Emergency Operations Center Skillsets User Guide
National Incident Management SystemEmergency OperationsCenter Skillsets User GuideSeptember 2018FEMA
Emergency Operations Center (EOC) Skillsets User GuideContentsEOC Skillsets User Guide . 1Introduction . 1Background . 2How to Use EOC Skillsets . 3Step 1: Determine Your EOC Organizational Structure . 3Step 2: Create EOC PTBs . 4Step 3: Use EOC PTBs to Qualify Personnel . 6Appendices . 7Appendix 1: EOC Skillsets Format . 7Appendix 2: EOC Skillsets with Task Categories . 9Appendix 3: Organizational Structure/Skillset Alignment Examples . 11Appendix 4: Skillsets/Organizational Structure Crosswalk . 18Appendix 5: Acronyms . 19Appendix 6: Reference List . 20ii
Emergency Operations Center (EOC) Skillsets User GuideEOC Skillsets User GuideIntroductionEmergency Operations Centers (EOC) across the Nation play a critical role in managingincidents large and small. By bringing together representatives from diverse organizations,EOCs1 facilitate the flow of resources and information across organizational lines. EOCs varywidely—some support multiple disciplines in a single jurisdiction, and some support a singlediscipline across multiple jurisdictions. All operate under varying authorities, with diverseresources and missions. EOC Skillsets provide a flexible approach to EOC qualifications, lettingyou, as an EOC leader, build position qualifications according to your organization’s needs andresources.The diversity among EOCs can create challenges when sharing personnel across EOCorganizations, which may use different titles for positions performing similar functions or assigndifferent responsibilities to similarly titled positions. As a part of the National QualificationSystem (NQS), EOC Skillsets support standardized qualifications for EOC personnel, whileremaining flexible enough to accommodate EOCs of all sizes and kinds. You can mix and matchskillsets to create the right combination of skills and abilities for your EOC. Additionally, theEOC Skillsets also help create a national vocabulary so that you can clearly communicate desiredcapabilities when you need to request additional personnel to support your EOC.This EOC Skillsets User Guide is for use by EOC leaders at any level of government and withinthe private sector and nongovernmental organizations (NGO). It explains what EOC Skillsets areand how to use them to construct EOC Position Task Books (PTB), supporting the qualificationand certification of EOC personnel.The purpose of EOC Skillsets is not to replace existing qualification systems, but to provideminimum baselines when qualifications do not exist. Using these skillsets allows you to build thecapabilities and qualifications of EOC personnel, and, in doing so, help improve theprofessionalization of EOC personnel and contribute to the resiliency of our Nation.1Because incident support is conducted in a wide variety of different facilities, as well as virtual structures, theNational Incident Management System (NIMS) and supporting documents use the term “EOC” to refer to all suchfacilities, including emergency coordination centers.1
Emergency Operations Center (EOC) Skillsets User GuideBackgroundThe National Incident Management System (NIMS) describes standard structures and vocabularyto enable incident personnel from across the Nation to work together to save lives, stabilizeincidents, and protect property and the environment. A performance-based approach to personnelqualifications ensures the capabilities of personnel to perform in incident-related positions. TheNIMS Guideline for the National Qualification System provides guidance for organizationsestablishing performance-based qualifications processes, including personnel qualification,certification, and credentialing.National Qualification System (NQS)The NQS provides jurisdictions and organizations with guidance to certify their personnel according tonational baseline qualifications. Through NQS, FEMA is developing common terminology, templates andother tools, and a standard approach for qualifying, certifying, and credentialing deployable incidentpersonnel—enabling mutual aid partners to communicate resource needs quickly and precisely.2On-scene personnel use the Incident Command System (ICS), which defines common positiontitles and responsibilities, enabling people from different organizations or jurisdictions toseamlessly integrate into a common incident structure.EOC personnel support on-scene actions and, like on-scene personnel, can be shared acrossorganizational and jurisdictional lines. Unlike on-scene personnel, however, there is no nationwide structure like ICS guiding all EOCs. Instead, EOCs across the nation define their ownpositions, processes, and structures. This diversity is necessary, given the unique missions,authorities, and resources of EOCs, but it can