Module 4
Emergency Response and Incident Management
When responding to hazardous materials incidents first responders must begin managing the incident the moment they are dispatched. This type of incident is seldom static and can change dramatically without notice. It is imperative that responders quickly plan their routes of response and initial actions to prevent accidental exposures and injuries, remembering that safety of personnel is the primary concern.
If you are not dispatched but find yourself first on the scene, you must know how to establish scene management and initiate an appropriate response. In either case, first responders at hazardous materials incidents must be prepared to follow the appropriate command sequence as set out by the Incident Management System (IMS). Further, they must be aware of the possible existence of clandestine drug manufacturing laboratories as well as an intentional release of hazardous materials (including terrorist activities) and know how to recognize related dangers.
1. Response
1.1 Approach
Due to the potential quick migration of hazardous materials and the dangers associated with them, responders must approach the incident scene from a direction and in a manner that maximizes personal safety.
By quickly observing environmental conditions first responders should approach from:
- upwind
- uphill
- upstream
Unlike most emergency incidents, first responders must stop (before actual scene is reached) at what you estimate to be a safe distance (see 2004 ERG for more information).
Note: This stopping point may be different for each incident. It can be determined based upon previous knowledge and experience, dispatch information, reports from persons nearby or on scene, and observation while responding. When responding to fires it is also important to maintain a safe distance from the resulting smoke.
1.2 Identify
After stopping, responders should use binoculars (if available) to survey the scene and identify the substances involved using the clues discussed in the previous Module. While surveying the scene, first responders should look for:
- vapour clouds
- smoke
- environmental damage
- injured persons
- evidence of explosive devices
- secondary devices
- booby traps
- surrounding populations
- dispersion pathways
- suspicious individuals and circumstances
- specific container shapes
- placards
- dead vegetation, birds, insects (see 2004 ERG for more information)
A closer approach to the incident scene may be made only after a positive identification of the substance(s) is made and the conditions surrounding the incident indicate it is safe to do so.
1.3 Communicate
It is imperative that first responders communicate information gathered during the approach and the initial scene survey to the dispatcher or other off site agency to ensure appropriate actions are taken. If the responder fails to do so prior to initiating scene security or management, the information may never be relayed.
2. Scene Management
2.1 Incident Management System
The Incident Management System (IMS) is the framework necessary to manage the resources, personnel, apparatus, and equipment, used to mitigate the incident. Strategic decisions identify the overall approach to the incident, and operational decisions spell out the best use of those resources.
Experience has shown that those incidents managed in a systematic way are the most successful at achieving the intended goals. Incident management deals with the Incident Commander and staff making operational decisions, some strategic, others tactical in nature, and carefully allocating resources to implement them. As a first responder you need to understand the role of the IC as the ultimate decision maker responsible for the outcome of the incident.
Where a first responder is the first to arrive at a scene, that person takes on the role of Incident Commander (IC). Once a senior level person arrives, the role of IC is normally transferred to the senior officer. (Refer to departmental procedures/guidelines). During routine emergencies, first responders should follow a standard approach: performing size-up, choosing a strategy, implementing various tactics, and conducting ongoing evaluation.
In all Incident Management Systems the ‘span of control” or maximum number of people under one person’s control should fall between 3 and 7.
Regardless of the specific process used, first responders go through a number of similar steps in dealing with their response. Common steps include:
- conducting size-up
- setting incident priorities
- estimating potential incident course and harm
- choosing strategic goals and tactical objectives.
- evaluating the strategies and changing priorities
2.2 Incident Command Post
Upon arrival, the first responder should establish an incident command post (CP) at a safe distance. This location must be safe from toxic vapour clouds, run-off or potential explosions. The location of the command post must be relayed to the dispatcher and all subsequent activities should be coordinated through this command post. The first responder must be prepared to relocate the command post to a safer location if the deteriorating situation indicates that the threat is spreading or drifting towards the original location.
