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FIRE ENGINEERING May 2010 71www.FireEngineering.com

BY W I L L I AM SHOULD I S

T HE EMERGENCY OPERATIONS CENTER (EOC) IS A

generic tool for coordinating on-scene operations

during low-frequency and high-risk incidents. Every

community, large and small, faces the likelihood of an over-

whelming emergency event. Often, these incidents will lack a

common operating picture and can transcend political juris-

dictional boundaries. The ability of a community to acquire

and allocate necessary resources hinges on being prepared.

The roots of a community’s “all-hazard” preparedness program

involve intergovernmental relations and a detailed planning

process that includes mutual-aid assistance agreements. Em-

phasis must be on technical information based on an accurate

assessment of risk, vulnerability, and capabilities. Resources

will be scarce during a large-scale incident, and the EOC can

identify and obtain additional assets that are not always avail-

able to the on-scene incident commander (IC).

The EOC mobilizes people and equipment to handle

incidents that are outside the ability of any single agency to

resolve. The purpose of the EOC is to ensure that depart-

mental response capabilities are maintained and authoritative

information is disseminated to the general public. Capturing

important incident-related information at an EOC will provide

senior offi cials with data to set strategic directions; establish

priorities; allocate resources; and, under extreme circum-

stances, declare a disaster. These actions allow fi eld command-

ers to focus on the incident objectives while the EOC handles

supportive endeavors.

The EOC is an integral component of the larger Multiagency

Coordination System (MACS). The entire MACS consists of ini-

tial dispatch, on-scene command, coordination resource cen-

ters, coordination entities, and the EOC. Often, major incidents

require the activation of all components of the MACS during

the response and recovery phases. The establishment of an

EOC is a “time-tested” link in a stronger public safety system

when the use of critical resources requires decisive actions.

The EOC serves as a message center among the IC, elected

offi cials, and nearby jurisdictions. Under ideal conditions, the

EOC is centrally located where representatives from various

agencies can gather during an emergency. The EOC becomes

the pipeline of information for organizations that work behind

the scenes to protect the population at risk during a potential

disaster.

An important criterion for selecting an EOC is easy access

for agency representatives and elected offi cials. Large displays

assist in the transfer of critical information and create a com-

mon operating picture for organizations staffi ng the EOC.

TYPES OF EOCs Fixed Facility

The primary EOC is a central location usually found in an

existing multipurpose government building that will reduce

delays in the arrival of senior offi cials and staff personnel.

Usually the EOC is a permanent location with permanent

equipment. In addition to the main location, it is important for

fi nancial and logistical reasons to identify potential alternate

sites for reliability and suitability as part of an overall com-

munity risk management plan. It would be chaotic if, during

an emergency event, the center were damaged or had to be

evacuated. Local government should follow the federal govern-

ment guidelines that suggest a need for Continuity of Govern-

ment and Continuity of Operations (COOP). It should take no

longer than 12 hours to “ramp up,” or convert, a backup facil-

The Emergency Operations Center:

A Vital Preparedness Tool

The ability of a community to acquire and allocate

necessary resources hinges on being prepared.

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72 May 2010 FIRE ENGINEERING www.FireEngineering.com

● EOC

ity into a fully operable (hot) facility. All communities should

have a checklist for doing this.

Mobile EOC

The mobile EOC is used when a disaster is widespread

and there is an urgent need for a face-to-face briefi ng with

the incident management team (IMT) to reduce confusion.

The fl exibility of a mobile EOC allows for optimal interaction

between the IMT and the Policy Group when jointly review-

ing critical information. A tractor-trailer-style vehicle offers a

degree of comfort and a full communications center with soft-

ware that can tie together radio frequencies. Vehicles should

have linkage to the Internet, and most have a security camera

system that monitors all six sides. The mobile EOC allows

for planning from various locations and can provide valuable

insight for executive decision makers in a stable situation with

short-term recovery challenges.

Virtual EOC

This innovative concept has combined with “next-technolo-

gy” to replace the traditional “brick-and-mortar” EOC facility. A

virtual EOC is a state-of-the-art emergency management solu-

tion that exists solely or partially in cyberspace with private

networks and satellite communication. Remote locations will

reduce the refl ex time and limit vulnerability that exists when

all senior offi cials are assembled at a central location. With a

virtual EOC, authorized individuals have anytime, anywhere

access with a user name, password, and multiple secure server

with software application to a high-tech terminal that can

provide a higher-level knowledge of emergency management

principles. A technical specialist can be provided for a global

perspective on specifi c hazards and mitigation steps needed

in a local community. Smartphones, three-dimensional digital

blueprints to improve visualization features, make the visions

of yesterday today’s reality.