create challenges for EOC leaders in requestingand sending personnel through mutual aid. FEMA developed the EOC Skillsets to help relievethese challenges.NIMS structures are adaptable to any situation. You, as an EOC leader, are best positioned toshape your organization based on its mission and resources. EOC Skillsets define tasksassociated with common EOC functions, giving you building blocks to define qualifications foryour personnel, no matter what organizational structure or position titles you use. EOC Skillsetsalso facilitate mutual aid by establishing common terminology for defining requirements whenrequesting personnel, while remaining flexible enough to accommodate the diversity of EOCorganizational structures across the Nation.Regardless of EOC structure, EOC personnel typically perform these common functions: Collect, analyze, and share information; Support resource needs and requests, including allocation and tracking; Coordinate plans and determine current and future needs; and In some cases, provide strategic coordination and policy direction.EOC Skillsets break these functions down into discrete responsibilities aligned withdemonstrable tasks that leaders can use to build EOC PTBs, qualify personnel, and requestsupport.22For additional information on NQS, see www.fema.gov/national-qualification-system
Emergency Operations Center (EOC) Skillsets User GuideHow to Use EOC SkillsetsAs an EOC leader seeking to qualify your personnel and ensure they are prepared to performtheir incident responsibilities, you can choose which skillsets or combination of skillsets toassign to specific positions in your EOC. To do this, follow the steps outlined in Table 1.Table 1: Steps for Using EOC SkillsetsStepsStep 1: Determine Your EOCOrganizational StructureStep 2: Create EOC PTBsStep 3: Use EOC PTBs toQualify PersonnelSpecific Actions Determine the structure and processes that best suit your EOC’sauthorities, resources, and mission Align EOC Skillsets with the positions in your organizationalstructure Determine whether to add additional tasks to individual skillsets Add evaluation forms and other documentation to complete thetask books Issue EOC PTBs to personnel and begin the qualification processAt the end of this process, you will be able to qualify EOC personnel based on your EOC’sunique needs.Step 1: Determine Your EOC Organizational StructureEOCs vary in their missions, authorities, and resources. Some EOCs have an incident supportrole, while others lead incident management efforts. Still others change roles according to thetype of incident. EOC structures vary accordingly, and NIMS does not promote a single EOCorganizational model, nor any EOC position titles or position descriptions. If your EOC alreadyhas an established structure, proceed to Step 2.Table 2 describes three types of EOC organizational structures described in NIMS, along withsome of the benefits of each.3 These examples are not mandatory, definitive, or exclusive. YourEOC may use one of these structures, a combination of elements from different structures, or astructure not listed here. Each type of structure has advantages, so it is up to you to determinewhat works best for your EOC.3For additional information and details on these structures, see the following sections of NIMS: Command andCoordination: Emergency Operations Centers (EOC), pages 35-39, and Appendix B: EOC Organizations, pages116-123; system.3
Emergency Operations Center (EOC) Skillsets User GuideTable 2: Sample Types of EOC Organizational StructuresStructure TypeBenefitsICS or ICS-like StructureThe ICS organizational structure is familiar to those with ICS training. It mostclosely aligns with the structure used for on-scene incident management.Incident Support ModelThis structure puts the EOC director4 in direct contact with those conductingsituational awareness and information management. It streamlines resourcesourcing, ordering, and tracking.Departmental StructureBy operating in the context of their normal relationships, department/agencyrepresentatives can function in the EOC with minimal preparation and startuptime.EOC directors expand or contract their organizational structures based on available personneland the incident’s needs. Some incidents might require multiple people to perform a singlefunction; in other situations, a single person might perform multiple functions. You shouldconsider both minimum and maximum staffing levels in your EOC when determining positionresponsibilities and required skills.Step 2: Create EOC PTBsOnce you have determined the organizational structure that best fits your EOC reportingstructure and functional alignment, use the skillsets to build EOC PTBs for each position. Thisprocess involves three actions:1. Align the EOC Skillsets with your organizational structure2. Determine whether to add additional tasks