Law Enforcement Guide For Emergency Operations Page 1

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Law Enforcement Guide for Emergency OperationsPage 1ACKNOWLEDGMENT:The California Emergency Management Agency (CalEMA) gratefully acknowledges the valuable input andcollective expertise from the following members of the Law Enforcement Division Redbook RevisionCommittee who reviewed and approved the contents of this guide. Portions of this document are based onthe original work by the California Commission on Peace Officer Standards and Training Law EnforcementIncident Command System Project, and the 1995-99/2003 Special Revision Committee of law enforcementprofessionals appointed by CalEMA.Michael Castorina, Sergeant (Retired)Los Angeles County Sheriff’s DepartmentRick Linson, LieutenantCalifornia Highway PatrolDale Carnathan, OES Program AdministratorVentura County Sheriff’s DepartmentCharles Plummer, Sheriff (Retired)Alameda CountyJames Williams, Captain (Retired)Alameda County Sheriff’s DepartmentRichard Desmond, SergeantCalifornia Highway PatrolChris Carmine, Sergeant (Retired)Alameda County Sheriff’s DepartmentSteve Halbleib, LieutenantCalifornia Highway PatrolRon Kingsley, CaptainShasta County Sheriff’s DepartmentTerry Edinboro, Lieutenant Colonel (Retired)California National GuardRob Green, Lieutenant (Retired)Stanislaus County Sheriff’s DepartmentLouis Carmona, Lieutenant ColonelCalifornia National GuardNelson Beazley, Captain (Retired)Fresno County Sheriff’s DepartmentTim Bobitt, Senior Special Agent in Charge (Retired)California Department of JusticeMichael Cardwell, Deputy Chief (Retired)San Bernardino County Sheriff's DepartmentBob Praytor, Deputy Chief, FireCalifornia Emergency Management AgencyMike Kostas, LieutenantMarysville Police DepartmentRobert Gandy, Emergency Management InstructorCalifornia Emergency Management AgencyEd Laverone, CaptainSanta Clara County Sheriff’s DepartmentDennis L. Beene, Assistant Chief, LawCalifornia Emergency Management AgencyJoe Pecsi, Chief (Retired)Bishop Police DepartmentMatt Scharper, Deputy Chief, LawCalifornia Emergency Management AgencyDon Silverek, SergeantSonoma County Junior College DistrictRobert Gerber, Deputy Chief, LawCalifornia Emergency Management AgencyPaula Carr, Deputy Chief, LawCalifornia Emergency Management AgencyPaul E. Walters, Acting Chief, LawCalifornia Emergency Management AgencyEditor:Bruce Wilson, Assistant Chief, LawCalifornia Emergency Management AgencyPrepared by:Dacia Young, Emergency Services Coordinator, LawCalifornia Emergency Management Agency

Law Enforcement Guide for Emergency OperationsPage 2NOTES

Law Enforcement Guide for Emergency OperationsPage 3FOREWORDThis document, the California Law Enforcement Mutual Aid Plan, is intended to be acompanion guide to the state emergency plan. It is intended to be used as a guide for lawenforcement and emergency management planning, training, and response operations. LawEnforcement agencies can enhance their readiness capability and strategies utilizing the wellestablished statewide mutual aid system. As the leader in Mutual Aid, California continuallyreviews and refines each disciplines plan.This 2009 edition is the culmination of our continued refinement and compliance withSEMS/NIMS. At this juncture, the law enforcement community has come to agreement on theuse of one field-level emergency management system. The major law enforcement associationsin California, as well as numerous law enforcement professionals were consulted during therevision process of this guide. It is through consensus and collaboration that this guide ispresented for use.I would like to express my sincere appreciation to all the law enforcement professionals,departments and agencies who contributed to the development and enhancement of this guide.Tom MaruyamaDirector, Office of Statewide OperationsLaw Enforcement, Fire and Rescue, and Recovery DivisionsCalifornia Emergency Management Agency