In any type of EOC, whenever a complex incident or wide-

spread disaster strikes a community, the efforts of traditional

and nontraditional fi rst responders [for example, a community

emergency response team (CERT) must be closely coordi-

nated and fully supported]. This is essential to managing the

numerous resources from different disciplines. The reporting

relationship between the EOC and the IC is important to avoid

confl icts, confusion, and duplication of efforts on the front

line. The staff at an EOC will need different competencies

based on the kind of damage or destruction caused by a man-

made or natural disaster. After-action reports from major inci-

dents clearly reveal that local resources will be overwhelmed

and will require external assistance. History has shown that

there can be a serious disconnect between the IC and the EOC

when a joint planning process is not practiced. The EOC will

fail in its unique mission without adequate and accurate infor-

mation. The EOC staff and the IC need suffi cient time to create

a meaningful plan of action based on factual data. The EOC

is responsible for organizations’ working together and being

aware of one another’s mission.

Just as the IC needs a stationary incident command post

(ICP) for effectiveness at the emergency scene, a single EOC

facility that is well-designed and suffi ciently staffed will im-

prove coordination and support endeavors. Any major emer-

gency situation can cause large losses. A partnership between

the EOC and the IC will protect lives and property and will

minimize the impact of response and recovery problems.

ESSENTIAL FUNCTIONS OF THE EOC The EOC depends on maintaining situational awareness.

Planning enables agencies’ representatives to focus on vital

services to maintain the safety and well-being of the public at

risk. The proper time to develop and practice an emergency

operation plan (EOP) is before a community suffers a high-

risk/low-frequency incident. Document the following essential

functions during EOC activation to ensure a fair distribution of

resources:

• Damage assessment reports.

• Resources, acquired and used.

• Media and public requests for assistance.

• Accounting of public safety expenses.

• Response plan for providing evacuation and sheltering.

• Support services for food, water, ice, and utilities.

• Incident log (ICS #214) form.

ORGANIZATIONAL STRUCTURE OF THE EOC EOCs exist in many forms, and there is no single organi-

zational structure that is correct for all jurisdictions. The key

is to maximize the staff’s efforts and allow decision making

at the lowest practical level. Presidential Directive #5, which

outlines “Command and Management” procedures, does not

mandate that any community adopt any particular model as its

organizational structure. However, in the future, federal grant

money may be linked to the specifi c way an EOC is organized.

An EOC should be organized with the intent of facilitating a

smooth operation with data collection, documentation, and ex-

ecutive decision making to maintain public confi dence under

ever-changing conditions while acting on routine, priority, and

classifi ed information.

The local government is entirely responsible for the

management of emergency activities within its jurisdictional

boundaries. Response priorities will focus on getting the right

resources to the right place at the right time. This promotes

total uniqueness in the concept of operations at local and state

EOCs.

Typically, there are four ways to organize an EOC facility.

Each has some recognized coordination and support challenges.

Over time, many jurisdictions have used these structures very

successfully.

1. Major Management Activities Structure

Policy Group—comprised of “high-level” elected offi cials

and department heads who focus on the overall objectives

and priorities of the community. Decisions made by the Policy

Group set the direction for implementation by the Coordina-

tion, Resource, and Operations Groups.

Coordination Group—personnel responsible for collecting

and analyzing data, including advanced predictions based on

the essential functions of damage, resource allocation, public

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74 May 2010 FIRE ENGINEERING www.FireEngineering.com

information, and expenditures that an EOC must gather.

Resource Group—comprised of representatives from agen-

cies or organizations that provide or could be asked to supply

resources to the scene. These organizations may include trans-

portation agencies, utility companies, business and industry

representatives, and mutual-aid partners.

Emergency Management Operations Group—representa-

tives from any agency with responsibility for any portion of

the response or recovery. Units within this group are dictated

by the specifi c incident for a tactical assignment, including law

enforcement, fi re, public works, emergency medical services,

and numerous other agencies.