to individual skillsets3. Add evaluation forms and other documentation to complete the task booksHow Are EOC Skillsets Different from PTBs?Many incident personnel are already familiar with PTBs, which define demonstrable tasks for definedpositions. Performing these tasks supports a person’s qualification for a position.Like PTBs, EOC Skillsets establish minimum performance criteria. However, unlike on-scene positions,which are defined through ICS, EOC positions have no standard definitions or PTBs. Instead, EOCleaders can mix and match EOC Skillsets to build custom EOC PTBs that align with the unique roles andresponsibilities of positions in their EOC. This allows EOC leaders to qualify their personnel with thecombination of skills necessary to perform the EOC’s functions.Action 1: Align the EOC Skillsets with your organizational structureAs an EOC leader, you determine which skillsets your personnel need to achieve the EOC’smission. There are 17 functional skillsets, which determine what a position will do, and threelevel of responsibility skillsets, which determine where in your structure the position falls. TheseThe term “EOC director” is used throughout this document to refer to the individual who heads the team thatworks in an EOC when it is activated. In actual practice, this position may have a variety of titles, such as EOCManager or EOC Coordinator, depending on the plans and procedures of the jurisdiction/organization.44
Emergency Operations Center (EOC) Skillsets User Guide20 skillsets can be mixed and matched to create thousands of unique combinations in order toaccommodate the diversity of EOCs across the Nation. Ultimately, you decide what your EOCneeds. Table 3 presents a list of the skillsets, and Appendix 2 describes them in greater detail.Table 3: EOC SkillsetsLevel of ResponsibilityCoordination and Individual ContributionLeadershipPolicy and DirectionFunctionAction TrackingPublic Affairs CoordinationCenter ManagementRecovery CoordinationDocument and Records ManagementResource Ordering and AcquiringEOC Facility ManagementResource SourcingFinanceResource TrackingLegal CounselingSafety AdvisingOrganizational RepresentationSituational AwarenessPerformance ImprovementUnderstanding the Resource RequirementPlanningAs you group skillsets together to align position responsibilities and build your desired reportingstructure, consider the following guidelines: You can assign the same skillset to multiple positions. You can assign multiple skillsets to a single position. You should assign a level of responsibility skillset to every position. Assign Coordination and Individual Contribution to every position in your EOC. Additionally, assign the Leadership skillset to all supervisory positions in your EOC. Many organizations do not consider Multiagency Coordination Group (MACGroup)/Policy Group members as part of the EOC staff, in which case those individualsshould be assigned the Policy and Direction skillset, not the Coordination and IndividualContribution skillset.Appendices 3 and 4 provide examples of EOC Skillsets aligned with various organizationalstructures.5
Emergency Operations Center (EOC) Skillsets User GuideTip: When aligning skillsets with positions, consider both personnel roles/responsibilities and your EOC’sstandard processes, such as resource ordering. This can provide a helpful check of your alignment. SeeAppendix 3 for examples.Action 2: Determine whether to add additional tasks to individual skillsetsEOC Skillsets establish minimum criteria for EOC qualifications—they do not cover the fullrange of activities that EOC personnel perform. As an EOC leader, you can add tasks to thebaseline skillsets. A fully compiled EOC PTB describes the full range of roles andresponsibilities for the position, including all significant tasks a trainee should perform to bequalified in that position.Tips for Compiling an EOC PTB– Include a level of responsibility. All PTBs include either:1) the Coordination and Individual Contribution skillset,2) the Coordination and Individual Contribution and the Leadership skillsets, or3) the Policy and Direction skillset.– Skillset order is not important. Evaluators can evaluate tasks in any order, so the order in which theskillsets appear in the EOC PTB does not matter.