development of pre-incident action plans for highway incidents · running head: development of...

Running head: DEVELOPMENT OF PRE-INCIDENT ACTION PLANS 1

Development of Pre-incident Action Plans for Highway Incidents

Shad Cooper

Wyoming State Fire Marshal’s Office

Green River, WY

DEVELOPMENT OF PRE-INCIDENT ACTION PLANS 2

CERTIFICATION STATEMENT

I hereby certify that this paper constitutes my own product, that where the language of others is

set forth, quotation marks so indicate, and that appropriate credit is given where I have used the

language, ideas, expressions, or writings of another.

Signed: Name


Abstract

The problem was the Sweetwater County Fire District #1 had not developed a pre-incident action

plan (pre-IAP) for escalating emergency responses during highway incidents. The purpose of the

applied research was to develop a pre-IAP for highway incidents. Action research was selected

as the most appropriate research method. In an effort to develop a pre-IAP, three research

questions were developed and answered. The first question asked what laws and standards exist

regarding incident action plans (IAPs) for highway incidents. The second question asked what

model procedures exist to assist when developing IAPs for highway incidents. The third

question asked what the benchmarks are for expanding and contracting IAPs during highway

incidents. To answer these questions, an extensive literature review was completed, interviews

were conducted, a questionnaire was distributed, and a focus group analyzed the issues. The

results from the research indicated that numerous federal laws and standards exist and relatively

few state and local laws exist. Additionally, there are several standards and model procedure

guides available to provide assistance when developing IAPs. The research also found that most

fire departments do not develop a pre-IAP for highway incident responses. This is most likely

because most fire departments instead develop the IAP during initial incident operations rather

than before the incident. The recommendations from the research indicate an IAP should follow

the National Incident Management System guidance and conform with available standards and

model procedure guides. The final IAP should also include an incident complexity analysis to

assist the initial incident commander (IC) when establishing command and requesting additional

resources. Using a pre-IAP can help the initial IC to quickly size-up a highway incident, develop

an incident specific IAP, brief incident personnel, implement the action plan, and evaluate the

effectiveness of the plan.


TABLE OF CONTENTS

Page

Certification Statement ....................................................................................................................2

Abstract ............................................................................................................................................3

Table of Contents .............................................................................................................................4

Introduction ......................................................................................................................................5

Background and Significance ..........................................................................................................6

Literature Review.............................................................................................................................8

Procedures ......................................................................................................................................22

Results ............................................................................................................................................26

Discussion ......................................................................................................................................32

Recommendations ..........................................................................................................................35

References ......................................................................................................................................37

Appendices

Appendix A ..............................................................................................................................40

Appendix B ..............................................................................................................................41

Appendix C ..............................................................................................................................42

Appendix D ..............................................................................................................................44

Appendix E ..............................................................................................................................45

Appendix F...............................................................................................................................48

List of Figures

Figure 1: Pre-incident Plans .....................................................................................................29

Figure 2: Incident Action Plan .................................................................................................30

Figure 3: Incident Action Plan Development ..........................................................................30

Figure 4: Incident Action Plan Template .................................................................................31


Development of Pre-Incident Action Plans for Highway Incidents

Planning for potential emergency responses for highway incidents is a paramount

responsibility for all public safety agencies. The development of pre-incident action plans to

address the challenges presented during highway incidents can help ensure both responder and

public safety. Responders who use pre-incident action plans can work quickly to resolve

incidents and achieve favorable outcomes as part of a coordinated response.

First arriving responders can quickly become overwhelmed by the demands of the

incident and may be unable to develop an incident action plan in a timely manner. The use of a

pre-incident action plan template with predetermined objectives, optional strategies, potential

tactics, and defined trigger points to escalate response during complex incidents would be

extremely beneficial to initial incident commanders during highway incidents. The availability

of pre-incident plans would allow initial incident commanders to quickly size-up the incident,

determine the nature and scope of the problem, select an appropriate incident action plan

template, adapt the template to develop the formal incident action plan, brief the incident

response personnel on the incident action plan, implement the action plan, and evaluate the

effectiveness of the plan.

The problem is that Sweetwater County Fire District #1 (District #1) has not developed a

pre-incident action plan for escalating emergency responses on highway incidents. The purpose

of this applied research project is to develop a pre-incident action plan for escalating emergency

responses on highway incidents. To address the problem, action research has been selected as

the most appropriate research method. The following research questions have been developed to

explore the problem and develop appropriate recommendations.

1. What laws and standards exist regarding incident action plan use during highway incidents?


2. What model procedures exist to assist when developing incident actions plans during

highway incidents?

3. What are the benchmarks for expanding and contracting an incident action plan during

highway incidents?

Background and Significance

Sweetwater County Fire District #1 is jurisdictionally responsible to provide fire, rescue,

and all-hazards response services for over 2000 square miles in Sweetwater County. District #1

provides primary coverage for fifty-four miles of Interstate 80 (I-80) and responds with mutual

aid agreements for an additional ninety-three miles to the west and east county borders. District

#1 also provides primary coverage for U.S. Highway 191 and Wyoming Highway 430 within the

district boundaries and mutual aid coverage to the north and south county borders along these

highways.

I-80 is Wyoming’s principle arterial transportation corridor. According to a study

conducted in 2008, the I-80 annual daily traffic levels in the Rock Springs area of Sweetwater

County averaged approximately 16,243 vehicles per day; over half of which was from heavy

truck traffic (Brinckerhoff, 2008). District #1 frequently responds to a large volume of traffic

related incidents along I-80. In 2013, approximately 35% of the total call volume for District #1

required response to I-80 (B. Taylor, personal communication, April 30, 2013). Many of these

responses required assistance and coordination from multiple public safety response agencies.

Formal written incident action plans were not developed for use during these highway incidents.

In 2004, a large-scale highway incident along I-80 near Laramie, Wyoming involved

thirty-six vehicles and seven fatalities (Pond, 2005). Limited visibility due to dense fog

conditions caused the multi-vehicle collision and subsequent fire. Mutual aid from multiple


different surrounding emergency response agencies responded to the incident. Additional heavy

equipment, front-end loaders, sand trucks, and school buses were dispatched to help clear

wreckage, access victims, and provide transport to the nearest hospitals. The Cheyenne

Salvation Army was dispatched to establish a rehabilitation unit for responders. A special

cadaver dog was dispatched to assist finding human remains. The Albany County Emergency

Operations Center (EOC) was opened and personnel from the Wyoming Department of

Homeland Security and the Laramie County and Albany County Emergency Management

agencies staffed the EOC (Pond, 2005). The multi-agency coordination required for so many

emergency response agencies and service providers severely taxed the incident command system

used for this incident. Lieutenant Colonel Ratliff of the Wyoming Highway Patrol said, “The

early creation and use of an incident action plan for this incident could have improved

coordination and the safety of all personnel” (S. Ratliff, personal communication, November 13,

2013). If a similar large-scale incident occurred in Sweetwater County, District #1 would be

unprepared to develop and implement an incident action plan in a timely manner to facilitate a

safe and coordinated response.

As a requirement for the National Fire Academy’s Executive Fire Officer Program, each

applied research project must be related to the course objectives for each course. The Executive

Analysis of Fire Service Operations in Emergency Management course is intended to prepare

“senior staff officers in the administrative functions necessary to effectively manage the

operational component of a fire/rescue department” (U.S. Fire Administration - National Fire

Academy, n.d., p. 2). The development of pre-incident action plans for highway incidents is

related to this course objective because it will assist initial incident commanders of highway

incidents to bring incidents to a safe conclusion.


As a further requirement for the National Fire Academy’s Executive Fire Officer

Program, each applied research project must also be related to the at least one of the United

States Fire Administration’s (USFA) operational goals. To address this requirement, the topic of

the applied research paper was selected because it directly relates to the second USFA

operational goal to improve local planning and preparedness (U.S. Fire Administration, n.d.).

As a Fire Service Instructor for the Wyoming State Fire Marshal’s Office and as a Fire

Captain for the Sweetwater County Fire District #1, the topic of this applied research paper was

chosen because the research will be beneficial to both agencies. The final product will help

improve highway incident response for District #1. The Wyoming State Fire Marshal’s Office

will also benefit because the final product will help improve training related to traffic incident

management for other fire departments in the state. However, for simplicity and continuity, the

applied research paper will be written as it relates to District #1.

Emergency response to highway incidents can include a variety of different types of

emergencies including: motor vehicle collisions, natural disasters, hazardous material releases,

acts of terrorism, and many other examples. For purposes of this project, the scope of research

will be limited to the development pre-incident action plans for highway incidents involving

motor vehicle collisions. With further study, the information produced as a result of this

research could potentially be adapted and applied to other types of incident responses in the

future.

Literature Review

A literature review was completed to review information regarding the use of incident

action plans during highway incidents. Searches for literature through the National Fire

Academy Learning Resource Center, the Wyoming Library Database, the Federal Emergency


Management Agency (FEMA) web-based library, the Homeland Security Digital Library, and

the National Wildland Coordinating Group (NWCG) Publications Management System were

conducted. Results from these searches were narrowed and selected to be analyzed based upon

relevance to the subject and recency of content.

Several literature sources were analyzed while researching the first research question

regarding federal laws for incident action plan use during highway incidents. Of note was the

Homeland Security Presidential Directive [HSPD]-5 which requires state and local entities to

adopt the National Incident Management System (NIMS) as a condition for federal preparedness

assistance (Homeland Security, 2003). On March 1, 2004, The Department of Homeland

Security issued the NIMS, providing a consistent nationwide format for incident management.

NIMS requires agencies to use the Incident Command System (ICS) to manage both simple

incidents within a single jurisdiction, and complex multi-jurisdictional and multi-disciplinary

incidents (Homeland Security, 2008).

NIMS purports that centralized and coordinated incident action planning should guide all

response activities. The use of an Incident Action Plan (IAP) “provides a concise and coherent

means of capturing and communicating the overall incident priorities, objectives, strategies, and

tactics” (Homeland Security, 2008, p. 47). NIMS guidance requires that every incident must

have an incident action plan. However, not all incidents require formal written plans. In practice,

most initial responses are not captured with a written IAP. During incidents that extend beyond

one operational period and during complex incidents that involve multiple jurisdictions, a written

IAP is necessary to maintain effective, efficient, and safe operations (Homeland Security, 2008).

NIMS recommends that a planning process template be used when creating strategic,

operational, and tactical planning documents. The planning process template can provide


valuable guidance to an incident commander when developing and disseminating the IAP

(Homeland Security, 2008).

Additional federal laws also include the Manual of Uniform Traffic Control Devices for

Streets and Highways (MUTCD). The MUTCD is published by the Federal Highway

Administration (FHWA) under 23 Code of Federal Regulations, Part 655, Subpart F. The

MUTCD provides uniform standards to install and maintain traffic control devices installed on

streets, highways, and/or private roads open to public travel (U.S. Department of Transportation

- Federal Highway Administration [FHWA], 2012).

