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Emergency Preparedness Group
Multi-Agency Response Framework
If you have just received notification of a major incident or emergency, go to:
Section 2.3 – Notification of a major incident/emergency
Version 1.0
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Record of AlterationsVersion Date Description of AlterationsJune 2011 Version approved for use in Belfast Emergency Preparedness
Group
December 2013 Updated for review
October 2014 Updated post consultation
April 2016
Reproduced as an EPG plan for the five EPGs with additional role of utilities organisations, inclusion of co-ordination centres protocol and template agenda/reporting forms from local co-ordination protocol – for EEPG review
April 2016 Version endorsed by EEPG
June 2016
Version updated for feedback to include JESIP, Integrated Emergency Management, NI Civil Contingencies Framework, PSNI/Translink MoU and prepared for forwarding to all EPGs for feedback
September 2016
Version prepared for SCEP endorsement following EPG feedback reference to alternative plans for responses to severe weather, updated details re airports, addition of an explanation re the role of SOSREP. Document renamed and additional clarification added re the application of the Framework in light of the new Cabinet Office definition of a major incident and CCG(NI) guidance on the difference between a major incident and an emergency.
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GlossaryTerm MeaningATO Ammunitions Technical OfficerBHP Belfast Harbour PoliceBHSCT Belfast Health & Social Care TrustCBRN Chemical Biological Radiological and NuclearCCA Civil Contingencies ActCCG(NI) Civil Contingencies Group (NI)CCPB Civil Contingencies Policy BranchCGOC Coastguard Operations CentreCMC Contact Management Centre (PSNI)COAC Coastal Operations Area Commander COMAH Control of Major Accidents HazardsCRO Coastguard Rescue Officer
DAERA Department of Agriculture, Environment and Rural Affairs
DOH Department of HealthDIM Detection, Identification and MonitoringEMARC Environment Monitoring and Response Centre
EmergencyAn event or situation which threatens serious damage to human welfare, the environment or the security of Northern Ireland or the UK as a whole.
EPG Emergency Preparedness Group
Emergency Services
Generic term for police, fire and rescue, and health agencies including the NI Ambulance Service; may also include HM Coastguard and other responders
FLO Family Liaison OfficerFRS Fire and Rescue ServicesHMCG Her Majesty’s CoastguardHSC Health and Social CareICC Incident Co-ordination CentreICP Incident Command PointIED Improvised Explosive Device
Incident Event or situation that requires a response from the emergency services or other responders
JESIP Joint Emergency Services Interoperability ProgrammeMACA Military Aid to the Civil Authorities
Major IncidentAn event or situation, with a range of serious consequences, which requires special arrangements to be implemented by one or more emergency responder
MARF Multi-Agency Recovery Forum
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Term MeaningMC Mission Co-ordinator
METHANE Scene assessment mnemonic (see Appendix A for full explanation)
MTPAS Mobile Telephone Privileged Access SystemMoD Ministry of DefenceMoU Memorandum of UnderstandingNIAS Northern Ireland Ambulance Service
NICCMA Northern Ireland Central Crisis Management Arrangements
NIFRS Northern Ireland Fire & Rescue ServiceNIHE Northern Ireland Housing ExecutiveNIO Northern Ireland OfficeNIOBR Northern Ireland Office Briefing RoomOIC Officer in Charge OPRC Oil Pollution Preparedness Response and Co-operation
PHA/HSCB/BSO Public Health Agency/Health and Social Care Board/ Business Service Organisation
PPE Personal Protective EquipmentPSNI Police Service of Northern IrelandQUB The Queen’s University BelfastRVPs Rendez-vous PointsSAR Search and RescueSCG Strategic Co-ordinating GroupSMOO Senior Maritime Operations OfficerSOSREP Secretary of State’s RepresentativeSTAC Scientific and Technical Advice CellTCG Tactical Co-ordinating GroupUCMC Urban Contact Management Centre
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Table of ContentsRecord of Alterations ..............................................................................................2Glossary..................................................................................................................3Table of Contents ...................................................................................................51 General Information.........................................................................................91.1 Introduction ..................................................................................................91.2 Aim ...............................................................................................................91.3 Objectives ....................................................................................................91.4 Risk and Scope ..........................................................................................101.4.1 Application to Incidents which are not declared Major Incidents/
Emergencies ..........................................................................................111.4.2 Application to Incidents Initiated by Terrorist Acts..................................111.5 Linkages to other Multi-Agency Documents ..............................................111.6 Linkage to the JESIP Joint Doctrine ..........................................................121.7 Validation and Training ..............................................................................131.8 Ownership and Review ..............................................................................132 Definitions, Declaration and Stages of an Major Incident/Emergency...........142.1 Definitions ..................................................................................................142.2 Declaring a Major Incident .........................................................................152.3 Notification of Declaration of Major Incident ..............................................162.4 Initial Contact Cascade and Mobilisation ...................................................162.5 Declaring an Emergency............................................................................172.6 Stages ........................................................................................................173 Main Functions of the Emergency Services and Other Organisations ..........183.1 Police Service of Northern Ireland (PSNI) .................................................183.2 Northern Ireland Fire and Rescue Service (NIFRS) ..................................193.3 