Law Enforcement Guide for Emergency OperationsPage 4NOTES

Law Enforcement Guide for Emergency OperationsPage 5INTRODUCTION/PURPOSEThe California Emergency Management Agency’s original Law Enforcement Guide forEmergency Operations was developed in response to the need for standardization anduniformity of organization and response on the part of law enforcement agencies involved inmajor multi-jurisdictional and multi-agency incidents such as a civil disorder, technologicaldisaster, or natural disaster.The revised and expanded 2009 Law Enforcement Guide for Emergency Operations is designedto be a practical field-oriented guide to assist law enforcement personnel throughout the State ofCalifornia with implementation of the Field Level Incident Command System. The intendedprimary users of this guide are watch commanders and field supervisors. The guide can also bean excellent emergency response tool for law enforcement managers, as well as line officers anddeputies.This updated edition incorporates the concept and statutory requirement of the StandardizedEmergency Management System (SEMS). Additionally, the Law Enforcement IncidentCommand System (LEICS), as approved by the SEMS Law Enforcement Specialist Committee,is presented in this publication. Please disregard earlier editions of this guide.The Law Enforcement Guide for Emergency Operations is organized in a user-friendly formatconsisting of overview text, diagrams, organization charts, checklists, forms, and a glossary.Several sections are suitable for photocopying and distribution to field personnel.Our ultimate goal is to provide practical guidance for California law enforcement agencies inusing the SEMS and LEICS organizational framework for efficient and safe response,management, and coordination of major emergencies and disasters.Paul E. Walters, Acting ChiefLaw Enforcement DivisionState Law Enforcement Mutual Aid Chief

Law Enforcement Guide for Emergency OperationsPage 6TABLE OF CONTENTSSECTIONI.OVERVIEW OF THE STANDARDIZEDEMERGENCY MANAGEMENT SYSTEM. 10The Standardized Emergency Management System (SEMS)/Purpose of SEMS/Levelsof SEMS/Communications Between Emergency Operations Centers/DepartmentOperations Center and Incident Commander/Essential ManagementFunctions/Common Features of All Organizational Response Levels/Table of SEMSFunctions and ICS/Table of Local Government or Operational Area EOC/Table ofRegional/State EOCII.APPLYING THE INCIDENT COMMAND SYSTEM. 15Requirement to Use ICS/LEICS Training Standards/ICS is Recommended for Use inAny Incident/Examples of When ICS Should Be UsedCommon Pitfalls and Solutions in Emergency ResponseTransitional Steps/Distinctions Between Law Enforcement ICS and other Disciplines'ICS/Integrating LEICS with Other Disciplines/LEICS Advisors/ReimbursementInformation.III.LAW ENFORCEMENT INCIDENT COMMAND SYSTEM. 23Introduction/ICS Operating Requirements/Law Enforcement Incident Command System(LEICS)/Management Concepts/Common lities/Modular Organization/Unified CommandStructure/Primary Features of Unified Command/Advantages of Using UnifiedCommand/Action Planning/Manageable Span of Control/Pre-Designated IncidentFacilities/Comprehensive Resource Management/Check-In Procedures/IntegratedCommunications/Area CommandPosition Assignments and Responsibilities:Command Staff . 31Incident Commander (IC)/Deputy Incident Commander/Public Information Officer(PIO)/Incident Scribe/Safety Officer/Liaison Officer/Agency RepresentativesOperations Section. 34Operations Section OIC/Operations Dispatcher/Branch/Mission Group/Mobile FieldForce/Staging Officer/Air Operations Branch/Air Mission Group/Aviation SupportGroupPlanning/Intelligence Section. 36Planning/Intelligence Section OIC/Resources Unit (RESTAT)/Situation Unit(SITSTAT)/Field Observers/Casualty Information/Display Processor/WeatherObserver/Documentation Unit/Demobilization Unit/Technical Specialists

Law Enforcement Guide for Emergency OperationsPage 7Logistics Section. 41Logistics Section OIC/Security Officer/Service Branch/Communications Unit/MedicalUnit/Food Unit/Support Branch/Facilities Unit/Maintenance Unit/Ground SupportUnit/Supply Unit/Armorer/Personnel Branch/Personnel Unit/Check-InRecorder/Volunteer Services Unit/Mutual Aid UnitFinance/Administration Section . 49Finance/Administration Section OIC/Procurement Unit/Compensation ClaimsUnit/Compensations/Claims Specialists/Time Unit/Personnel Time Recorder/EquipmentTime RecorderLEICS Organization Charts. 53IV.MUTUAL AID RESPONSE / MOBILE FIELD FORCES . 56Law Enforcement Mutual Aid (LEMA) Response/Levels of Mutual Aid/Local MutualAid/Regional Mutual Aid/Statewide Mutual Aid/Day-to-Day Mutual Aid/PlannedEvents/Fifty Percent Guideline/Mission NumbersMutual Aid Response Mobile Field Force Concept. 57Purpose/The Need for a Mutual Aid Response Mobile FieldForce/Development/Operating Guidelines/Call-Out/Activation/Activation Protocol/AfterAction Reports/Communications/Mobile Field Force Kits/TrainingAdministrative Guidelines . 59Use of Force/Firearms/Officer-Involved Shootings/On-Duty Motor VehicleAccidents/Injuries Sustained On-Duty/Citizen ComplaintsFiscal Guidelines . 60Payroll/Illness/OvertimeMutual Aid Response Mobile Field Force Organization . 60Configuration/Mobile Field Force Capability/Personnel Commitment/Duration ofDeploymentMutual Aid Response Mobile Field Force Personnel . 62Standard Mobile Field Force Personnel: Mobile Field Force OIC/Mobile Field ForceDeputy OIC/Squad Sergeants/Car bile Field Force Personnel: Video Camera/Counter-Sniper/Prisoner TransportationTeamMutual Aid Response Mobile Field Force Member Equipment . 63Mutual Aid Response Mobile Field Force Equipment List . 64Mutual Aid Essentials . 65Guidelines for Requesting Mutual Aid . 65