– Use any title that meets your needs. Position names vary across the country—use the title that makesthe most sense for your organization.Action 3: Add evaluation forms and other documentation to complete the task bookIn addition to tasks, PTBs also include evaluation forms, guidanceon how to use the PTB, and additional qualification requirements(such as training courses or physical and medical fitnessrequirements). This helps ensure consistency in qualificationprocesses and standards beyond demonstrable tasks. You can addorganization-specific requirements and processes to the standardEOC PTB introductory language5 or use the template as is.Once you have added any evaluation sheets and introductorylanguage to the skillsets, you have created an EOC PTB similar toan NQS incident management PTB. See Figure 1.Step 3: Use EOC PTBs to Qualify PersonnelAn EOC PTB is a tool to support your EOC’s qualification,certification, and credentialing processes. As with fieldFigure 1: EOC PTB for apositions, qualified evaluators assess trainees during incidents,nonsupervisory, nonexercises, and other work situations and sign off as the traineePolicy Group positiondemonstrates completion of each task. Once all tasks arecomplete, the trainee submits the completed PTB and proof of completion of any trainingrequirements6 for final approval, according to your EOC’s qualification review processes.5To see EOC PTB introductory language and find additional information on evaluating PTB completion, ystem.6 EOC skillsets do not specify accompanying training courses, but FEMA provides training guidance through theNIMS Training Program. See https://training.fema.gov/nims/ for more information.6
Emergency Operations Center (EOC) Skillsets User GuideAppendicesAppendix 1: EOC Skillsets FormatEOC Skillsets contain the following sections, as shown in Figure 2.Figure 2: Example EOC SkillsetSkillset Title: The skillset title reflects the function or level of responsibility described in theskillset.Task Categories: These items summarize groups of similar tasks in the skillset.Tasks: These are specific, demonstrable actions necessary for successful performance of askillset. Trainees (people seeking to complete a task book) must demonstrate completion of all7
Emergency Operations Center (EOC) Skillsets User Guidenumbered tasks. You, as the EOC leader, may add additional tasks or make the criteria stricter toaddress specific needs, hazards, or risks within your jurisdiction, organization, or agency.Bulleted statements below tasks provide examples or clarification; the trainee does not need todemonstrate all bulleted items in order to complete the task.Codes: Each task has at least one code indicating the circumstances in which the trainee canperform the task for evaluation. If a task has multiple codes, the evaluator may evaluate in any ofthose circumstances; the trainee does not have to perform in all listed circumstances. Code C: Task performed in training or classroom setting, including seminars and workshops. Code E: Task performed during a full-scale exercise with equipment. Code F: Task performed during a functional exercise. Code I: Task performed during a real-world incident or event. Examples include oil spill, searchand rescue operation, hazardous materials (hazmat) response, fire, and emergency ornonemergency (planned or unplanned) events. Code J: Task performed as part of day-to-day job duties. Code T: Task performed during a tabletop exercise. Code R: Task performed very rarely and required only if applicable to the incident. TheAuthority Having Jurisdiction (AHJ) can use this when adding tasks to a skillset.Evaluation Record Number and Evaluator Initials and Date: The evaluator uses these spaces todocument when the trainee completes the task. The AHJ evaluates as if the EOC PTB were astandard PTB and includes corresponding evaluation forms as necessary. See the NIMSGuideline for the National Qualification System and EOC PTB introductory language forinformation on the role of evaluators and the PTB certification process.8
Emergency Operations Center (EOC) Skillsets User GuideAppendix 2: EOC Skillsets with Task CategoriesTable 4 below describes each skillset and its associated tasks.Table 4: EOC Skillsets with Task CategoriesSkillset TitleDescriptionTask CategoriesCommon tasks related to individualaccountability and coordination that applyto all EOC positions Complete common coordination andaccountability tasks associated with allpositions within the EOCGeneric leadership tasks that apply toanyone in an EOC leadership position Be proficient in the job, both technically andas a leader Supervise staff to ensure understanding andaccomplishment of duties and tasks Coordinate to foster unity of effortPolicy andDirectionTasks suitable for MAC Group/PolicyGroup roles, to support coordinatedincident management among all parties Demonstrate an understanding of theauthorities, policies, priorities, capabilities,constraints, and limitations of theorganization/jurisdiction you represent Demonstrate an understanding of coordinatedresponse/Unified Command and the roles andresponsibilities of the parties involvedAction TrackingTasks for communicating and trackingaction items through resolution Perform action trackingCenterManagementTasks related to overseeing all centeractivities Establish EOC support for incident/event Coordinate EOC activities Ensure proper support for resource needs