Northern Ireland Ambulance Service (NIAS) .............................................193.4 HM Coastguard (HMCG) ...........................................................................203.5 Local Health and Social Care Trust ...........................................................203.6 Public Health Agency .................................................................................213.7 Other Organisations ...................................................................................213.7.1 Belfast Harbour Police (BHP) (Belfast EPG only) ..................................213.7.2 Port/Harbour Authorities .........................................................................223.7.3 Airport Fire Services ...............................................................................223.7.4 Local Council ..........................................................................................233.7.5 Ministry of Defence.................................................................................233.7.6 NI Environment Agency..........................................................................243.7.7 Utilities and other providers ....................................................................244 Command, Control and Communication .......................................................254.1.1 Initial Control at the Scene .....................................................................254.1.2 Strategic, Tactical and Operational Response .......................................254.1.3 Strategic (Gold) ......................................................................................254.1.4 Tactical (Silver).......................................................................................254.1.5 Operational (Bronze) ..............................................................................254.1.6 Identifying Command Vehicles ...............................................................264.1.7 Identifying senior officer on site and command point .............................264.2 Multi-Agency Co-ordination........................................................................264.3 Multi-agency Co-ordinating Groups ...........................................................274.3.1 Multi-Agency Tactical Co-ordinating Group (TCG).................................284.3.2 Multi-Agency Strategic Co-ordinating Group (SCG)...............................29
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4.3.3 Locations for Undertaking Multi-Agency Co-ordination ..........................304.3.4 Maritime Incidents ..................................................................................314.3.5 Lead Co-ordinating Organisation ...........................................................324.4 Communication ..........................................................................................334.4.1 General...................................................................................................334.4.2 Warning ..................................................................................................334.4.3 Cross Boundary Communication............................................................334.4.4 Use of Barracuda Interoperability ...........................................................334.4.5 Mobile Telephone Privileged Access Scheme (MTPAS) .......................334.4.6 Radio Amateurs’ Emergency Network (RAYNET) .................................345 Responding to a Major Incident or Emergency .............................................355.1 Initial Contact with the Emergency Services ..............................................355.2 Arrival at the Scene/Scene Assessment ....................................................355.2.1 Role of First Responding Resources to Arrive .......................................355.2.2 Scientific Advice/Technical Advice/Suspicious Circumstances ..............365.2.3 Incidents Involving Improvised Explosive Devices (IEDs) or
Suspicion of Terrorist Involvement .........................................................375.3 Activation of Voluntary Organisations ........................................................375.4 Scene Management ...................................................................................385.4.1 Saving of Life, Rescue and Evacuation..................................................385.4.2 Access to the public transport system during an evacuation .................395.4.3 Initial Public Safety Announcements ......................................................395.4.4 Ongoing Public Information/Media Arrangements..................................395.4.5 Establishing Key Locations and Functions .............................................395.4.6 Diagram of Key Locations ......................................................................405.4.7 On-Site (Scene) Command Point ...........................................................415.4.8 Access Control Point ..............................................................................415.4.9 Scene Access Control Point ...................................................................415.4.10 Hot Zone Cordon ....................................................................................415.4.11 Cordons ..................................................................................................425.4.12 Rendezvous Points ................................................................................425.4.13 Marshalling Area ....................................................................................435.4.14 Traffic Management and Diversions.......................................................435.4.15 Meeting Points and Identification of Key Staff ........................................445.5 Medical Provisions .....................................................................................445.5.1 Casualty Clearance Station ....................................................................445.5.2 Triage .....................................................................................................455.5.3 Decontamination of Individuals ..............................................................455.5.4 Ambulance Loading Point ......................................................................455.5.5 Medical Support Provisions for Responders ..........................................455.6 Survivor Management ................................................................................465.6.1 Hospital Documentation Teams .............................................................465.6.2 Ongoing Public Health Advice ................................................................465.6.3 Emergency Support Centres ..................................................................475.6.4 Casualty Bureau .....................................................................................475.7 Fatalities.....................................................................................................485.7.1 Victim Audit Area ....................................................................................485.7.2 Family Liaison Officers ...........................................................................485.8 Welfare Provisions for Responders ...........................................................485.8.1 Health and Safety ...................................................................................485.8.2 Providing for Responders .......................................................................48