The MUTCD requires highway agencies and appropriate public safety agencies such as

law enforcement, fire, emergency medical services, emergency management, and

towing/recovery agencies to mutually plan for potential traffic incidents along major highways in

an effort to reduce response and handling time during traffic incidents (FHWA, 2012). This

coordination and planning before the incident can greatly assist responders during the incident.

The MUTCD offers instruction to emergency responders when categorizing traffic

incidents. The MUTCD recommends incidents to be categorized into three general classes based

upon duration: major, intermediate, and minor. Major traffic incidents have an expected duration

of more than 2 hours. These incidents typically involve hazardous materials, fatal traffic crashes

involving numerous vehicles, and other natural or man-made disasters. During major traffic

incidents, it will often be necessary to close all or part of the roadway for safe incident operations

(FHWA, 2012). Intermediate traffic incidents can be expected to affect travel for 30 minutes to

2 hours. These incidents usually require traffic control measures to divert road users past the

road blockage. Roadway closures may only be necessary for short periods of time during

intermediate traffic incidents (FHWA, 2012). Minor traffic incidents should affect travel for less


than 30 minutes. These incidents typically involve disabled vehicles or minor crashes that result

in lane closures. Law enforcement personnel may be dispatched to document the incident and

towing companies may be necessary to remove the vehicles and restore traffic (FHWA, 2012).

The MUTCD also provides guidance to responders when working along roadways to

control the flow of traffic through the incident. The MUTCD requires responders to use and

establish Temporary Traffic Controls (TTC) for Traffic Incident Management Areas (TIMA) on

highway incidents. The MUTCD defines a TIMA as an area where “temporary traffic controls

are installed in response to a road user incident, natural disaster, hazardous material spill, or

other unplanned incident” (FHWA, 2012, p. 726). The TTC zone extends from the first warning

device to the point where vehicles return to the original lane alignment and are clear of the

incident. Most TTC zones are divided into four areas: the advance warning area, the transition

area, the activity area, and the termination area (FHWA, 2012).

The MUTCD also mandates that all emergency responders who are exposed to traffic

within the right-of-way wear high visibility apparel meeting the ANSI 107-2004 Class 2 or 3

standards. The only noted exception is when firefighters are engaged in emergency operations

that directly expose them to flame, fire, heat, and/or hazardous materials; they may wear retro-

reflective turnout gear (FHWA, 2012).

Additional federal laws related to incident action plans include the Occupational Safety

and Health Administration (OSHA) Title 29 of the Code of Federal Regulations (CFR) Part

1910, which addresses workers’ safety during emergency response operations for hazardous

materials releases (OSHA 29 CFR, 1976). Section 1910.120(q)(3) addresses the specific

procedures for handling emergency response. This section mandates the establishment of the

Incident Command System (ICS), the Incident Commander, and the Safety Officer (OSHA 29


CFR, 1976). No further information regarding the use of incident action plans was found in the

Title 29 Part 1910 CFR.

The focus of the literature review for the first research question was narrowed in scope to

identify relevant state laws regarding incident action plans. Wyoming State Statute, 24-1-107

mandates that whenever a dangerous condition is affecting a public highway, members of the

Wyoming Highway Patrol, police department, or sheriff’s office may close any highway to

traffic when necessary to protect the public (Wyoming Highways, 1981). Additionally,

Wyoming State Statute 35-9-156 mandates that every political subdivision of the state must

designate a local emergency response authority responsible for responding to hazardous

materials or weapons of mass destruction incidents that occur within its jurisdiction. The local

emergency response authority is required to coordinate their response using standard ICS

protocols (Wyoming Public Health and Safety, 2003). No further Wyoming state statutes were

discovered that related to incident action plan use during highway incidents.

The literature review was again narrowed in scope to focus on local ordinances regarding

incident action plan use during highway incidents. On September 6, 2005 the Sweetwater

County Board of County Commissioners unanimously voted to support Homeland Security

Presidential Directive [HSPD]-5 by implementing the National Incident Management System

(NIMS) into disaster plans, policies and procedures. The Sweetwater County Local Emergency

Response Committee developed the Sweetwater County/Local Governmental Agencies Emergency

Operations Plan to provide coordinated emergency response for emergency and disaster operations.

The plan specifies that Sweetwater County and other local governmental agencies will “use the

ICS and NIMS as they assign responsibilities to local governmental agencies and individuals for

carrying out basic management functions and activities associated with mitigation, preparedness,


response, and recovery phases of major events including emergencies and disasters”

("Sweetwater County Local Governmental Agencies Emergency Operations Plan," 2005, p. 2).

The focus of the literature review for the first research question was again narrowed in

scope to identify relevant standards regarding incident action plans. The National Fire Protection

Association NFPA® 1500, Standard on Fire Department Occupational Safety and Health

Program was reviewed. This standard was developed in an effort to address the minimum

requirements for an occupational safety and health program for fire departments (National Fire

Protection Association [NFPA], 2013). Section 8.1.3 of this standard is relevant because it

mandates that the incident management system shall be used at all emergency incidents. Section

8.1.6 requires that when incidents escalate in size and complexity, the incident commander shall

divide the incident into tactical-level management components to manage incident resources

(NFPA, 2013).

The NFPA® 1561, Standard on Emergency Services Incident Management System, was

also reviewed. This standard was developed in an effort to “define and describe the essential

elements of an incident management system that meets the requirements of Chapter 8 of NFPA

1500, Standard on Fire Department Occupational Safety and Health Program; OSHA 29 CFR

1910.120(q)(3), and Homeland Security Presidential Directive [HSPD]-5, Management of

Domestic Incidents” (National Fire Protection Association [NFPA], 2008, p. 4). Section 5.3.15.1

of the standard requires that the incident commander shall be responsible for developing and/or

approving an incident action plan. Section 5.3.23 further requires that the incident commander

be responsible for reviewing, evaluating, and revising the IAP and overall strategy of the incident

(NFPA, 2008).


The NFPA® 1620, Standard for Pre-Incident Planning was also reviewed as part of the

literature review. However, the content of this standard was primarily focused on pre-planning

for structural firefighting and provided limited relevance for highway incidents. Each of the

laws, regulations, and standards analyzed as part of the first research question influenced the

research by providing information to ensure compliance with the final product from this

research.

The literature review for the second research question regarding model procedures for

incident actions plans used during highway incidents was begun by reviewing several additional

resources. In 2004, the National Fire Service Incident Management System Consortium Model

Procedures Committee produced the Model Procedures Guide for Highway Incidents. The guide

was developed in an attempt to “provide guidance for responder safety at the highway incident

while mitigating the incident and maintaining traffic flow” (National Fire Service Incident

Management System Consortium [NFSIMSC], 2004, p. iii). The Model Procedures Guide

recommends the development of an IAP should begin by identifying strategies that will solve the

confronted problems. This should be followed by identifying appropriate tactics that achieve the

strategy. Afterwards, the developed IAP must be implemented and then evaluated for

effectiveness. As part of the continuous size-up process, the IAP must also be regularly

modified to meet the needs of the incident (NFSIMSC, 2004). The Model Procedures Guide also

recommends two organizational structures to be used for highway incident response: initial

response and reinforced response. Initial response consists of one to five resources that are

dispatched to the reported incident. During initial response, the first arriving unit assumes

command and transfers command when necessary. A reinforced response occurs when the IC

determines the initial response is insufficient to mitigate the incident. As part of the reinforced


response, the IC requests additional or specialized resources from within the agency or through

mutual aid agreements (NFSIMSC, 2004).

In an effort to reflect the all-risk scope of the National Fire Service Incident Management

System Consortium, in 2006 the Consortium modified its name to become the National Incident

Management System Consortium. The newly updated NIMS Consortium addressed the

requirements of Homeland Security Presidential Directive [HSPD]-5 and updated previous

model procedures guides to produce two consolidated NIMS-ICS compliant, all-risk model

procedures guides.

1. The Incident Command System (ICS) Model Procedures Guide for Incidents

Involving Structural Fire Fighting, High-Rise, Multi-Casualty, Highway, and

Managing Large-Scale Incidents Using NIMS-ICS Book 1 (IMS Book 1)

2. Special Operations – Incidents Involving Hazardous Materials/WMD, Structural

Collapse, Wildland, and Managing Large-Scale Incidents Using NIMS-ICS Book 2

(IMS Book 2)

Both the IMS Book 1 and the IMS Book 2 model guides were reviewed while

researching the second research question. The IMS Book 1 model guide contains an entire

chapter devoted entirely to highway incidents that was directly related to the research question.

The IMS Book 1 model guide explains that when the first-arriving initial Incident

Commander (IC) arrives on scene of an incident, it is imperative that the IC organizes the

response by developing an incident action plan that accounts for responder safety, the needs of

the incident, and the management of traffic (National Incident Management System Consortium

[NIMSC - Book 1], 2007). The text further explains that it is a common mistake for an IC to

become immersed in the immediate problems of the incident and commit all available resources


to task completion, leaving no resources available for command. This is a major error that

creates a reactive situation where responders wait until well into incident operations before

implementing the ICS and developing an IAP (NIMSC - Book 1, 2007). To avoid this potential

pitfall, it is imperative that the IC quickly develop an IAP and delegate responsibilities to

command and general staff.

The IMS Book 1 model guide also recommendations categorizing incidents based upon

complexity. Beginning from simple and progressing to the most complex, the following

categories were provided:

1. The Highway Incident Without Response

2. The Highway Incident Prior to the Arrival of Response Units

3. The Single Unit Response to Highway Incidents

4. The Small Response to Highway Incidents

5. Expanded Incident

6. The Reinforced Response to Highway Incidents

7. Expanded Highway Incidents

The relevant information from each of these categories can be summarized to assist with

classification. The simplest and least complex incident response is the Highway Incident

Without Response. Such incidents involve minor damage and may cause minor traffic problems.

These incidents are resolved before emergency response units arrive on scene (NIMSC - Book 1,

2007).

As the incident becomes more complex the Highway Incident Prior to the Arrival of

Response Units involves incidents where a call for assistance has been made to 911. No

emergency resources have arrived on scene yet to establish command or control the incident.


However, based upon information coming from the incident, some level of command is

necessary to modify response assignments, routes, and establish staging areas while en route to

the incident (NIMSC - Book 1, 2007).

The next most complex type of highway incident is the Single-Unit Response. An

example of this type of incident may involve a law enforcement traffic stop or motorist

assistance provided by towing and recovery services. All incident management functions are

handled by the individual response unit. The ICS is still established and communications with

dispatchers must be maintained to address the possibility of ordering additional resources

(NIMSC - Book 1, 2007).

The next most complex highway incident response is the Small Response. Examples of

this type of response include motor vehicle collisions with damage, personal injuries, and/or

vehicles leaking fluids. Multiple response units and/or agencies are likely to respond to the

incident. The use of the ICS is required to successfully manage these resources. The IC will

assign tasks to specific units in an organized effort to control the incident (NIMSC - Book 1,

2007).