Law Enforcement Guide for Emergency OperationsPage 8Guidelines for Receiving Mutual Aid . 66Crowd Control Squad Formation (With Drivers). 66Crowd Control Squad Formation (Without Drivers) . 67Modified Crowd Control Formation . 68V.INCIDENT ACTION PLAN. 69Incident Action Planning and Operations Planning/Overall Objectives/IncidentObjectives/Organization Chart/Assignment Lists/Resources Plan/CommunicationsPlan/Medical Plan/Facilities Traffic Plan/Safety Plan/Demobilization Plan/Elements of aCompleted Written Incident Action PlanComprehensive Operations Plans: Situation/Mission/Concept ofOperation/Execution/Administrative Instructions/Summary.VI.COMMUNICATIONS. 75California Law Enforcement Mutual Aid Radio System (CLEMARS)National Law Enforcement Mutual Aid Radio System (NALEMARS)Operating Procedures/General Operations/Identification/Monitor First/Use of RadioCodes/Encryption/CLEMARS/NALEMARS Frequency List/System Priorities/CommonOperating ViolationsANNEXESCritical Incident Response Checklists . 79Law Enforcement Mission Tasking Form . 80First Responder Responsibilities . 82Incident Command Post. 84Air Operations Checklist . 86Fire Checklist. 91Terrorism Response: CBRN Checklist. 92WMD/Post-Blast/Hazmat Checklist. 93Amber Alert Criteria Checklist. 95Non-family Abduction Checklist. 96Aircraft Crash Checklist . 97Earthquake Checklist . 99Civil Unrest/Disorder Checklist . 101Quarantine H&S Codes . 103LEICS FORMS. 107Overview Information for each LEICS Form. 107Form 201: Incident Briefing . 107Form 202: Incident Objectives . 107Form 203: Organization Assignments . 107Form 204: Division/Unit Assignment List . 107Form 207: Organization Chart. 107

Law Enforcement Guide for Emergency OperationsPage 9LEICS Forms Continued:Form 209: Public Information Summary/Incident Status. 107Form 211: Check-In Lists. 107Form 211P: Check-In List Personnel . 108Form 211E: Check-In List Equipment . 108Form 215: Incident Planning Worksheet. 108Form 220: Air Operations Worksheet/Summary. 108LEICS FORMS:Worksheets. 133RESOURCE TYPING . 109Purpose . 109Resource Definitions . 109General Personnel. 109Specialized Resources . 110Aviation Resources. 113Search and Rescue Resources. 115GLOSSARY OF TERMS . 120

Law Enforcement Guide for Emergency OperationsPage 10SECTION IOVERVIEW OF THE STANDARDIZED EMERGENCY MANAGEMENT SYSTEMThe Standardized Emergency Management System (SEMS) is the emergency managementorganization required by California statute, Government Code 8607(a) for emergency responseand disaster management in multi-agency and multi-jurisdiction emergencies. California localgovernments must use SEMS in emergency response and disaster management to be eligible forany available disaster reimbursement funding for its personnel related costs provided throughstate disaster assistance programs. SEMS incorporates the use of:The Incident Command System (ICS): Field level emergency management response systemand organization.Multi/Inter-Agency Coordination: The participation of agencies and disciplines involved atany level of the SEMS organization working together in a coordinated effort to facilitatedecisions for overall emergency response activities, including the sharing of critical resourcesand the prioritization of incidents.Mutual Aid Systems: Voluntarily provided local government services, resources and facilitieswhen emergency impacted jurisdiction resources are exhausted or inadequate.The Operational Area Concept: The management and application of resources of all politicalsubdivisions (cities and special districts) of a county.PURPOSE OF SEMS:SEMS was established to provide an effective and coordinated response to multi-agency andmulti-jurisdictional emergencies in California. By standardizing key components of theemergency management system, SEMS is intended to: Facilitate the flow of information within and between all levels of the system. Facilitate interaction and coordination among all responding agencies.The use of SEMS will improve the processes of mobilization, deployment, tracking, anddemobilization of needed mutual aid resources.The use of SEMS will reduce the incidence of ineffective coordination and communications,and avoid duplication of resource ordering in multi-agency and multi-jurisdiction responseactions.SEMS is designed to be flexible and adaptable to the varied types of disasters that occur inCalifornia and to meet the needs of all emergency responders.LEVELS OF SEMS:SEMS provides for five distinct organizational levels of emergency response and disastermanagement, which may be activated as necessary: Field Response Local Government Operational Area Regional State