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5.9 Cultural and Faith Provisions .....................................................................495.10 Retrieval and Investigation.........................................................................496 Procedures for Stand-Down/Transition to Recovery and Debriefing.............506.1 Debriefing...................................................................................................506.1.1 Staff and Single Organisation.................................................................506.1.2 Multi-Agency...........................................................................................50Appendix A: Extracts from JESIP Doctrine including Scene Assessment Mnemonic .............................................................................................................51Appendix B: Map of Emergency Preparedness Group Boundaries......................53Appendix C: Specimen Agenda for TCG ..............................................................54Appendix D: Specimen Agency for SCG ..............................................................55Appendix E: Draft Strategic Intention for Use by the SCG ...................................56Appendix F: Initial Incident Report Template........................................................57Appendix G: Ongoing Situation Report Template for Multi-Agency Co-ordination ........................................................................................................59Appendix H: Guidance for Activation and Management of Emergency Co-ordination Centres...........................................................................................60Appendix I: Co-ordination Structure for Major Incident at Sea: Search and Rescue Phase ......................................................................................................71Appendix J: Co-ordination Structure for Major Incident at Sea: Counter Pollution & Salvage Response .............................................................................72Appendix K: Key Locations at the Scene – NIFRS Diagram ................................74
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** Note – Remit of Framework and Link to Location/Topic Specific Plans **This Response Framework outlines the arrangements for responding to a major
incident/emergency in Northern Ireland which is led by the emergency services with the
support of other key responding organisations. The arrangements outlined are generally
related to activities at, or ancillary to, the scene of an incident. It is however noted that
many of the principals and procedures outlined in the Framework are used for other types
of major incident or emergency where the invocation does not begin via the emergency
services.
As part of an Integrated Emergency Management approach, a range of potential hazards
have been identified and assessed for Northern Ireland and are summarised in the NI Risk
Register. This has been considered within the local Emergency Preparedness Group
(EPG) areas and this framework will facilitate a co-ordinated response to various incidents
such as:
- Industrial accidents and environmental pollution
- Transport accidents
- Structural hazards (e.g. building collapse)
- Fires and explosions
- Terrorist incidents (non CBRN).
Detailed multi-agency plans have been developed for a number of specific locations and
hazards and should therefore be used in responding to the respective incidents:-
- For flooding, use the local EPG Multi-Agency Flood Plan or Coastal Flood Plan
- For severe weather, a specific EPG Severe Weather Plan will be developed and in the
interim multi-agency co-ordination will be requested by the Met Office or any
organisation which anticipates an issue within its sector with the potential for multi-
agency impacts as a result of severe weather.
- For CBRN responses, use the Northern Ireland CBRN Response Plan or the CBRN
Site Specific Plan for Belfast
- For incidents involving epizootic diseases, use the DAERA Epizootic Disease Plan
- For human health emergencies, use the Department of Health Emergency Plan, the
Public Health Agency/HSCB/BSO Joint Silver Plan or local Trust Emergency Plan
- Some sites such as airports, ports, COMAH sites etc have their own emergency plan – see these plans for further detail on these specific locations.
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1 General Information
1.1 Introduction
This framework was initially developed by the Belfast Resilience First Responders Working
Group and has been reviewed and updated by the Eastern Emergency Preparedness
Group for use by the five Emergency Preparedness Groups. Contributors have included:
Ards & North Down Borough Council Northern Ireland Ambulance Service
Belfast City Council Northern Ireland Fire & Rescue Service
Belfast Harbour Commissioners Police Service of Northern Ireland
Belfast Harbour Police Public Health Agency
George Best Belfast City Airport
HM Coastguard
Lisburn City & Castlereagh Borough Council
Belfast and South Eastern Health & Social Care Trusts
Transport NI
Utilities Organisations
Ministry of DefenceThere has also been consultation on the content with the wider membership of Eastern
Emergency Preparedness Group and with the members of all the other Emergency
Preparedness Groups prior to endorsement by the CCG(NI) Sub-Group: Sub-Regional
Civil Emergency Preparedness.
1.2 Aim
This framework summarises how organisations will work together during a major incident
or emergency and aligns with the more detailed operational response plans/orders which
document how the staff from each of the contributing organisations will respond to a major
incident/emergency.
The framework may be used as a reference document at single and multi-agency
command and control locations to assist the organisations to co-ordinate their response
more effectively. The appendixes provide useful documentation to assist with this.