The advantage of this model is that the organizational

structure is relatively simple, with straight lines of communica-

tion and chain of command. With this model, all key problem

solvers and representatives from participating agencies can

contribute to decision making and resource allocation.

The disadvantage of this model is the linkages with on-

scene commanders. There is not a one-to-one match between

the organization of the on-scene incident command structure

and the EOC organization.

2. Incident Command System (ICS) Structure

The EOC’s emergency program manager or designee fi lls

the top position. The EOC commander serves a similar role

as the Policy Group and makes executive decisions that

establish the overall objectives “concept of operation” at the

EOC. Often under this format, the emergency program man-

ager is viewed as the EOC commander. This military-style

command structure can increase the interaction and provides

a heightened level of situational awareness.

Emergency Management Operations is responsible for

coordinating with and supporting on-scene responders. Posi-

tion titles of branches, divisions, and groups are organized as

necessary to support the incident.

Emergency Management Planning is responsible for gather-

ing and analyzing information and informing decision makers

of changes in the use of resources. A technical specialist may

be used to provide special insight and expertise.

Emergency Management Logistics serves as the single order-

ing point from the ICP. Coordinating the network of primary

and backup communications equipment will assist in any large-

scale incident, but it is especially meaningful during an evacua-

tion or reentry with special transportation and housing needs.

Emergency Management Finance/Administration is respon-

sible for designing fi nancial projections.

The advantage of this model is the clarity of roles and func-

tional integrity, which leads to a clear contact point between

the IC and the EOC. The coordination and support of logistical

and fi nancial duties will relieve the workload at the incident

scene and dispatch center.

The disadvantage of this model is the potential for confusion

about authority at the incident scene vs. in the EOC facility.

3. Emergency Service Functions (ESF) Structure

An operation manager is in charge of the EOC. The Opera-

tion area can include branches such as fi refi ghting, public

works/emergency engineering, public health and medical

service, urban search and rescue, mass care, and law enforce-

ment. Currently, there are 15 branches under the National

Response Framework (NRF).

The Planning area includes situation analysis, documenta-

tion, advanced planning, technical services, damage assess-

ment, resources status, and geographic information system

technology. The Logistics area includes a service and support

branch.

The Finance/Administration area includes compensation

claims; purchasing/procurement; cost concerns; timesheets

for personnel; and disaster fi nancial assistance based on legal

records such as contracts, accounting records, and property

management photos.

The advantage of this model is that it appeals to local and

state EOCs because there is a clear one-to-one relationship

with the NRF as well as with on-scene ICS organizations.

The disadvantage is that local and state EOCs may not cor-

respond directly at the Operations level with the federal ESFs.

This potential misunderstanding with the ICS positions in the

on-scene Operation Section is a serious drawback and neces-

sitates an enormous amount of additional training to ensure

that the agencies responsible for ESFs are able to competently

perform their assigned duties.

4. Multiagency Coordination (MAC) Group Structure

A MAC Group is made up of organization, agency, or

jurisdiction representatives who are authorized to commit

resources and funds. The success of the MAC Group depends

on its current membership. Sometimes membership is obvi-

ous by the organizations that are directly impacted and have

a resources commitment to an incident. Often, organizations

that should be members of a MAC Group are less obvious.

These organizations may include the local Chamber of Com-

merce, volunteer groups, the Salvation Army, the American

Red Cross, faith-based charities, and other organizations with

special expertise or knowledge. These groups may not have

“hard” resources or funds to contribute in the response and

● EOC

During an incident, most workers remember

what they practiced instead of what they

were told or have read.

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76 May 2010 FIRE ENGINEERING www.FireEngineering.com

recovery phase, yet their contacts, political infl uence, and

technical expertise are the foundation for a collaborative ef-

fort.

The MAC Group coordinator is an optional position that

provides supervision to the various components. Members of

the MAC Group directly distribute the result of their delibera-

tion to their own organizations as well as through the chain of

command (MAC entities, dispatch centers).

The MAC Group Situation Assessment Unit collects and as-

sembles information needed for the MAC Group to fulfi ll its

role. At times, a MAC Group Resource Status Information Unit

will gather information on the status of resources.