Law Enforcement Guide for Emergency OperationsPage 11Field Response Level: Emergency response level where personnel and resources carry outtactical decisions and activities under the command of an appropriate authority in directresponse to an incident or threat.Local Government Level: The level that includes cities, counties, and special districts. Localgovernments manage and coordinate the overall emergency response and recovery activitieswithin their jurisdiction.Operational Area Level: An intermediate level of the state's emergency services organization,which includes the county and all political subdivisions situated within the county. Theoperational area manages and/or coordinates information, resources, and priorities among localgovernments within the Operational Area and serves as the coordination and communicationlink between the local government level and the regional level.Regional Level: The level that manages and coordinates information and resources amongoperational areas within the mutual aid region and between the operational areas and the statelevel. This level also coordinates overall state agency support for emergency response activitieswithin the region.State Level: The level that manages state resources in response to emergency needs of the otherlevels, and manages and coordinates mutual aid among the mutual aid regions and between theregional level and the state level. State level also serves as the initial coordination andcommunication link with the federal response system.COMMUNICATIONS BETWEEN EMERGENCY OPERATIONS CENTERS (EOC),DEPARTMENT OPERATIONS CENTERS (DOC) AND INCIDENT COMMANDER (IC):SEMS regulations require that upon activation of a Local Government Emergency OperationsCenter (EOC), communications and coordination will be established between the IncidentCommander and the response Department's Operations Center (DOC) to the EOC, or directlybetween the Incident Commander and the Local Government EOC.The regulations further require that communications and coordination be established between anactivated Local Government EOC and any state or local emergency response agency havingresponsibilities at an incident occurring within that local government's jurisdictional boundary.ICS field response organizations must establish communications with the local governmentlevel. The jurisdiction's dispatching procedures, communication capabilities, and local policies,will determine how the field level is linked to the local government level.In many instances, the ICS field response units will be linked primarily to its DOC havingjurisdictional responsibility for the incident. In such cases, the DOC retains agency-levelauthority over their assigned Incident Commander(s). The DOC is then responsible forcoordinating with the Local Government EOC.EOCDOCICP

Law Enforcement Guide for Emergency OperationsPage 12In some incidents, ICS field response organizations may have a direct communications link withthe Local Government EOC when it is activated. The ICS field unit may receive policy directionfrom the Local Government EOC in certain circumstances. Whether or not this direct linkageoccurs will depend upon the size of the emergency event, existing policies of the jurisdictionand the available lines of communication.ESSENTIAL MANAGEMENT FUNCTIONS:SEMS has five essential functions adopted from the Incident Command System. The fieldresponse level uses the five primary ICS functions: Command Operations Planning/Intelligence Logistics Finance/AdministrationAt the Local Government, Operational Area, Regional and State levels, the term management isappropriately substituted for the term command. The titles given the other functions remain thesame at all levels.The concept of using this structure within the SEMS Field Response organization is based onthe following: Develop the form of the organization to match the function or task to be performed. Staff only those functional elements that are required to perform the task. Observe the recommended span-of-control guidelines. Perform the function of any non-activated organizational element at the next highest level. Deactivate elements no longer required by the incident.COMMON FEATURES OF ALL ORGANIZATIONAL/RESPONSE LEVELS:SEMS has several features based on ICS. The field response level uses functions, principles, andcomponents of ICS as required in SEMS regulations.Many of these field response level features also are applicable at local government, operationalarea, regional and state levels. In addition, there are other ICS features that have application toall SEMS levels.Listed below are the features of ICS, which are applicable to all SEMS levels: Organizational Flexibility/Modular Organization Organizational Unity and Hierarchy of Command/Management Manageable Span of Control Personnel Accountability Common Terminology Compressive Resource Management Integrated Communications Action Planning