1.3 Objectives
The objectives of the framework are to:
Act as a reference document for all the agencies involved and provide a co-ordinated
response to a major incident and/or emergency
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Ensure a common understanding of the definitions of a major incident and emergency
and how they are declared and notified
Define the main functions of the organisations involved
Describe the actions of the first officers at the scene
Outline the incident command structures during a major incident/emergency
Describe the agreed procedures and arrangements for effectively co-ordinating the
response
Define what casualties are and how they will be cared for
Provide suggested documentation, templates, agendas etc.
1.4 Risk and Scope
The procedures adopted by each of the emergency services in response to a major
incident/emergency are understandably devoted to the role of the organisation concerned.
The purpose of this document is to describe the agreed procedures and arrangements for
the effective co-ordination of their joint efforts. In this way the overall response of the
organisations will be greater than the sum of their individual efforts.
This framework provides summaries of the responses and responsibilities of each of the
emergency services at a major incident/emergency, as well as an outline of the support
roles offered by other key responding organisations. It also aims to aid better
understanding to the individual specialists involved in working with each other in a co-
ordinated way.
It must be remembered that the procedures within this document are generally related to
activities at, or ancillary to, the scene of the incident, and that have a bearing on a number
of the agencies involved. Detailed descriptions of single service functions are not included.
The document includes references to roles and responsibilities of some non-emergency
service organisations. However, the list of organisations is not exhaustive and it is
recognised that a wide range of organisations are likely to be involved in supporting the
emergency services’ response.
It is recognised that every major incident/emergency is different and has its own unique
features. The advice contained within this document should be regarded as guidance only.
It is designed to offer a framework within which those responsible for the successful
resolution of the incident are able to work together with maximum efficiency.
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1.4.1 Application to Incidents which are not declared Major Incidents/Emergencies
There are many serious and protracted incidents that do not meet the criteria for a major
incident or emergency but which would nonetheless warrant a co-ordinated effort from the
services involved. The impact of these events often necessitates the implementation of
special arrangements and clear benefits are anticipated from using the relevant aspects
from this framework.
No-one will be criticised if they act in good faith and declare a major incident/emergency
based on their initial assessment even if it is later determined that the circumstances do
not warrant a declaration.
1.4.2 Application to Incidents Initiated by Terrorist Acts
It should be noted that the procedures set out in this framework may also apply to incidents
initiated by terrorist acts.
1.5 Linkages to other Multi-Agency Documents
This document outlines the arrangements for responding to a major incident/emergency
in Northern Ireland to ensure that a co-ordinated response is provided from all the agencies
involved. This document is complementary to the Northern Ireland Civil Contingencies
Framework, the Northern Ireland over-arching emergency plans and protocols and the
range of single agency and multi-agency plans which exist in the local Emergency
Preparedness Groups as shown on the diagram below:
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Northern Ireland Civil Contingencies Framework & NI Multi-Agency Plans e.g. local co-ordination, escalation, vulnerable people, fuel, epizootic disease, pandemic flu etc.
Public Information &
Media
Emergency Contacts Directory
Multi-Agency Response Framework
Emergency Support Centres
Voluntary and Business
Capabilities Summaries
Mass Fatalities Recovery Telecommunications TBC
Local Protocols for Specific
Hazards TBCFlooding Coastal
FloodingSevere
Weather TBC
Other key sites Airports/PortsOffsite plans e.g. COMAH,
reservoirs
Community Emergency
Plans
Business Continuity
Plans
Major Incident Plans
Mutual Aid Plans
Operational and Service
Plans
Generic
Specific Hazard
Site Specific
Internal Organisational Plans
EPGMulti-
AgencyPlans
*Those listed as TBC do not currently exist in any format
Relevant single agencies plans include:
- PSNI Emergency Response Plan
- NIFRS Major Incident Plan
- NIAS Major Incident Plan
- HMCG Major Incident Plan
- Local Health & Social Care Trust Major Incident Plans
- PHA/HSCB/BSO Joint Response Major Incident Plan
- Local Airport Emergency Orders
- Local Council Emergency Plan
- The emergency plans of each of the utilities organisations.
1.6 Linkage to the JESIP Joint Doctrine
The Joint Emergency Services Interoperability Programme (JESIP) is a nationally
recognised tri-service programme which was established in 2012 for the police, fire and
ambulance services to improve how they work together when responding to major multi-
agency incidents. JESIP produced a range of practical guidance including the overarching
‘Joint Doctrine: the interoperability framework’ which amongst other things provides:
- Five principals for joint working in response to a major incident
- A model for shared situational awareness known as METHANE
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- A joint decision model.