The next most complex response is the Expanded Incident. A Small Response incident

can be escalated into an Expanded Incident when additional response units are necessary to

address the problems presented. The ICS should be organized into functional assignments with

group supervisors, or into geographical assignments with division supervisors. Resources should

then be assigned to the appropriate supervisors, creating a manageable span of control (NIMSC -

Book 1, 2007).

As the incident becomes more complex, the Reinforced Response may be necessary. As

part of the Reinforced Response, Unified Command may need to be established allowing all


response agencies with statutory authority to jointly participate in the management of the

incident. Command staff positions will likely be filled to provide assistance in managing the

additional resources and external influences (NIMSC - Book 1, 2007).

The Reinforced Response could escalate into an extraordinary incident that requires the

mobilization of state and/or federal resources. This type of incident is categorized as an

Expanded Highway Incidents and requires a significant ICS organization. It may be

characterized by multiple operational periods and the formal establishment of the command and

general staff positions to adequately manage the large-scale response (NIMSC - Book 1, 2007).

The United States Fire Administration’s (USFA) Traffic Incident Management Systems

FA-330 report was also analyzed as part of the literature review for the second research question.

This report contains information related to government roadway safety initiatives, incident case

studies, highway safety equipment, traffic incident management areas, pre-incident planning,

incident command, and recommended best practices for effective highway incident operations

(U.S. Fire Administration, 2012). The information regarding pre-incident planning, the incident

command system, and recommended best practices was extremely beneficial to this research.

The Traffic Incident Management Systems report describes that the ICS is the most

effective and efficient management process for traffic incident management. When an IC

determines the initial response is insufficient to handle the incident, it is the IC’s responsibility to

expand the ICS organization and initiate a reinforced response. When the effective span of

control has been exceeded, divisions/groups and potentially branches will need to be established.

The report also emphasizes that when agencies develop pre-incident plans for highway incident

response, the resulting interagency cooperation and preparation will improve operations during

the incident (U.S. Fire Administration, 2012)


The Executive Fire Officer (EFO) applied research paper titled: Pre planning for

responses along Interstate 25 in Larkspur, Colorado, written by Jimmy C. Bumgarner Jr. was

reviewed as part of the literature review for the second research question. In the results from his

research, Mr. Bumgarner recommends that pre-plans for responses to interstate highway

incidents should include the following elements: incident command/unified command,

participating agencies, initial response and coordination, incident action plan, incident response

procedures, incident management and removal, traffic management/control plans, interagency

communications, and post-incident activities (Bumgarner, n.d.). Each of the sources analyzed as

part of the second research question were valuable because they related to establishing model

procedures when developing an IAP.

The literature review for the third research question regarding benchmarks for expanding

and contracting incident action plans during highway incidents provided several additional

resources for review. The student manual for the United State Fire Administration (USFA) /

Federal Emergency Management Agency (FEMA) ICS-200.A: ICS for Single Resources and

Initial Action Incidents explains that small incidents may involve only the Incident Commander

(IC) and a small amount of resources. However, as a small incident expands and grows in scope,

the number of resources needed also increases. As the complexity of the incident increases,

activation of divisions, groups, branches, and sections will be required to maintain an appropriate

span of control for the additional resources (Homeland Security, 2010).

The student manual for the USFA/FEMA ICS-300: Intermediate ICS for Expanding

Incidents course defines incident complexity as the “combination of involved factors that affect

the probability of control of an incident” (Homeland Security, 2012, p. 2.12). Several factors

may contribute to the complexity of an incident such as: size of the area involved, threat to life


and property, organizational command, jurisdictional boundaries, values at risk, and agency

policies. The text explains that while there are no hard-and-fast rules for ICS expansion and

contraction, it is important to remember that only the necessary ICS functions/positions should

be filled, each activated element must have a supervisor, and that an effective span of control

must be maintained (Homeland Security, 2012).

The U.S. Department of Transportation – Federal Highway Administration (FHWA)

Simplified Guide to the Incident Command System for Transportation Professionals was also

reviewed while studying the third research question. This guide is intended to introduce

transportation stakeholders to ICS concepts as well as provide transportation professionals with

information and tools to work together with partner agencies at emergency incidents (U.S.

Department of Transportation - Federal Highway Administration [FHWA], 2006). The guide

suggests that when developing an initial IAP, the ICS Form 201 can be used to create a map

sketch of the incident, a summary of current actions, a chart of the current ICS organization, and

a summary of resources ordered. The ICS Form 201 can be used by the IC to provide an oral

briefing to other responders or it can be printed and disseminated as appropriate. The ICS Form

201 should be used as a temporary IAP until either a formal IAP is prepared or until normal

operations are restored (FHWA, 2006).

The National Wildland Coordinating Group (NWCG) Wildland Fire Incident

Management Field Guide was reviewed while studying the third research question. The

Wildland Fire Incident Management Field Guide provides detailed information necessary to

expand the Incident Command System during wildland fire incidents that grow in complexity.

An incident complexity analysis worksheet is provided to allow users to analyze the complexity

of fire behavior, resources committed, threatened resources, safety factors, land ownership,


external influences, strategies, and management needs (National Wildland Coordinating Group,

2013). Based upon the identified factors from the worksheet, managers can decide to expand or

contract the incident as necessary. The Wildland Fire Incident Management Field Guide

provides example organizational charts and typical characteristics for each type of incident

management organization as well. Using these tools, wildland firefighters can anticipate

expected organizational needs for the incident and request resources and management personnel.

The Indiana Department of Homeland Security and Indiana State Fire Marshal’s Office

produced an Incident Command Standard Operating Procedures for Fire & Hazardous Materials

Emergency Operations guide that was reviewed for the third research question. This guide

categorizes incident types into five levels of complexity. Based upon the identified complexity

factors listed for each level, emergency responders can expand the incident and request

additional incident management personnel. This information is a valuable asset to the initial

incident commander when deciding when and how to expand an emergency highway incident

(Indiana Department of Homeland Security/State Fire Marshal Emergency Response Division,

2006).

In 2001, Rhea Cooper wrote an EFO applied research paper titled: Expanding the

Incident Command System in the Lubbock Fire Department (Cooper, 2001). As part of the

results from her project, Ms. Cooper found that when major disasters strike, several critical

components are necessary to expand the ICS including: explicitly defined responsibilities for

response personnel, ICS position checklists, pre-fire plans, and incident action plans used during

emergency incidents. Ms. Cooper emphasized the importance of having explicitly defined

responsibilities for responders and explains the management of incidents improved significantly

when responders all knew who was responding and what they were expected to do (Cooper,


2001). Each of the sources reviewed as part of the third research question were valuable to the

research because they each provided insight regarding the expansion or contraction of an IAP.

Procedures

Three separate research questions were created with the intent of developing a pre-

incident action plan for escalating emergency responses during highway incidents. The

procedures used were developed to address each research question in detail. The following

description details the procedures employed as part of the applied research project.

The first research question asks what laws and standards exist that relate to incident

action plan use during highway incidents. To address this question, an extensive literature

review was conducted. The results from the literature review are extremely important because

the final pre-incident action plan that will be developed must meet the requirements of existing

state and federal laws and standards.

Additional research for the first research question was completed in the form of a

personal interview with the Sweetwater County Emergency Manager, Dave Johnson. Mr.

Johnson was selected to be interviewed because his responsibilities as the County Emergency

Manager provide him with specific knowledge of state and federal laws that relate to incident

response. A telephone interview was conducted with Mr. Johnson on November 20, 2013 at

2:00 PM (see Appendix A). The following questions were asked during the telephone interview.

1. Are there any federal laws that affect the county local emergency response plan?

2. Are there any state laws that affect the county local emergency response plan?

3. Are there any local ordinances that affect the county local emergency response plan?

4. Are you aware of any standards that exist relating to incident action plan use during

highway incidents?


The procedures used to answer the first research question contained limitations that may

have had an effect on the results. Specifically, the interviewee selected for the personal

interview may have had personal experiences and biases that yielded unique answers. To

minimize this limitation for future research, it is recommended that additional people should be

interviewed to provide a broader range of responses.

The second research question asks if there are model procedures available to assist when

developing incident actions plans during highway incidents. To address this research question,

an extensive literature review was again conducted. The literature review was important because

the final pre-incident action plan that is developed should follow nationally accepted best

practices and procedures.

Further research related to the second research question was conducted during an

interview with Lieutenant Colonel Ratliff from the Wyoming Highway Patrol. Lieutenant

Colonel Ratliff was selected to be interviewed because of his primary job responsibilities as the

supervisor of the Wyoming Highway Patrol and also because of his personal knowledge and

experience with large-scale highway incidents in Wyoming. A telephone interview was

conducted with Mr. Ratliff on November 13, 2013 at 11:00 AM (see Appendix B). The

following questions were asked during the interview.

1. Can you describe your role during the 36 vehicle large-scale freeway incident that

occurred between Laramie and Cheyenne in 2004?

2. How was the incident command structure organized during this incident?

3. How did the response agencies from multiple jurisdictions and multiple disciplines

coordinate their efforts?


4. Would the early creation and use of an incident action plan during this incident have

improved the coordination of response personnel?

5. Are you aware of model procedures available to assist when developing incident

actions plans during highway incidents?

6. Are there any state laws that affect incident command during highway incidents?

Additional research related to the second research question was also completed with a

focus group discussion. Representatives from Sweetwater County Fire District #1, Wyoming

Highway Patrol, Sweetwater County Sheriff's Office, Sweetwater Medics, and the Sweetwater

County Emergency Management were asked to participate in a focus group and discuss the

potential problems with coordinated response during highway incidents. The focus group

meeting occurred on December 2, 2013 at 1:00 PM (see Appendix C). The focus group was

asked about model procedures used to develop highway incident actions plans, communications

issues, and incident management priorities in an effort to develop collaborative pre-incident

action plans for use during highway incidents. The focus group was also asked to review a rough

draft of the tentative pre-incident action plan and provide input for improvement.

The second research question procedures had limitations that may have had an effect on

the results. Again, only one interview with a recognized expert was conducted. To provide a

more diverse and broad perspective, it is recommended that future research efforts should

include multiple interviews. Additionally, the procedures for the focus group also had

limitations. The panel of focus group members were selected to ensure the results of the

research was accurate, relevant, and applicable. However, if different participants were selected,

the results might not be duplicated.


The third research question asks about benchmarks for expanding and contracting an

incident action plan during highway incidents. A literature review was again conducted to

research this question. The literature review was important because it provided

recommendations regarding expanding and contracting incidents. It also established a starting

point to build upon the research and knowledge of others.

Research for the third research question was completed through a focus group discussion.