2.3 Reasons for Incident Management System (IMS)
Clear and strong command is needed to maintain consistent procedures and coordinated efforts toward positive incident control. This should eliminate independent decision making (free-lancing) and tunnel vision. In addition, unity of command is maintained and effective resource utilization is ensured. Establishing command provides leadership at the incident scene and increases responder safety. (In order to meet the requirements of Guidance Note 2-1 (11) issued by the Ministry of Labour - Fire Service Section 21 Committee, every fire department should develop and implement an Incident Management System).
IMS helps avoid:
- chaos and confusion
- uncoordinated efforts
- conflicting orders
- unclear roles and responsibilities IMS promotes:
- maximum efficiency of available resources
- safety of personnel
- elimination of free-lancing
- clearly defined and attained objectives
2.4 Implementing the Command Sequence
When implementing the Incident Management System, the following steps should be followed:
- first arriving person or supervisor establishes/assumes command
- establish a formal command post
- size up, considering incident priorities
- develop goals/objectives
- coordinate tactical operations
- evaluate
- develop the organizational structure
The following is a simplified model of an Incident Management System (IMS). Please refer to departmental procedures/guidelines for further details.
2.5 Functions of Command
The following are the functions of the Incident Commander:
- assume command (scene manager)
- analyze the situation Incident Commander Operations Logistics Planning Safety Liaison Information Staging Finance
- transmit initial on-scene report
- establish scene security
- perform size-up (incident assessment)
- develop strategic plans
- ensure scene coordination
- coordinate communication and safety
- alert other responders of hazards
- request additional resources (as needed)
- establish the necessary level of supervision
- assign tactical priorities
- acquire progress reports
- evaluate and re-evaluate efforts
- revise strategy plans as necessary
- ensure documentation of incident
2.6 Scene/Perimeter Security
After communicating initial information, first responders must try to establish a secure zone around the incident site. This may be difficult in the early stages of an incident, however entry to the area must be restricted to ensure the safety of first responders, subsequent injuries are not sustained and intentional tampering does not take place. Methods available to use for scene security include:
- establish road blocks
- post security
- mark off incident area (rope, barrier tape, etc.)
- establish single entry point
- establish media location point
Note: Additional resources will likely be required to ensure effective scene security. The policing authority should take charge of site security upon their arrival.
3. Protective Actions
Many times, hazardous materials incidents require first responders to initiate protective actions for the surrounding population. There are three primary protective actions available to us:
- isolation
- in-place sheltering
- evacuation
3.1 Isolation
Isolation is the process of keeping everyone away from the area if they are not directly involved in emergency operations. This task is performed first to establish control over the scene prior to other protective actions.
3.2 In-Place Sheltering
In-place sheltering (protection) requires people inside a building to remain inside until the danger has passed. This method is used when an evacuation cannot be performed, or when evacuation would cause greater risk to people than staying where they are.
Procedures for in-place protection include:
- close all doors and windows
- turn off all heating, cooling and ventilating systems
- seal any opening that does not have a closure
- stay as far away as possible from doors and windows
- maintain communication with responders if possible
The decision to perform population protective actions must be made considering the substances involved and their associated hazards, the actual or potential duration of the release, resources available to perform the protective action, and the risk posed to emergency responders.
Each incident has different circumstances and should be handled accordingly. Again, responders must be conscious of the circumstances surrounding the incident and be wary of potential secondary explosive/release devices placed by terrorists or disgruntled employees, while performing population protective actions.
In-place sheltering notifications can be made using one or more of the following methods:
- door-to-door
- radio/television
- telephone
- emergency vehicle loudspeakers
- community/neighborhood services
- public health notices
- internet
3.3 Evacuation
Evacuation is the process of moving all people from a threatened area to a safer place. Enough time must be available to perform evacuation procedures including warning and moving the people involved. A shelter location and transportation for those evacuated should be identified prior to implementing the evacuation. Evacuation notifications can be made using the same methods as for In-place sheltering.
The decision to evacuate or shelter in-place should be based on the following factors:
- Hazardous materials involved, including their characteristics and properties, amount, concentrations, physical state, and location of release.
- The population at risk. Items to consider are the resources required to implement the recommended protective action, including notification, movement/transportation, and possible relocation shelters.