andrequests, including allocation and tracking Ensure development and coordination ofplans Ensure collection, analysis, and sharing ofinformation internally and externallyDocument andRecordsManagementTasks for gathering, handling, sharing, andarchiving incident documentation Collect and store documents and records Provide documents and records upon requestEOC FacilityManagementTasks associated with the operational andlogistical management of the EOC facility Ensure that EOC infrastructure is operational Support the needs of EOC personnel Ensure security of the EOCFinanceTasks related to EOC procurement policiesand fiscal management activities Administer financial management forjurisdictional expenditures Advise EOC leadership and staff on financialmatters associated with jurisdictional activitiesLegal CounselingTasks for advising EOC personnel onrelevant laws and regulations Advise EOC leadership and staff on legalmatters and provide other legal servicesCoordination andIndividualContributionLeadershipContinued on next page9
Emergency Operations Center (EOC) Skillsets User GuideSkillset TitleDescriptionTask CategoriesOrganizationalRepresentationTasks associated with representing yourorganization in the EOC to support incidentoperations Represent your organization and support EOCactivities Understand discipline-specific resourcestreamsPerformanceImprovementTasks for collecting and analyzinginformation about EOC operations tosupport process and performanceimprovements during and after an incident Collect and analyze information regardingEOC activation and activities Suggest process improvements and solutionsduring EOC operations Support process improvement following EOCdeactivationTasks focused on developing incidentspecific plans Reference pre-incident plans Develop and write EOC action plans and otherincident-specific plans Disseminate plans Facilitate the ongoing planning processPublic AffairsCoordinationTasks for working with the media anddisseminating information to the public Manage EOC-related efforts to provideinformation and warning to the public Advise the EOC Policy Group, leadership, andpersonnel about public information andwarningRecoveryCoordinationTasks focused on understanding theincident’s impact on the community andpreparing for long-term recovery Understand the complexities of recovery Demonstrate an understanding of communityimpacts Prepare for long-term recoveryResource Orderingand AcquiringTasks for understanding how to order andacquire resources Order/request resourcesResource SourcingTasks for understanding resource optionsin order to acquire resources to supportincident operations Understand potential sources Develop, evaluate, and implement courses ofaction for resource fulfillmentResource TrackingTasks for tracking acquired resources frommobilization through demobilization Track resourcesSafety AdvisingTasks focused on communication andfostering safety within the EOC Promote the safety of EOC personnelSituationalAwarenessTasks for gathering and analyzing anincident’s situational information to informEOC actions and decision-making Gather data and information Analyze data and information Disseminate informationUnderstanding theResourceRequirementTasks for gathering and understandingresource needs in order to communicateresource specifications Understand and validate the resourcerequirement Communicate requirement in plain languageand use national standards and commonterminologyPlanning10
Emergency Operations Center (EOC) Skillsets User GuideAppendix 3: Organizational Structure/Skillset Alignment ExamplesThis appendix contains three examples that each use slightly different lenses to match skillsets topositions. The first two examples demonstrate how EOC leaders use skillsets in EOCs withdiffering organizational structures, staffing levels, and missions. The third example shows thevariation in resource management-related skillsets in different EOCs. All approaches have thesame goal: to assign EOC personnel the skillsets they need to be successful in their duties.Example 1: Aligning Skillsets with an ICS-like EOCPerson A is the director of an EOC that is configured based on the ICS (Step 1). The OperationsCoordination Section is made up of organizational representatives from various EmergencySupport Functions (ESF). The director typically has one person assigned to coordinate andsupport the ESF representatives and five additional personnel organized according to thestructure shown in Figure 3.Figure 3: EOC Organizational Structure with Emergency Support Functions (ESF)The director now wants to align the EOC Skillsets with the positions in this EOC (Step 2). Sincethe EOC uses an ICS-like structure, the director uses Appendix 4, Table 8 as a starting point forskillset alignment. However, this EOC uses a resource ordering process that differs from thestandard ICS process. In this EOC, the Logistics Coordination Section tracks resources, and theOperations Coordination Section Chief determines the best source for resources. After movingthose skillsets accordingly, the EOC director completes the skillset/position alignment, as shownin Figure 4. The director can now issue the EOC PTBs to the appropriate personnel and begin thequalification process (Step 3).11