The same focus group participants who participated during the second research question were

also asked to provide input regarding the third research question. The focus group was asked

structured questions about when incident response should be expanded, when unified command

should be established, and how incidents should be deescalated and/or terminated. The focus

group was also asked to review a rough draft of the highway incident complexity analysis

worksheet and organizational charts to provide input for improvement.

Additional research for the third research question was completed by developing,

distributing, and analyzing a short informal questionnaire (see Appendix D). The questionnaire

was not developed to be a statistically valid survey instrument. The purpose of the questionnaire

was to collect general information regarding benchmarks for expanding and contracting incident

action plans. The questionnaire was developed using Survey Monkey as a web-based format.

The questionnaire was distributed via email to the 901 members of the National Society of

Executive Fire Officers and to the 91 members of the Wyoming Fire Chiefs Association. Of the

992 questionnaires distributed, 131 respondents completed the web-based questions for a 13%

response rate.

The limitations for the third research question were the same as the limitations to the

second research question regarding the focus group limitations. Additionally, the distributed


questionnaire created a limitation because of the dissemination method of the questionnaire.

Only respondents who had email and internet access could access the web-based form to answer

the questions. Also, the questionnaire was only distributed to members of the National Society

of Executive Fire Officers and the Wyoming Fire Chiefs Association. Including additional fire

related service organizations would have yielded a larger survey population and more

statistically valid results.

Action research has been selected as the most appropriate research method for this

applied research project. As such, a final product will be produced. This final product will be a

pre-incident action plan for escalating emergency responses on highway incidents. In an effort

to produce the pre-incident action plan, a rough draft was developed and reviewed. On October

29, 2013 a preliminary meeting was held with the Sweetwater County Fire District #1 Fire Chief,

Jim Wamsley to review the rough draft of the plan and provide suggestions for improvement.

Following this meeting, on October 30, 2013 an informal meeting was held with all of the

Sweetwater County Fire District #1 fire officers to review the rough draft of the plan and provide

their input as well. As previously mentioned, the rough draft of the plan was also reviewed by

the emergency response focus group on December 2, 2013.

Results

The results from the first research question regarding laws and standards relating to

incident action plan use during highway incidents indicate that numerous federal laws exist,

several national standards exist, and relatively few Wyoming statutes or local ordinances exist.

These laws and standards were primarily discovered as part of the literature review and were

discussed extensively therein. Additional research was conducted as part of the personal

interview with the Sweetwater County Emergency Manager, Dave Johnson. Mr. Johnson


explained the Homeland Security Presidential Directives had a direct impact on the County

Local Emergency Response Plan (D. Johnson, personal communication, November 20, 2013).

He further explained that there is only one state statute that he was aware of that affected

incident response; the Wyoming State Statute, 24-1-107 which relates to shutting down

highways. Mr. Johnson also explained at a local level, the only county policy was the

Sweetwater County/Local Governmental Agencies Emergency Operations Plan.

The second research question queried about possible model procedures for developing

incident actions plans at highway incidents. The results from this research indicate numerous

model procedures are available to provide guidance for managing highway incidents. These

model guides were analyzed and discussed in detail as part of the literature review. Further

research was also completed by interviewing Lieutenant Colonel Ratliff from the Wyoming

Highway Patrol. Lieutenant Colonel Ratliff explained that he responded to the 36-vehicle large

scale freeway incident in 2004 from the Cheyenne side of the incident (S. Ratliff, personal

communication, November 13, 2013). Upon his arrival he helped establish the Incident

Command System and assess the nature and scope of the incident. Mr. Ratliff further explained

that Unified Command with Homeland Security, Laramie County Emergency Management,

Albany County Sheriff’s Office, and Wyoming Highway Patrol was established for the incident.

Each respective agency worked together to discuss the issues and develop a plan of attack, but no

formal written incident action plan was developed. Mr. Ratliff believed the use of a pre-incident

action plan as a script to prepare for the large scale incident could have helped in the chaotic

situation. When asked about model procedures for highway incidents, Mr. Ratliff explained the

Federal Highway Administration - Managing the Incident program and the Federal NIMS/ICS

training would be excellent sources for model procedures. Finally, Mr. Ratliff explained the


only state statute affecting incident command during highway incidents is the Wyoming State

Statute, 24-1-107.

Additional research for the second research question was also completed as part of a

focus group discussion with representatives from local fire, law enforcement, and emergency

medical services. The focus group provided guidance and assisted in the development of the pre-

incident action plan resulting from this research. When asked about standard ICS procedures,

the focus group voiced concern about making too big of a change at one time. The group

suggested starting small when implementing a new procedure such as the pre-incident action

plan. It was emphasized that it is important to take small steps when facing adaptive changes.

Additionally, the focus group was concerned about the lack of common terminology and radio

procedures amongst the various emergency response disciplines. The group discussed the

communications issues that must be resolved before adopting common procedures. These issues

included: too many primary channels to monitor, lack of compatibility between truncated and

simplex radio systems, multiple dispatch centers that may cause a disconnect in the field,

proprietary ownership of certain frequencies, prioritization of radio traffic during multiple

concurrent incidents, and notification of additional incidents when working from a consolidated

incident frequency. The focus group did come to consensus and agree that every incident should

establish an Incident Commander (IC), regardless of the size of the incident. Furthermore, the IC

should establish a working radio frequency during multi-discipline incidents. And finally, the IC

should provide a Brief Initial Report (BIR) for all responding emergency response agencies.

The third research question explored potential benchmarks for expanding and contracting

highway incident action plans. The results from the research indicate guidance is available to

provide assistance when expanding and contracting incidents. The literature review analyzed


several sources of information which have been previously discussed. Additional research for

the third research question was conducted with the same focus group participants from the

second research question. The focus group expressed concern because incidents that require

Unified Command to be established do not happen frequently enough for efficiency to develop in

advance of a large-scale incident. The focus group was pleased with the incident complexity

analysis concept and voiced support of establishing a typing system based upon complexity. The

focus group agreed that incidents should only be deescalated by the IC or Unified Command

based upon the needs of the incident and the availability resources. Finally, the focus group

emphasized that in the future, the pre-incident plan concept could be a useful tool, but each

agency must become proficient in establishing an IC at every incident before the pre-incident

plan concept can be implemented.

Further research for the third question was also conducted by developing and analyzing an

informal questionnaire that was distributed to members of the Wyoming Fire Chief’s Association

and the membership of the National Society of Executive Fire Officers. The results from this

questionnaire indicate that 59.54% of the respondents’ organizations have not developed pre-

incident plans for highway incident responses (see Figure 1).

Has your organization developed pre-incident plans for highway incident responses?

Answered: 131 Skipped: 0

Figure 1 – Pre-incident Plans


The results indicate that 69.47% of the respondents’ organizations have not created or used a

written incident action plan during a highway incident (see Figure 2).

Of the respondents who indicated their organizations have used a written incident action plan

for a highway incident response, 41.86% developed the IAP before the incident, 46.51%

developed the IAP during the initial incident operations, and 13.95% developed the IAP before

the second operational period (see Figure 3).

The results indicate 71.32% of the respondents’ organizations have not developed incident

action plan templates for use during initial operations at highway incidents (see Figure 4).

Has your organization ever created or used a written incident action plan for a highway incident response?


Figure 2 – Incident Action Plan

If so, when is the written incident action plan generally developed for highway incident responses?


Figure 3 – Incident Action Plan Development


An open-ended question was asked of the respondents regarding what benchmarks their

organizations use to expand or contract the organizational command structure during highway

incident responses. The question was posed in a format to allow respondents to fully answer the

question and provide examples or other relevant information. The respondents’ answers can be

found in Appendix E.

As a result of this research, a final product has been created for local adoption. The Initial

Incident Action Plan for Highway Incidents Occurring in Sweetwater County Fire District #1

categorizes highway incident responses into five levels of complexity.

• Type 5 Incident: Single Unit Response

• Type 4 Incident: Small Response

• Type 3 Incident: Expanded Response

• Type 2 Incident: Reinforced Response

• Type 1 Incident: Disaster Response

Each category is successively more complex and requires additional resources and overhead

positions to address the challenges presented by each incident type. An incident complexity

Has your organization developed generic incident action plan templates for use during initial operations at highway incidents?


Figure 4 – Incident Action Plan Template


matrix was created to allow initial incident commanders to quickly size-up the incident and

determine the most appropriate level of response. The incident complexity matrix also lists

general trigger points in a checklist format designed to assist the initial incident commander to

determine when to request additional resources. Furthermore, the general roles and

responsibilities for each responding agency during a highway incident are defined to help

improve interagency cooperation and coordination. Finally, the plan includes the completed ICS

201 templates for the three commonly encountered local responses. These templates are

designed to be used by the initial incident commander to quickly identify the nature and scope of

the incident, use the incident complexity matrix to select the appropriate ICS 201 template, and

quickly adapt the template for existing incident conditions. Generic scene diagrams, commonly

used objectives, and examples strategy/tactics are included in the ICS 201 templates for each of

the initial response categories. For more information, see Appendix F for the complete Initial

Incident Action Plan for Highway Incidents Occurring in Sweetwater County Fire District #1.

Discussion

As part of the literature review for the first research question, numerous resources were

analyzed to determine what laws and standard exist regarding incident action plans. It was

discovered that the while the Homeland Security Presidential Directive [HSPD]-5 provides

guidance for state and local entities to adopt the National Incident Management System (NIMS)

it does not specifically mandate that state and local entities have to adopt NIMS (Homeland

Security, 2003). Rather, the adoption of NIMS is a condition for federal preparedness assistance

that requires entities to be NIMS compliant or risk losing federal grants. By contrast, the Manual

of Uniform Traffic Control Devices for Streets and Highways Title 23 (FHWA, 2012) and the


Occupational Safety and Health Administration Title 29 (OSHA 29 CFR, 1976) are published as

part of the Code of Federal Regulations and have the full force of administrative law.

It must be noted that the Wyoming state statutes examined as part of the literature review

provided very limited guidance related to incident management. No state statutes were

discovered that required compliance with recognized best practices or standards of service.

The Sweetwater County Board of County Commissioners followed the recommendations

of the Local Emergency Planning Committee and voted to support Homeland Security

Presidential Directive [HSPD]-5 by implementing the NIMS into disaster plans, policies and

procedures ("Sweetwater County Local Governmental Agencies Emergency Operations Plan,"

2005). This vote of support allowed local entities to verify NIMS compliance and access federal

preparedness assistance grants. However, no regulatory laws, statutes, or ordinances have been

adopted to further compel compliance with national standards.

The second research question regarding model procedures produced numerous examples

and guides that are published and readily available. However, much of the available information

related to explanatory material and terminology definitions for basic ICS. Comparatively little

information was valuable to creating initial incident action plans for highway incidents.

Additionally, many of the information sources only provided guidance for developing incident

action plans for extended operations after the initial incident has already expanded and the

command staff positions have been filled. Very little information was related to the initial

establishment of the ICS.

