradually as resources return to the Staging Areas or Incident Command Post. Follow the demobilization plan to “check off” all personnel, equipment, and aircraft.

The Planning Section Chief is responsible for:

  • Organizing the demobilization plan.
  • Gathering demobilization input from the Command Staff and General Staff.
  • Developing and preparing a written demobilization plan.
  • Obtaining approval for the demobilization plan from the Incident Commander.

The Logistics Section is responsible for implementing the demobilization plan. This required coordination between on-site and the Incident Command Post Personnel.

Each Section Chief should identify:

  • Surplus resources.
  • Resources that need to remain either at the incident site or as support in other areas of the operation.