Emergency Operations Center (EOC) Skillsets User GuideFigure 4: EOC Organizational Structure with Skillsets Aligned12
Emergency Operations Center (EOC) Skillsets User GuideExample 2: Situational Awareness Section and Planning Support SectionPerson B is the director of an EOC that focuses on information, planning, and resources support.The EOC uses an Incident Support Model matching the model described in NIMS (Step 1). Thedirector uses Appendix 4, Table 7 as a starting point to align skillsets with the responsibilities ofthe EOC sections. During activation, the director works directly with the Policy Group and has adeputy to oversee EOC operations. Therefore, the director assigns himself the Policy andDirection level of responsibility skillset and the deputy receives the Leadership and Coordinationand Individual Contribution skillsets.Figure 5: Incident Support Model Section Skillset AlignmentThe director, who has access to enough personnel to assign multiple people to each section, nowstarts to align the skillsets with individual positions, starting in the Situational Awareness andPlanning Support sections (Step 2). When these sections are fully staffed, the director has fivepeople in the Situational Awareness Section and six people in the Planning Support Section (seeTables 5 and 6).13
Emergency Operations Center (EOC) Skillsets User GuideSituational Awareness Section: This section has one leader and four staff positions. Thedirector assigns the Section leader all of the section’s skillsets plus the Leadership skillset. Thestaff positions receive skillsets associated with the functions they perform. See Table 5.Planning Support Section: In this section, the director has one supervisor, one RecoveryCoordination point of contact (POC), and various support positions. The director assigns thesection leader position the Leadership skillset and all other skillsets relevant to the section exceptthe Recovery Coordination skillset. The section leader does not have to be qualified in thatskillset as long as a qualified person occupies the Recovery Coordination POC position. Thedirector also assigns skillsets to the section’s staff positions. See Table 6.The EOC director can now issue the EOC PTBs to the appropriate personnel and begin thequalification process (Step 3).Table 5: Situational Awareness SectionSituational Awareness SectionRoleSkillsetsSituational AwarenessSection Leader Leadership, Document and Records Management, SituationalAwareness, Coordination and Individual ContributionSituational AwarenessSpecialist Document and Records Management, Situational Awareness,Coordination and Individual ContributionInformation AnalysisSpecialistInformation AnalysisSpecialistInformation ManagementSupport Specialist Situational Awareness, Coordination and Individual Contribution Situational Awareness, Coordination and Individual Contribution Document and Records Management, Coordination and IndividualContributionTable 6: Planning Support SectionPlanning Support SectionRole14SkillsetsPlanning Support SectionLeader Leadership, Planning, Performance Improvement, Document andRecords Management, Coordination and Individual ContributionRecovery Point of Contact Recovery Coordination, Performance Improvement, Coordination andIndividual ContributionFuture Planning Specialist Planning, Performance Improvement, Coordination and IndividualContributionFuture Planning Specialist Planning, Document and Records Management, Coordination andIndividual ContributionCurrent Planning Specialist Planning, Coordination and Individual ContributionPerformance ImprovementSpecialist Document and Records Management, Performance Improvement,Coordination and Individual Contribution
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Emergency Operations Center (EOC) Skillsets User Guide . 4 . Table 2: Sample Types of EOC Organizational Structures . Structure Type Benefits . ICS or ICS-like Structure The ICS organizational structure is familiar to those with ICS training. It most closely aligns with the structure used for on-scene inc
Work Breakdown Structure Resource Planning Template Project Name Version The Work Breakdown Structure Resource Planning Template provides a matrix of WBS tasks with the estimated duration of each task in hours with % of time required by the various skillsets to contribute to the tasks, summarized by total hours required for those skillsets.
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