It must be noted that the NFPA® 1620, Standard for Pre-Incident Planning was found to

be surprisingly limited in scope and application. The NFPA® 1620 standard focused primarily

on preparing incident operations for structural firefighting and provided no guidance for other


types of incidents such as hazardous materials responses or highway incidents. The remaining

NFPA® standards discussed during the literature review were reflective of federal NIMS

guidance.

The National Wildland Coordinating Group (NWCG) Wildland Fire Incident

Management Field Guide provided a wealth of information related to incident action plans,

incident complexity, and incident expansion (National Wildland Coordinating Group, 2013). As

was expected, this resource was primarily geared toward wildland fire incidents, but the content

and format was easily adaptable for other types of incidents.

For the third research question regarding benchmarks for expansion and contraction of

incident action plans, a simple questionnaire was developed and distributed. The results

indicated that nearly 60% of the respondents’ organizations have not developed pre-incident

plans for highway incident responses and nearly 70% of the respondents’ organizations have not

created or used a written incident action plan for a highway incident response. Of the

respondents who have used a written incident action plan, 42% developed the IAP before the

incident, 47% developed the IAP during the initial incident operations, and 14% developed the

IAP before the second operational period.

These numbers indicate that most fire departments do not develop pre-incident plans for

highway incident responses. This is most likely because most fire departments have never used a

written incident action plan for a highway incident response. The results indicate this is likely

because most fire departments develop the IAP during initial incident operations or before the

second operational period.


Recommendations

The intended purpose of this applied research project was to develop a pre-incident action

plan for escalating emergency responses on highway incidents. The recommendations to address

this purpose derived from each of the research questions and were applied to the final product.

As a result of the action research conducted during this project, an initial Incident Action Plan

for Highway Incidents (IAPHI) was developed and adopted. The IAPHI contains predetermined

objectives, optional strategies, potential tactics, and defined trigger points to escalate response

during complex highway incidents. By using the IAPHI, the first arriving incident commander

can quickly size-up a highway incident, determine the nature and scope of the problem, select the

appropriate incident action plan template, adapt a template to develop a formal incident action

plan, brief incident response personnel on the action plan, implement the action plan, and

evaluate the effectiveness of the plan.

Based on the results from the first research question, it is recommended the final product

should follow the policies as established in the Federal NIMS. Furthermore, the final product

should also fulfill the requirements mandated by the MUTCD and OSHA. By ensuring

compliance with NIMS, MUTCD, and OSHA, the IAPHI will also conform to state statutes and

local ordinances as well as the nationally accepted best practices and standards.

Based on the results from the second research question, it is recommended the final

product should use information from the Model Procedures Guide for Highway Incidents, the

IMS Book 1, the Traffic Incident Management Systems FA-330 Report, and the Simplified

Guide to the Incident Command System for Transportation Professionals. Each of these

resources provides excellent information and model guides to ensure the final product adheres to

nationally accepted best practices.


Based on the results from the third research question, it is recommended the final product

should use information from the Wildland Fire Incident Management Field Guide and the

Indiana Incident Command Standard Operating Procedures for Fire & Hazardous Materials

Emergency Operations guide. Each of these references provides detailed information and

examples regarding the expansion/contraction of emergency incidents. These resources can be

used as guides to develop a complexity analysis matrix and establish benchmarks for incident

expansion trigger points.

By following these recommendations, the final pre-incident action plan for escalating

emergency responses on highway incidents produced as a result from this research will greatly

improve interagency coordination, communications, and cooperation. The pre-incident action

plan will provide initial incident commanders with a quick reference template for easily

establishing the ICS and developing a site specific IAP during highway incidents.

Future readers who may wish to conduct additional research related to this topic for their

own organizations should focus on ensuring compliance with federal, state, and local laws and

standards. Additionally, it is important to follow nationally accepted best practices and adopt

model procedures that conform to established guidelines. Finally, it will be exceptionally

important to encourage participation from other emergency response agencies and create buy-in

for the final product of research. If other agencies have not had an opportunity to provide input,

it would be extremely difficult to adopt a pre-plan at a local level and create a standardized IAP

for use by all agencies.


References

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Department of Transportation website:

http://www.dot.state.wy.us/files/live/sites/wydot/files/shared/Planning/I80%20Tolling%2

0Feasibility%20Final%20Report%2010.01.08.pdf

Bumgarner, Jr., J. C. (n.d.). Pre planning for responses along Interstate 25 in Larkspur,

Colorado. Retrieved from http://www.usfa.fema.gov/pdf/efop/efo41477.pdf

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285). Washington, DC: Government Printing Office.

Homeland Security. (2008). National incident management system (FEMA Publication P-501).

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http://www.fema.gov/pdf/emergency/nims/NIMS_core.pdf

Homeland Security. (2010). ICS for single resource and initial action incidents (ICS 200)

student manual. Retrieved from

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Indiana Department of Homeland Security/State Fire Marshal Emergency Response Division.

(2006). Command standard operating procedures for fire and hazardous materials

emergency operations. Retrieved from http://www.in.gov/dhs/files/sop.pdf

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management system (2008 ed.). Quincy, MA: Author.

National Fire Protection Association. (2013). Standard on fire department occupational safety

and health program (2013 ed.). Quincy, MA: Author.

National Fire Service Incident Management System Consortium. (2004). Model procedures

guide for highway incidents (1st ed.). Oklahoma State University: Fire Protection

Publications.

National Incident Management System Consortium. (2007). Section V: Highway incidents. In

Incident command system (ICS) model procedures guide for incidents involving

structural fire fighting, high-rise, multi-casualty, highway, and managing large-scale

incidents using NIMS-ICS (1st ed., pp. 311-398). Oklahoma State University: Fire

Protection Publications.

National Wildland Coordinating Group. (2013). Wildland fire incident management field guide.

Retrieved from http://www.nwcg.gov/pms/pubs/pms210.pdf

Occupational Safety and Health Standards: Hazardous Waste Operations and Emergency

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Pond, A. B. (2005, January). 36 vehicles involved in accident on Interstate 80. Firehouse, 30(1),

54-58.

Sweetwater County local governmental agencies emergency operations plan. (2005). Retrieved

from http://www.sweet.wy.us/DocumentCenter/View/146


U.S. Department of Transportation - Federal Highway Administration. (2006). Simplified guide

to the incident command system for transportation professionals. Retrieved from

http://ops.fhwa.dot.gov/publications/ics_guide/ics_guide.pdf

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uniform traffic control devices. Retrieved from Federal Highway Administration Manual

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Appendix A

Sweetwater County Emergency Management Interview 11/20/13 at 2:00 PM Dave Johnson – Emergency Manager (307) 922-5370 1. Are there any federal laws that affect the county local emergency response plan?

a. Yes, the Homeland Security Presidential Directives that established NIMS/ICS affect us at a local level.

2. Are there any state laws that affect the county local emergency response plan? a. During a tabletop exercise last week with the National Weather Service, this exact

issue was discussed. As a resolution, it was approved that any first responder can shut down a highway for an emergency. However, to shut down the highway, a chain of command must be followed. Specifically, approval must be obtained from WYDOT. So it when it is necessary to shut down a highway, the requesting agency must contact the Wyoming Highway Patrol who then contacts WYDOT to shut down the affected area and manage the traffic flow issues.

b. There are no specific laws that require ICS or explain which agency would be the lead incident command agency. Following local policies and procedures though, Unified Command can be easily established as in past experiences.

3. Are there any local ordinances that affect the county local emergency response plan? a. There are no laws or ordinances; however we do have established polices to establish

Incident Command and open the Emergency Operations Center in Rock Springs. Depending on the event, there could be a variety of situations where Unified Command could be established.

4. Are you aware of any standards that exist relating to incident action plan use during highway incidents?

a. Wyoming Homeland Security and the local Emergency Management Agency have response plans available for hazardous materials and pipeline emergencies. Generally, when State Highway Patrol needs additional resources they contact emergency management who provides support in the planning section to activate these plans.


Appendix B

Wyoming Highway Patrol Interview with Lieutenant Colonel Ratliff 11/13/13 at 11:00 AM 1. Can you describe your role during the 36 vehicle large-scale freeway incident that occurred

between Laramie and Cheyenne in 2004? a. 36 vehicle accident – heavy fog conditions – vehicle stopped on I-80 caused a chain

reaction crash with multiple tractor trailers and passenger vehicles/motorcycles. Fire ensued and several fatalities occurred. Four bodies were never recovered due to total cremation. Incident occurred in Albany County. The Division J supervisor responded to the incident. As the Division A Supervisor in Cheyenne, I responded from the opposite direction. When I arrived, we shut down the freeway and stopped continuing traffic. We were trying to size up the scene and identify the extent of the incident. It was a very large scene with a significant amount of victims.

2. How was the incident command structure organized? a. We established a joint command with Homeland Security, Laramie County

Emergency Management, Albany County Sheriff’s Office, and Highway Patrol. Highway Patrol was the lead agency in the Unified Command structure.

3. How did the response agencies from multiple jurisdictions and multiple disciplines coordinate their efforts?

a. No incident action plan was created for the incident. Each respective agency worked together to discuss the issues and develop a plan of attack.

4. Would the early creation and use of an incident action plan during this incident have improved the coordination of response personnel?

a. Yes, the use of a script to follow would have helped in the chaotic situation. 5. Are you aware of model procedures available to assist when developing incident actions

plans during highway incidents? a. The FHWA Managing the Incident and the ICS training would be a good starting

point for model procedures. 6. Are there any state laws that affect incident command during highway incidents?

a. No, other than the road closure law. The highway patrol and WYDOT have statutory authority to close the road. If an incident occurred and the fire department closed the highway, I don’t know if it would become an issue. I haven’t followed up or asked the attorney general for an opinion on the matter. I would hate to see any issues or contention that arises from conflict. As long as we are aware of other agencies’ responsibilities and objectives, incident management should run smoothly on most incidents.

7. Would you or a representative from the Highway Patrol Office be available to participate in a focus group designed to address this issue in more detail on (DATE)?

a. Lt. Scott Keane from the Rock Springs District would be the best point of contact at a local level. You should meet with him to participate.


Appendix C EMERGENCY RESPONSE FOCUS GROUP MEETING 1. What are the standard ICS procedures each agency uses during highway incidents? Does the

ICS 201 pre-plan accurately reflect these procedures? a. Yes, the pre-plan is fairly accurate. Be sure to include the requirements of law

enforcement to preserve the scene for investigations. b. Include information about special considerations for unusual incidents.

2. Do all agencies use common terminology and radio procedures when responding to multi-

agency highway incidents? Can we use Wyolink to improve our communications? a. No, common terminology does not exist. Highway patrol is still using 10 codes.