The Joint Information Center ( JIC) is a public informa-

tion unit that has access to local information sources and

governmental entities and is responsible for coordinating

a summary report. Public information must be organized

around a Joint Information System that is overseen by pub-

lic information offi cers. Intelligence information is routed

from the EOC to the JIC for collection, validation, and pub-

lic dissemination.

The advantage of this model is that it works well to ensure

coordination among other MAC entities. It is useful as a

mechanism where no system exists to provide short-term mul-

tiagency coordination and decision making. Typically, a MAC

Group fi ts into a policymaking part of an existing EOC.

Some of the more common MAC Group applications include

the following:

• A single jurisdiction may establish a MAC group as part

of its EOC function. In this application, it is important

that the jurisdiction broadly defi ne its role because of

the impact on other agencies and organizations.

• MAC Groups are frequently defi ned geographically, espe-

cially when an emergency crosses jurisdictional boundar-

ies.

• A MAC Group may be organized functionally. For exam-

ple, law enforcement agencies at local, state, and federal

levels may establish a MAC Group to assist in coordinating

a response to a major terrorist activity.

• A MAC Group may be organized nationally. For example,

during wildfi re season, a National MAC Group convenes

at the National Interagency Fire Center in Boise, Idaho.

This MAC Group includes representatives from the federal

wildland fi re agencies, the states, the Federal Emergency

Management Agency, and the military.

The disadvantage of this model is a lack of clearly defi ned,

standardized relationships to other MAC entities. There is no

associated implementation of staffs, and it rarely is used as a

stand-alone structure in an EOC. A “generic” MAC component

can be used at any level of government.

CHARACTERISTICS OF AN EFFECTIVE ORGANIZATION

How information is used will affect how the information

is managed. Being prepared means there is no substitute for

planning, training, and exercising. Individuals are not very

good at tasks they do not do often. Job aids, checklists, and

cross-training will ensure that the essential functions of an

EOC will be documented even with the smallest staff.

Training is a key element once the standard operating

guideline and EOP are written. It has been repeatedly shown

that during an incident, most workers remember what they

practiced instead of what they were told or have read. This is

especially true where decision making and practical prob-

lem solving can get intense. Without an understanding of the

situation and regular practice, panic can set in, and even the

simplest task can become diffi cult to remember. Maintaining

sustainable skills in the data collection, documentation, and

parameters for decision making during an EOC activation is

critical for safety and effectiveness. Personnel changes, reor-

ganizations, and downsizing can have a dramatic effect on job

performance. A yearly orientation with periodic tabletop and

full-scale exercises all have value in reinforcing essential func-

tions and duties at an EOC.

Communication is the “lifeblood” at any incident. A com-

munications network of “talk paths” and shared radio channels

will enhance responders’ ability to transfer information among

various private and public agencies. Determining the scope of

the disaster is possible only when fi rst responders in the fi eld

accurately report conditions to the appropriate EOC represen-

tatives so that positive actions can be taken.

The EOC is the hub for communication. Incident informa-

tion, with a clear message fl ow and recording system, must

be shared within the EOC, between the EOC and the ICP, be-

tween the EOC and the general public, and between commu-

nity-elected offi cials and other jurisdictions.

The EOC is the key to minimizing any confl ict, confusion,

and duplication during the response or recovery phases of

a large-scale incident. By having high-level decision makers

located together, there is a greater chance that all resources

will be safely used to a maximum level of effi ciency. The

EOC’s coordination and support will assist the on-scene

commanders in accomplishing strategic and tactical activi-

ties.

Communication among the various response partners from

the local to the national level is described as one of the most

challenging aspects during any emergency. To save lives and

protect priorities, there must be a seamless fl ow of two-way

communication between the ICP and the EOC. Today is the

day to start improving standard operating policies, updating

emergency concepts of operation plans, and formulating a

positive working relationship with your numerous partners in

command, management, and preparedness. ●

● EOC

● WILLIAM SHOULDIS retired as deputy chief from the

Philadelphia (PA) Fire Department, where he served in

line and staff positions for more than 34 years. His assign-

ments included working directly for the fi re chief on labor

relations and accountability issues and serving as fi eld

commander for one-half of the city, department safety

offi cer, director of training, and hazardous materials task

force leader. He is an instructor at the Graduate School at

St. Joseph’s University in Philadelphia, the National Fire

Academy, and the Emergency Management Institute. He

has a master’s degree in public safety.

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