Law Enforcement Guide for Emergency OperationsPage 13SEMS Functions and The Incident Command SystemField Level ResponsePRIMARYSEMS/ICSFUNCTIONFIELD RESPONSE LEVELEOC LEVELSCommand/ManagementCommand is responsible fordirecting, ordering, and/orcontrolling of resources by virtueof explicit legal, agency ordelegated authority.Management is responsible foroverall emergency policy andcoordination through the joint effortsof governmental agencies andprivate organizations.OperationsResponsible for the coordinatedtactical response of all fieldoperations directly applicable to,or in support of, the missions(s)in accordance with the IncidentAction Plan.Responsible for coordinating alljurisdictional operations in supportof the response to the emergencythrough implementation of theorganizational level's action plan.Responsible for the collection,evaluation, documentation, anduse of information about theevaluation of the incident, andthe status of resources.Responsible for collecting,evaluating, and disseminatinginformation; developing theorganizational level's action plan incoordination with the otherfunctions, and maintainingdocumentation.Responsible for providingfacilities, services, personnel,equipment, and materials insupport of the incident.Responsible for providing facilities,services, personnel, equipment, andmaterials.Responsible for all financial andcost analysis aspects of theincident, and for anyadministrative aspects nothandled by the other functions.Responsible for financial activitiesand administrative aspects notassigned to the other ministration

Law Enforcement Guide for Emergency OperationsPage 14LOCAL GOVERNMENT OR OPERATIONAL AREA EOCFUNCTIONManagementSTAFFING CONSIDERATIONSCity/County administrative personnel, emergency management, fire,law enforcement is recommended for use in initial EOC activations.OperationsFire, and/or law enforcement, or emergency management generally willcoordinate these activities within the EOC during initial activations.Planning/IntelligenceEmergency Management, CAO, fire, law enforcement, planningdepartment, and other departments can contribute personnel dependingupon the nature of the emergency.LogisticsDepartments of General Services, or Public Works are good candidatesto provide personnel for this EOC function. Other departments also mayhave the background to manage or assist in this function.Finance/AdministrationCity/County CAO, finance departments are candidates for managingthis function within an EOC.REGIONAL/STATE EOCFUNCTIONSTAFFING CONSIDERATIONSManagementSOC Director – CalEMA Director, Assistant Director.REOC Director - Regional AdministratorsOperationsTo fill Section/Branch Positions: CalEMA, CalFire, Fire Marshall,CalEPA, DHS, CHP, CNG, EMSA, DMH, DSS, ARC, OSHPD, PUC,etc.Planning/IntelligenceCalEMA Staff, DOJ, CalFire, CNG, Caltrans, plus Technical advisorsas necessary from CDMG, DHS, etc.LogisticsFinance/AdministrationTo fill Section/Branch Positions: CalEMA, CNG, DPA, EDD, andDGSCalEMA, DOF

Law Enforcement Guide for Emergency OperationsPage 15SECTION IIAppyling the Incident Command SystemREQUIREMENT TO USE ICS:SEMS regulations state that where an agency has jurisdictional authority over a multiple-agencyincident, it shall organize the field response using ICS. An incident is defined as an occurrenceor event, human-caused or by natural phenomena, which requires action by emergency responsepersonnel to prevent or minimize loss of life or damage to property, including natural resources.In the most rigid sense, ICS within the SEMS Regulations need only be used in incidents, whichrequire multiple agencies, or multiple jurisdictional involvement whether they are singlediscipline (e.g., all fire services or all law enforcement) or multi-discipline. Establishing the ICSwould be required therefore,whenever an emergency incident involves more than one responseagency.LEICS TRAINING STANDARDS:As use of the ICS in the law enforcement profession matures, new training standards may bedeveloped to meet specific needs. At the present time there are two principle training referencedocuments that outline the acceptable SEMS/ICS curriculum approved by the Commission onPeace Officer Standards and Training (POST).POST requires that a law enforcement agency train its personnel according to the curriculum setforth in the SEMS Approved Course of Instruction (which provides a generic, multi-disciplineSEMS overview) and the Cal EMA Law Enforcement Guide for Emergency Operations (whichprovides a law enforcement-specific field level LEICS guidance). Together these documentswill provide an agency with enough information to train and implement ICS for emergencyresponse with the added benefit of focusing on law enforcement organizational concerns.Will it be necessary to establish minimum qualifications and certifications for law enforcementICS practitioners? No; not at the present time

Law Enforcement Guide for Emergency Operations Page 3 FOREWORD This document, the California Law Enforcement Mutual Aid Plan, is intended to be a companion guide to the state emergency plan. It is intended to be used as a guide for law enforcement and emergency management planning, training, and response operations. Law

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