Several law enforcement agencies are also using specialized codes for security. b. Common radio procedures also do not exist. Many agencies have transitioned to

truncated radio systems, while many others are still using simplex narrow-band. 3. Are there any communications issues that must be resolved before adopting a common

procedure for use during highway incidents? a. Several communications issues exist that must be resolved:

i. Too many primary channels to allow scanning ii. No common terminology

iii. Interoperability issues still exist between agencies iv. Proprietary ownership of certain radio frequencies may affect operations v. Multiple dispatch centers exist and may cause confusion during incidents

vi. Prioritization of radio traffic during multiple concurrent incidents vii. No notification process exists for additional incidents when working form a

consolidated incident frequency 4. How should incident management best be established for large-scale highway incidents?

a. The first arriving unit should always establish command. This currently does not occur and must become habit.

b. After establishing command, the IC should establish communications with other responding units.

c. Finally, the IC should provide a Brief Initial Report (BIR) to notify all response agencies about the specifics of the incident.

5. When should unified command be established for highway incidents?

a. A benchmark to establish Unified Command cannot be developed because these types of incidents occur so rarely.

b. Unified Command should be established every time multiple response agencies are responding to the same incident by NIMS/ICS guidelines.

i. This is not a realistic goal until we can establish IC’s first. Then once we feel confident that we can establish IC’s, we can begin to address Unified Command.


6. How can incident response best be expanded to meet the needs of a large-scale highway incident? How many resources, what kind of resources, what type of resources? Does the incident complexity analysis and typing highway incidents help improve this process?

a. Yes, the incident complexity analysis is a valuable tool to size-up and classify resource requirements.

b. Classifying five types of incidents may lead to confusion. It may simplify things to just use three commonly encountered response classifications.

c. It is important to follow NIMS/ICS guidelines as well as nationally accepted best practices and model procedures. Having five classifications meets these guidelines and conforms with other types of classification systems. It is important not to be short-sighted and instead be able to escalate an incident beyond commonly encountered response classifications.

7. How should highway incidents be deescalated and/or terminated?

a. The IC or Unified Command should determine the needs of the incident and release resources as necessary.

8. Is the pre-incident plan helpful to manage large-scale highway incidents? What additional

content would be helpful to the initial incident commander? a. It is important to establish an IC at every incident. The IC should always establish

communications and provide a BIR for other response agencies. The pre-incident plan will be helpful as a tool for ICS during large-scale incidents.

b. No recommendations at this time to add additional content. It is important to simply practice implementing ICS for future responses.


Appendix D HIGHWAY INCIDENT ACTION PLAN QUESTIONNAIRE 1. Has your organization developed pre-incident plans for highway incident responses?

YES NO

2. Has your organization ever created or used a written incident action plan for a highway

incident response? YES NO

3. If so, when is the written incident action plan generally developed for highway incident

responses? Before the incident During initial incident operations Before the second operational period

Other (please specify) 4. Has your organization developed generic incident action plan templates for use during initial

operations at highway incidents? YES NO

5. What benchmarks does your organization use to expand and contract the organizational

command structure during highway incident responses? )

Done

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Appendix E

SURVEY RESULTS Question: What benchmarks does your organization use to expand and contract the organizational command structure during highway incident responses? Answered: 71 Skipped: 60 1. Fire house software 9/4/2013 1:44 PM 2. The needs or size of incident 8/21/2013 7:01 PM 3. The size of the response is dictated by the incident commander. Benchmarks have not

formally been established. 8/18/2013 11:41 AM 4. We use standard ICS forms. We shut down a major state highway f or parades. Planned event

with plenty of prep time. 8/17/2013 9:31 AM 5. Depending on the incident, we utilize our County Alarm plan. This encompasses all

responses possible f or the freeway from MCI, Haz-Mat, to Jet landings. 8/17/2013 8:02 AM 6. # of resources 8/9/2013 4:57 PM 7. Time and extent of the incident. 8/9/2013 1:01 PM 8. When there are multi-casualties/fatalities that will exceed our resources, when there are

multiple local/state/federal resources that would prompt a Unified Command Structure, when our primary roles change from rescue v s recovery , determined by who is the lead agency in charge such as f ire (life safety /incident stabilization/environmental protection) v s police (traffic control/crime scene investigation/fatality management), if there is a technical rescue element, if there is a haz-mat release element, etc... 8/8/2013 7:30 AM

9. Alarm level and state impact lev el 8/5/2013 9:25 PM 10. MCI event, hazardous spill requiring full battalion response 8/3/2013 7:55 AM 11. The size of the incident. If the incident involves hazardous materials, entrapment, inclement

weather i.e. torrential rain, ice, high winds, blizzard conditions, f iv e patients or more which constitutes a MCI, 8/3/2013 6:13 AM

12. we add a vehicle to the highway response f or traffic control as well as a battalion chief . 8/2/2013 6:48 AM

13. # of Vehicles involved and # of Pt's involved 8/1/2013 11:42 PM 14. None 8/1/2013 7:57 PM 15. Judgment of the IC. Number of patients. 8/1/2013 1:58 PM 16. based on numerous conditions: vehicles involved haz-mat conditions 8/1/2013 1:30 PM 17. Number of resources needed. Determined by the initial IC. 8/1/2013 11:34 AM 18. Extrication Needed; Lane Blockage; Mass Casualty Incidents; Extended extrication; Law

Enforcement parameters 8/1/2013 9:53 AM 19. Number/type of patients, number/type of resources, anticipated incident duration. 8/1/2013

9:16 AM 20. N/A - no highways. But we do use ICS and regularly expand the structure to f it the needs of

the incident, no benchmarks are preset. 8/1/2013 7:28 AM 21. NIMS 8/1/2013 7:17 AM 22. hazmat spill, fatality , mass casualty 8/1/2013 6:52 AM 23. When we establish a Unified Command, this usually triggers the plan. 8/1/2013 6:50 AM


24. none 8/1/2013 5:43 A 25. Not applicable. 7/31/2013 8:37 PM 26. None 7/31/2013 8:25 PM 27. District Chief discretion. 7/31/2013 8:14 PM 28. No specific benchmarks, just based on the size and complexity of the individual incident

7/31/2013 7:55 PM 29. Extrication complete, stop loss, spill contained/ not expanding, product control 7/31/2013

7:00 PM 30. None 7/31/2013 6:31 PM 31. Hazmat or MCI 7/31/2013 5:44 PM 32. Incident complexity, number of resources on scene, MCI, Hazardous Materials 7/31/2013

4:36 PM 33. Span of control and complexity of the incident 7/31/2013 4:26 PM 34. Generally the IC will expand/contract the incident based on resource needs, the number of

patients, if any hazardous materials are involved, et cetera. 7/31/2013 4:22 PM 35. None 7/31/2013 4:16 PM 36. available response units (engines, truck, ambulances), number of and types of vehicles

involved, weather, time of day (commuting time), day of the week. 7/31/2013 4:04 PM 37. Severity, patient numbers, and additional hazards such as haz-mat, f ire, etc... 7/31/2013 3:40

PM 38. Daily after 1st operational period. Note: the above aren't specific to highway incidents -

rather all hazard 7/31/2013 3:20 PM 39. size, type of incident..# of vehicles... 7/31/2013 3:15 PM 40. As organizations or disciplines are added the command structure increases to a unified ICS -

typically law enforcement, transport agencies, government agencies, local agency support 7/31/2013 3:13 PM

41. Number of vehicle involved and extent of injuries. 7/31/2013 3:08 PM 42. None, other than gut and intuition. 7/31/2013 3:04 PM 43. n/a 7/31/2013 3:01 PM 44. magnitude of the incident. number of vehicles involved. number of injured. road blockage.

hazardous materials involved. number of agencies involved. type of highway . time of day 7/31/2013 3:00 PM

45. Evaluation of the expected operational period to achieve our response objective. 7/31/2013 2:58 PM

46. N/A 7/31/2013 2:53 PM 47. ICS 7/31/2013 2:50 PM 48. MCI, Number/Type of vehicles involved, likely involvement of NTSB, potential use of rotor-

wing aircraft, hazmat, fire involvement, and possibility of legal action requiring a more extensive scene investigation/reconstruction. 7/31/2013 2:50 PM

49. Extrication, Medical need, Leakage, and number of Vehicles involved. Criminal activity also changes that structure. 7/31/2013 2:43 PM

50. Size, complexity , number of victims 7/31/2013 2:38 PM 51. Based on the magnitude of the event and amount of resources required 7/31/2013 2:37 PM


52. MCI all levels Extrications Fires with entrapments Patient entrapment All hands working. 2-3 Engines, Heavy Rescue, EMS, Battalion Chief -Command, Battalion Chief -Safety MCI second Alarm and additional Multiple incidents working such as Haz-Mat, Entrapment, Fire, Explosives, etc. 7/31/2013 2:36 PM

53. The IAP (universal) is based on the complexity of the incident. It is expanded or contracted based on complexity (number of patients, secondary hazards, need f or airlift landed on highway, etc). 7/31/2013 2:19 PM

54. Extension beyond initial response elements and multi-agency /discipline events. 7/31/2013 2:16 PM

55. # and/or of vehicles, # of non-ambulatory patients, Haz-Mat, number of lanes of traffic closed, anticipated length of time of closure/clean-up 7/31/2013 2:15 PM

56. depends on what the incident is. Small MVA nothing, multi MVA will set up IC till patients are cared f or. 7/31/2013 2:14 PM

57. extrication complete f ire under control 7/31/2013 2:05 PM 58. Traffic f low, weather, multi-casualty, hazmat related, severity of incident 7/31/2013 2:04

PM 59. (National Capitol Area) Depending on the length an interstate will be closed along with size

of incident helps determine lev el of response. Declaring a "highway incident" includes responses from f ire EMS police (local and state) and highway department (state). Unified command would mob/demob, with intension of opening lanes ASAP 7/31/2013 2:04 PM

60. N/A 7/31/2013 2:01 PM 61. plus or minus of resources needed incident is stabilized 7/31/2013 2:00 PM 62. Severity of incident 7/31/2013 2:00 PM 63. That decision rest solely with the IC and his/her Command and General Staff. 7/31/2013 1:53

PM 64. WE don't have any benchmarks 7/31/2013 1:48 PM 65. Location. - Severity of incident. - Highway infrastructure. 7/31/2013 1:48 PM 66. None at this time 7/31/2013 1:47 PM 67. span of control; complexity of incident 7/31/2013 1:46 PM 68. span of control 7/31/2013 1:46 PM 69. Incident expands beyond local resource capability, projected long term (multiple operational

periods), and complexity (haz-mat). 7/31/2013 1:46 PM 70. Size and duration of the response, requirement of outside or out-of -the-ordinary resources.