- Time factors involved in the release. Considerations must be given to the rate of escalation of the incident and the estimated time required to implement the protective action.
- The effects of both present and projected weather conditions on the movement of the hazardous material.
- The capability to communicate with the population at risk.
- The capabilities of the Hazmat Response Team and other personnel to implement, control, monitor, and terminate the protective action.
3.4 Activating Resources
Consequence management is a response to an emergency that consists of government led coordination and implementation of measures intended to mitigate the damage, loss, hardship and suffering caused by acts of terrorism or hazardous materials.
In Canada’s system of emergency management, the Municipal/Community government must act first to attend to the public’s emergency needs. The Municipal/Community Emergency Response Plan (ERP) focuses on essential measures for protecting the public. Included in this ERP is a mechanism for notification and activation of Provincial resources when the local ERP is not able to handle the complexity of a terrorist or hazardous materials incident or if the emergency is under the provincial mandate. This is normally pursuant to a declaration of emergency by the head of a municipal council, which must be communicated to EMO through the Provincial Emergency Operations Centre.
The Provincial responsibilities include notifying the Federal government when Federal lands are involved and Federal Assistance is required. Only the province may request Federal Assistance. Depending on the nature of the emergency, a provincial minister may be delegated to act on behalf of the Premier. For example a toxic spill would fall under the Ministry of the Environment while an incident involving major highways or waterways would involve the Ministry of Transportation.
Participation by the Provincial or Federal ministries in the emergency is also dependent on who has the mandate for that kind of emergency. In the event of an act of terrorism, even if not formally requested, the RCMP would be involved because terrorism is a Federal mandate.
A major nuclear or radioactive emergency response would be coordinated by Emergency Management Ontario (EMO) with involvement of the Ministry Community Safety and Correctional Services, and the use of the Provincial Emergency Response Plan and the Provincial Nuclear Emergency Response Plan.
In the event of a large scale emergency the Premier of Ontario may declare a provincial emergency and formally request through the EMO, assistance from the Federal government Or the Federal government may get involved through the Canadian Safety Nuclear Commission, Health Canada, Natural Resources or any other appropriate Ministry.
The Federal government intervenes as requested or when the emergency comes under a Federal mandate.
During any suspected terrorist incident, because terrorism is under a Federal mandate, the RCMP is to be notified by local police through the OPP Duty Officer. The Integrated National Security Enforcement Team (INSET) links all federal agencies and is led by the RCMP.
Access to most Federal resources is coordinated through EMO. Municipal/community emergency management coordinators can contact EMO at any time during an emergency response or pending emergency for advice and liaison. However, actual Provincial and Federal assistance must be officially requested and coordinated through EMO.
To Report Emergencies/Request Assistance
The Duty Officer at EMO can be contacted on a 24 hours a day, 7 days a week basis at 1-877-314-3723 or 1-416-314- 3723.
Summary
When first responders trained to the awareness level respond to a hazardous materials or terrorism incident, they must be aware of several key factors. They must approach the incident safely, and communicate any actions taken to the dispatcher. They must follow the planned procedures and direction of the Incident Commander that results from the Incident Management System, in order to ensure that the incident is handled appropriately, and that safety of personnel is maximized.
Learning Checks Module 4
True or False. Circle T or F
| 1. | T | F | A close approach to an incident scene is required before identifying the presence of hazardous products. |
| 2. | T | F | An incident management system is required for only certain hazardous materials incident. |
| 3. | T | F | A first responder should always initiate scene security prior to communicating information to the dispatcher or other off-site authority or agency. |
| 4. | T | F | A command post must be established at a safe distance, to prevent the impact of exposure or explosion. |
| 5. | T | F | Incident size-up takes place continuously during hazardous materials incidents. |
Multiple Choice. Circle your answer.
6. The reason why first responders should approach an incident from upwind, uphill and upstream is to:
7. Which of the following is not a step in scene security:
8. IMS refers to:
9. Which of the following is not a reason to follow an IMS
10. Isolation refers to a protective action where people:
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