7/31/2013 1:45 PM 71. Fatalities 7/31/2013 1:44


Appendix F

INITIAL INCIDENT ACTION PLAN FOR HIGHWAY INCIDENTS OCCURRING IN SWEETWATER COUNTY FIRE DISTRICT #1

The National Incident Management System requires that when incidents involve multiple jurisdictions a written Incident Action Plan (IAP) is necessary to maintain effective, efficient, and safe operations. In an effort to improve interagency coordination during highway incidents, an initial IAP has been developed as a guiding document to be used during the first operational period of the incident. This initial IAP has been created to aid in initiating a timely and effective response to highway incidents that occur in Sweetwater County Fire District #1. The initial IAP provides guidance to assist the initial incident commander to quickly size-up the incident, determine the nature and scope of the problem, select an appropriate IAP template, adapt the template to develop the formal IAP, brief the incident response personnel, implement the IAP, and evaluate the effectiveness of the IAP. This process can be summarized by using the following acronym: C – Command (First arriving unit establishes Incident Command for all incidents) A – Analyze (Size-up to determine the nature and scope of the problem) P – Plan (Select the appropriate IAP template and adapt to fit the needs of the incident) I – Implement (Brief responders on responsibilities, communications, hazards, & relevant info) E – Evaluate (Determine if strategies/tactics are effective or if the incident is escalating) After establishing command, the initial incident commander should provide a Brief Initial Report (BIR) for all other responding units. The BIR should include the following information: 1. Declare command (First arriving unit declares he/she has established Incident Command) 2. Establish communications to dispatch (All responding units use Wyolink MAT4 frequency) 3. Verify location of incident (Mile maker 118, I-80 westbound) 4. Declare number of vehicles, number of injured persons, if extrication is needed, if hazardous

materials are present, other relevant information 5. Declare incident complexity (Type I – V based upon incident complexity analysis chart) 6. Declare traffic conditions (Restricted lane passage, full blockage, etc.) 7. Provide alternative approach directions if traffic is blocking response for emergency vehicles

and provide nearest median crossover turn-around if available


HIGHWAY INCIDENT COMPLEXITY ANALYSIS:

When determining the nature and scope of the problem, it will be helpful for responding agencies to classify incidents according to complexity. Incident complexity can vary based upon the type of required response, number of vehicles involved, severity of injuries, number of responding agencies, and many other factors. The highway incident complexity analysis provides a basic foundation that can be used by the initial Incident Commander (IC) to quickly adapt and create a response specific IAP that addresses the complex variables presented by each incident. TYPE 5 INCIDENT: SINGLE UNIT RESPONSE

� Examples of this type of response may include a law enforcement traffic stops and motorist assistance provided by towing and recovery services

� This minor traffic incident should affect travel for less than 30 minutes � The incident can be handled with one or perhaps two single resources � Law enforcement personnel may be dispatched to document the incident � Towing companies may be necessary to remove the vehicles and restore traffic � No command and general staff positions are activated (other than the IC) � No written IAP is required

TYPE 4 INCIDENT: SMALL RESPONSE

� Examples of this type of response may include motor vehicle collisions and vehicle fires � Multiple single resources will generally respond including law enforcement, fire, & EMS � This intermediate traffic incident can be expected to affect travel for 30 minutes to 2 hrs. � Usually requires traffic control measures to divert road users past the road blockage � Full roadway closures may be necessary for short periods of time � Command and general staff functions are only activated if needed � No written IAP is required, but an initial briefing for all responding resources is

necessary TYPE 3 INCIDENT: EXPANDED RESPONSE

� Examples of this type of response include multiple concurrent motor vehicle collisions, hazardous material releases, multi-vehicle motor vehicle collisions with multiple injuries

� When capabilities exceed initial small response and additional resources are required, the organizational structure should be expanded to match the complexity of the incident

� This major traffic incident that can be expected to affect travel for more than 2 hours and may extend into multiple operational periods

� It may be necessary to close all or part of the roadway for safe incident operations � Some of the command and general staff positions may need to be activated � Resources may need to be organized into Strike Teams/Task Forces to maintain adequate

span of control � A written IAP is likely necessary to document the operational briefing for all incoming

resources and to serve as a template for future IAP development � The agency administrator may have briefings to prioritize critical resources


TYPE 2 INCIDENT: REINFORCED RESPONSE � Examples of this type of response may include large scale winter storms, terrorist events,

and bridge collapses � This type of incident extends beyond the capabilities for local control and requires

additional assistance from neighboring jurisdictions and/or state resources � The incident will require multiple operational periods to bring to conclusion � Unified Command will need to be established allowing all response agencies with

statutory authority to jointly participate in the management of the incident � Most or all of the command and general staff positions are filled to create an Incident

Management Team necessary to manage the additional resources and external influences � Division/Group Supervisors and/or Unit Leader positions will be established to maintain

adequate span of control � A written IAP is required for each operational period

TYPE 1 INCIDENT: DISASTER RESPONSE

� Examples of this type of response may include natural disasters or other similar large-scale events

� This type of extraordinary incident is the most complex requiring the response of state and/or national resources to safely and effectively manage operations

� Significant ICS organization is necessary including all command and general staff positions

� Branches need to be established to maintain adequate span of control for the numerous operations personnel

� Agency administrators are responsible for the incident complexity analysis, agency administrator briefings, and the written delegation of authority

� There will be a high impact on the local jurisdictions, requiring additional staff for office administrative and support functions.


INCIDENT BRIEFING (ICS 201) 1. Incident Name: Type 5 Incident: Single Unit Response

2. Incident Number:

3. Date/Time Initiated: Date: Time:

4. Map/Sketch (include sketch, showing the total area of operations, the incident site/area, impacted and threatened areas, overflight results, trajectories, impacted shorelines, or other graphics depicting situational status and resource assignment):

5. Situation Summary and Health and Safety Briefing (for briefings or transfer of command): Recognize potential incident Health and Safety Hazards and develop necessary measures (remove hazard, provide personal protective equipment, warn people of the hazard) to protect responders from those hazards. � Examples of this type of response may include a law enforcement traffic stops and motorist assistance

provided by towing companies � This minor traffic incident should affect travel for less than 30 minutes � The incident can be handled with one or perhaps two single resources � Law enforcement personnel may be dispatched to document the incident � Towing companies may be necessary to remove the vehicles and restore traffic � Command and general staff positions (other than the IC) are not activated � No written IAP is required

6. Prepared by: Name: Position/Title: Signature:

ICS 201, Page 1 Date/Time:

SINGLE UNIT RESPONSE



2. Incident Number:


7. Current and Planned Objectives: • Ensure responder and motorist safety during incident operations • Reduce traffic congestion caused by the incident • Clear incident of all disabled vehicles, cargo, and debris, • Conduct motor vehicle collision investigation • Restore traffic lanes to full operational status

8. Current and Planned Actions, Strategies, and Tactics: Agency: Actions:

Law Enforcement

• Upon arrival protect the scene by placing patrol car with emergency lights activated to rear • Establish traffic incident management area and place traffic control devices, cones, or flares • Determine if vehicles can be removed from the traveled lanes • Call for tow services as necessary, advise dispatch of any special tow needs • Obtain necessary information from involved parties • Review physical evidence at scene and take photos as required • Complete Wyoming Investigator’s Traffic Crash Report • Contact WYDOT if there is any roadway or structural damage highway infrastructure • Clear scene quickly, consider finishing up paperwork off the highway

Towing and Recovery

LAW ENFORCEMENT NOT ON SCENE • If traffic conditions allow, protect the scene by using rear facing warning lights on tow truck • If the vehicle needs to be towed and it can be done in a safe manner, then with the owner’s consent

tow the vehicle to a safe place and advise law enforcement of location • If towing cannot be done in a safe manner protect the scene by the use of flags or cones LAW ENFORCEMENT ON SCENE • Position tow truck so the towing process can begin • Coordinate with law enforcement for vehicle removal and communicate how to best reenter traffic

flow





2. Incident Number:


9. Current Organization (fill in additional organization as appropriate):



Incident Commander First Arriving Unit

All ICS Responsibilities



2. Incident Number:


10. Resource Summary:

Resource Resource Identifier

Date/Time Ordered ETA A

rriv

ed

Notes (location/assignment/status) Wyoming Highway Patrol

Tow Truck

(If Necessary)




INCIDENT BRIEFING (ICS 201) 1. Incident Name: Type 4 Incident: Small Response

2. Incident Number:



5. Situation Summary and Health and Safety Briefing (for briefings or transfer of command): Recognize potential incident Health and Safety Hazards and develop necessary measures (remove hazard, provide personal protective equipment, warn people of the hazard) to protect responders from those hazards.

� Examples of a small response may include motor vehicle collisions and vehicle fires � Multiple single resources will generally respond including law enforcement, fire, & EMS � This intermediate traffic incident can be expected to affect travel for 30 minutes to 2 hours � Usually requires traffic control measures to divert road users past the road blockage � Full roadway closures may be necessary for short periods of time � Command and general staff functions are only activated if needed � No written IAP is required, but an initial briefing for all responding resources is necessary



SMALL RESPONSE



2. Incident Number:


7. Current and Planned Objectives: • Ensure responder and motorist safety during incident operations • Extricate entrapped vehicle occupants • Provide medical treatment for injured motorists • Contain/confine all hazardous materials leak/spills • Reduce traffic congestion caused by the incident • Clear incident of all disabled vehicles, cargo, and debris, • Conduct motor vehicle collision investigation • Restore traffic lanes to full operational status

8. Current and Planned Actions, Strategies, and Tactics:

Agency: Actions:

Law Enforcement

• Upon arrival, protect the scene by placing patrol car with emergency lights activated to rear • If first arriving unit, establish incident command for the incident • If necessary, escalate incident response according to incident complexity analysis • Declare Wyolink channel for responding units to communicate during incident (MAT4, etc.) • Establish traffic incident management area and place traffic control devices, cones, or flares • Request ambulance if motorists are injured • Request fire personnel if multiple injuries or additional assistance is needed • Request additional law enforcement for traffic management and scene protection if necessary • Determine if vehicles can be removed from the traveled lanes • Call for tow services as required, advise dispatch of any special tow needs • Obtain necessary information from involved parties • Review physical evidence at scene and take photos as required • Complete Wyoming Investigator’s Traffic Crash Report • Contact WYDOT if there is any roadway or structural damage highway infrastructure • Clear scene quickly, consider finishing up paperwork off the highway

Fire/Rescue

• Report to Incident Commander on scene or establish Incident Command if first arriving unit • Place fire apparatus in fend-off position for scene protection. Protect the affected traffic lanes • Render medical aid until an ambulance arrives to transport the injured persons to the hospital • Extricate trapped victims from damaged vehicles • Suppress vehicle fires • Provide initial hazardous materials response and containment • Assist in incident clearance • Assist in traffic management • Provide scene lighting if required

EMS

• Report to Incident Commander on scene or establish Incident Command if first arriving unit • Place ambulance in front of scene near vehicle occupants, activate rear facing warning lights • Triage injuries and prioritize patient care as appropriate • Provide first aid, stabilization, and treatment for injured parties • Provide transportation requirements for injured parties to nearest hospital • Coordinate evacuation with fire, police and ambulance or airlift • Remove medical waste from incident scene

Towing and Recovery

• Report to the Incident Commander (IC) • Park Tow Truck at the rear of the scene, activate rear facing warning lights • When parking on the scene do not block in any emergency vehicle at the scene • Analyze the crash scene and plan for the recovery techniques • Consider the type of equipment and personnel resources that will be necessary • Coordinate with IC to begin the clean-up process and vehicle removal • Communicate with IC how to best re-enter traffic flow





2. Incident Number:





Incident Commander

Law Enforcement Group Fire/Rescue Group EMS Group

Safety Officer

Fire

A

ppar

atus

Pat

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ehic

le

Tow

Tru

ck

Am

bula

nce



2. Incident Number:





rriv

ed


Sweetwater County Fire District #1

Sweetwater Medics

Tow Truck




INCIDENT BRIEFING (ICS 201) 1. Incident Name: Type 3 Incident: Expanded Response

2. Incident Number:



5. Situation Summary and Health and Safety Briefing (for briefings or transfer of command): Recognize potential

incident Health and Safety Hazards and develop necessary measures (remove hazard, provide personal protective equipment, warn people of the hazard) to protect responders from those hazards. � Examples of an expanded response include multiple concurrent motor vehicle collisions, hazardous material

releases, multi-vehicle motor vehicle collisions with multiple injuries � When capabilities exceed initial small response and additional resources are required, the organizational

structure should be expanded to match the complexity of the incident � This major traffic incident that can be expected to affect travel for more than 2 hours and may extend into

multiple operational periods � It may be necessary to close all or part of the roadway for safe incident operations � Some of the command and general staff positions may need to be activated � Resources may need to be organized into Strike Teams/Task Forces to maintain span of control � A written IAP is likely necessary to document the operational briefing for all incoming resources and to serve as

a template for future IAP development 6. Prepared by: Name: Position/Title: Signature:


EXPANDED RESPONSE



2. Incident Number:


7. Current and Planned Objectives: • Ensure responder and motorist safety during incident operations • Extricate entrapped vehicle occupants • Provide medical treatment for injured motorists • Contain/confine all hazardous materials leak/spills • Reduce traffic congestion caused by the incident • Clear incident of all disabled vehicles, cargo, and debris, • Conduct motor vehicle collision investigation • Restore traffic lanes to full operational status

8. Current and Planned Actions, Strategies, and Tactics: Agency: Actions:

Law Enforcement

• Upon arrival, protect the scene by parking patrol car with emergency lights activated to rear • Report to Incident Commander on scene or establish Incident Command if first arriving unit • Coordinate with other emergency units to facilitate response through blocked traffic • For major incident/fatality situations, begin calling appropriate additional parties/agencies (i.e.

Coroner, WYDOT Maintenance) • If a hazardous materials spill is found, ensure fire services have been dispatched and advised • Evaluate traffic incident management area, close down portions of highway as needed, or detour

traffic if complete road closure is necessary • Update WYDOT of any changes in traffic flow • Move vehicles to one side of the road, if possible, without compromising investigation • If necessary, request further assistance for traffic direction and scene protection • Remove debris and vehicles blocking lanes as soon as possible • Monitor for arrival of media personnel and/or family members ensure they do not compromise the

crash investigation or inhibit the safe flow of traffic • Clear all emergency units from scene as soon as possible to remove any visual hazards that may

continue to contribute to the traffic backup • Contact WYDOT if there is any roadway or structural damage to highway infrastructure • Obtain necessary information from involved parties • Review physical evidence at scene and take photos as appropriate • Complete Wyoming Motor Vehicle Collision Report

Fire/Rescue

• Responding fire units should park fire apparatus to allow scene protection for responders as well as injured parties while allowing as little restriction to flow of traffic on roadway as possible. Rear facing warning lights should be activated.

• Report to Incident Commander on scene or establish Incident Command if first arriving unit • Consider establishing Unified Command if appropriate • Render medical aid until an ambulance arrives to transport the injured persons to the hospital • Fire service units on scene should be limited to what is essential to support the incident • The magnitude of this type of incident may require several fire units to be operating on the roadway,

so scene safety for responders should be a primary consideration

EMS

• Report to Incident Commander on scene or establish Incident Command if first arriving unit • Place ambulance in front of scene near vehicle occupants, activate rear facing warning lights • Triage injuries and prioritize patient care as appropriate • Provide first aid, stabilization, and treatment for injured parties • Provide transportation requirements for injured parties to nearest hospital • Coordinate evacuation with fire, police and ambulance or airlift • Remove medical waste from incident scene


1. Incident Name: Type 3 Incident: Expanded Response

2. Incident Number:


Towing and Recovery

• Park Tow Truck at the rear of the scene, positioned so that the warning lights can help secure the scene

• When parking on the scene do not block in any emergency vehicle at the scene • Report to the Incident Commander (IC) • Analyze the crash scene and start planning the recovery techniques • Take into consideration the type of equipment and personnel resources that will be necessary to

complete the job • Coordinate with IC to begin the clean-up process and vehicle removal • Communicate with IC how to best re-enter traffic flow

WYDOT Maintenance

:

• Coordinate all activities with IC • Provide emergency and short-term traffic control setups to protect the incident scene • Coordinate with law enforcement to establishment alternate routes and assist in their operation as

necessary • Determine incident clearance needs such as loaders, tandems, brooms or other pertinent

equipment and materials • Coordinate the use of WYDOT resources (people, equipment and materials) for clearance and

recovery of incident • Assess infrastructure damage; make necessary arrangements for repairs and report resources

used for billing purposes • Clear the scene when no longer needed

Special Circumstance Responders

• During severe incidents that involves fatalities, spilled cargo, or the release of hazardous materials; or during large manmade or natural disasters, special/extreme circumstance responders may be necessary; examples include:

o Coroner: Assists with body removal to facilitate incident clearance. Additionally, the Coroner will determine the cause and manner of death and preserve the body from loss or destruction.

o Emergency Management: When the scope and severity of an incident dictates, local emergency management may be called upon to direct and/or participate in incident response as part of the overall response to major emergencies.

o Wyoming Department of Environmental Quality (DEQ): Deployed to provide technical assistance, assess impacts, and recommend mitigation strategies for both hazardous and non-hazardous related cargo releases.

o Hazardous Materials Contractors: When hazardous materials incidents require response and cleanup beyond the capabilities of fire resources, specialized hazardous materials contractors may be dispatched to the incident scene. Their primary responsibility is to remove the hazardous material and mitigate additional risk from the continuous release of material into the environment.





2. Incident Number:





Unified Commanders / Incident Commander

Logistics Section Chief

Operations Section Chief

Finance Section Chief

Planning Section Chief

Safety Officer

Public Information Officer

Liaison Officer

Am

bula

nce

Tow

Tru

ck

Fire

A

ppar

atus

Fire/Rescue Group Supervisor

Law Enforcement Group Supervisor

Traffic Control Group Supervisor

Medical Group Supervisor

LEO

Pat

rol

Uni

t

Fire

A

ppar

atus

A

mbu

lanc

e W

YD

OT

Plo

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Truc

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obile

Tra

ffic

Sig

n

LEO

Pat

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Uni

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2. Incident Number:





rriv

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Sweetwater County Sheriff’s Deputy

Sweetwater County Fire District #1

Sweetwater Medics

Tow Truck

WYDOT Maintenance




INCIDENT ACTION PLANNING PROCESS

When a highway traffic incident occurs that requires multiple agencies or jurisdictions to respond, the ICS incident action planning process can be used to develop a new IAP or adapt the attached ICS 201 templates. By following the planning process, all senior leaders and partners involved in the incident can achieve unity of effort and communicate their expectations to all responders. The incident action planning process requires all incident management leaders to cooperate, coordinate, and communicate during the decision-making process. The incident action planning process is built on the following phases: 1. Understand the situation 2. Establish incident objectives 3. Develop the plan 4. Prepare and disseminate the plan 5. Execute, evaluate, and revise the plan By following this process, a well-conceived IAP will identify clear incident objectives and provides essential information regarding incident organization, resource allocation, work assignments, and safety concerns that may affect the incident. Using an IAP ensures successful incident operations and provides a basis for evaluating performance while achieving incident objectives. PHASE 1: UNDERSTANDING THE SITUATION During Phase 1 of the planning process, efforts should focus on gaining an understanding of the situation. Situational awareness includes gathering, recording, analyzing, and displaying situation and resource information regarding the scale, scope, complexity, and potential incident impacts. Comprehensive situational awareness is essential to developing and implementing an effective IAP and determining the resources necessary to implement the IAP. PHASE 2: ESTABLISH INCIDENT OBJECTIVES During Phase 2 of the planning process, efforts should focus on formulating and prioritizing initial incident objectives. Incident management should consider the following three priorities when establishing objectives: 1. Life Safety: Protecting emergency responders, any incident victim, and the general public. 2. Incident Stability: Minimizing an incident’s impact on the surrounding area, maximizing

response efforts, and ensuring efficiency when using resources. 3. Property Conservation: Minimizing damage to property while still achieving established

incident objectives.

Objectives Incident objectives, per NIMS are ‘statements of guidance and direction necessary for the selection of appropriate strategies and the tactical direction of resources. Incident objectives are based on realistic expectations of what can be accomplished when all allocated resources have been effectively deployed’.


PHASE 3: DEVELOP THE PLAN After the incident objectives have been developed, the strategies to meet incident objectives and the tactics to accomplish the strategies can then be established. During the initial incident operational period, the IC will specify who, what, where, and when the specific actions will be performed to achieve the planned outcomes. If additional command and general staff are activated, they will also review the work assignments and provide input.

Strategies and Tactics Strategies are carefully devised plans of action to achieve one or more objectives. Strategies describe what actions and resources are required to achieve specific objectives and are distinct from tactics, which address the conduct of specific operational resources. Tactics describe the deployment and direction of resources to achieve the planned outcomes.

Assign Resources According to Geographic Area or Functional Group After the incident objectives have been developed, and the appropriate strategies and tactics have been established, incident resources must be then assigned. Resources can be assigned into divisions with geographic responsibility or into groups with functional responsibilities. This assignment of resources ensures an adequate span of control and operational supervision. PHASE 4: PREPARE AND DISSEMINATE THE PLAN During initial incident operations, the ability to print and distribute copies of the IAP to operational resources may not be feasible. However, the initial incident commander can adapt one of the completed ICS 201 templates to quickly and easily brief operational personnel in the field. The ICS 201 will be used as an initial IAP and can also serve as the foundation for future operational period IAPs if it becomes necessary. PHASE 5: EXECUTE, EVALUATE, AND REVISE THE PLAN Phase 5 begins when the operational resources have been briefed and continues throughout the execution of the IAP. The IAP must be evaluated and revised when necessary to achieve the planned outcomes. Planned progress should be compared to actual progress by obtaining regular benchmark reports from tactical resources. A cyclical process should progress through each of the five phases and begin again as new information emerges. Any new information should then be included in Phase 1: Understanding the Situation and used to develop the plan for the subsequent operational periods.