Further details are provided at Appendix A. While JESIP was produced for police, fire and
ambulance services and will be applied by these organisations, it has been acknowledged
that the principles are useful for application to the wider multi-agency working following a
major incident/emergency.
1.7 Validation and Training
The validation of this plan should be included in the ongoing exercise programme for the
local Emergency Preparedness Groups.
Upon agreement of the plan at a multi-agency level, individual organisations should
conduct a Training Needs Analysis to identify any training required within their organisation
to ensure the delivery of their responsibilities within the plan.
1.8 Ownership and Review
This is a multi-agency plan which has been compiled by Eastern EPG on behalf of the five
local EPGs in Northern Ireland. This document will be subject to continuous review by
these Groups and will be updated to reflect learning from incidents and exercises and any
amendments to best practice. The plan will be reviewed after any activation and in whole
every two years.
It is acknowledged that a number of organisations in Northern Ireland have recently
restructured including local government, central government, health and education.
Following the embedding of these new structures it is likely that various regional and EPG
protocols, including this plan and the CCG(NI) local co-ordination and escalation protocols,
may need revision to ensure they align.
While each organisation will make very best efforts to carry out the various actions
incumbent on them, it must be recognised that natural events can occur on some
occasions with little or no specific warning and may result in consequences that are not
easily foreseen or avoided. This plan is a reflection of the way the organisations will strive
to work together on a voluntary basis. It is neither a binding agreement nor a contract.
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2 Definitions, Declaration and Stages of an Major Incident/Emergency
2.1 Definitions
A major incident is defined as:
“An event or situation, with a range of serious consequences, which requires special
arrangements to be implemented by one or more emergency responder.”
The following notes are provided to enhance the interpretation of this definition:
a) ‘emergency responder’ describes all Category one and two responders as defined
in the Civil Contingencies Act (2004) and associated guidance (in Northern Ireland
this should be taken as those organisations in the commonly accepted civil
contingencies community such as government departments, their agencies and
NDPBs, emergency services, local councils, health Trusts, utilities etc);
b) a major incident is beyond the scope of business-as-usual operations, and is likely
to involve serious harm, damage, disruption or risk to human life or welfare,
essential services, the environment or national security;
c) a major incident may involve a single–agency response, although it is more likely
to require a multi-agency response, which may be in the form of multi-agency
support to a lead responder, including support from the wider resilience
community;
d) the severity of consequences associated with a major incident are likely to
constrain or complicate the ability of responders to resource and manage the
incident, although a major incident is unlikely to affect all responders equally;
e) the decision to declare a major incident will always be a judgement made in a
specific local and operational context, and there are no precise and universal
thresholds or triggers. Where LRFs (EPGs in Northern Ireland) and responders
have explored these criteria in the local context and ahead of time, decision
makers will be better informed and more confident in making that judgement.
The NI Civil Contingencies Framework defines an emergency as:
“An event or situation which threatens serious damage to human welfare, the
environment or the security of Northern Ireland or the UK as a whole.”
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This framework has been written to describe the first response arrangements to a major
incident or emergency which is led by the emergency services. In practice this may involve
the following criteria:
- Initial treatment, rescue and transportation of a large number of casualties;
- Handling of a large number of enquiries likely to be generated from both the public
and the news media;
- Large-scale combined resources of two or more of the emergency services;
- Mobilisation and organisation of the emergency services and partner organisations,
for example a district council, to cater for threat of death, serious injury or
homelessness to a large number of people;
- The involvement either directly or indirectly of large numbers of people.
While the terms major incident and emergency are often used interchangeably, as shown
by the definitions above, they are not actually synonymous. The difference is that while
the civil emergency definition describes the overall situation, the major incident definition
concerns what this actually means for the organisation in terms of invocation of their
emergency arrangements. It is possible therefore, depending on the particular
circumstances of the incident, that a number of responders, but not all, may declare a
situation as a major incident for them requiring the activation of their emergency
arrangements. The same incident may also be declared as an emergency so any incident
could be declared as a major incident, an emergency or both.
2.2 Declaring a Major Incident
It is each organisation’s responsibility to declare a major incident on behalf of their own organisation and enact their own emergency plan if their assessment of the situation meets their internal definition. It is important to stress that when a major incident is declared by one organisation it should be communicated to other responders as soon as possible.
It is important to note that what is a major incident for one organisation will not necessarily
be a major incident for another. However, each of the emergency services, local Trust,
local council and other responders should provide an appropriate level of response in the
prevailing circumstances. Depending on the circumstances, this may simply be providing
a liaison point for the responding organisations to contact if assistance is required.
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2.3 Notification of Declaration of Major Incident
When a major incident is declared, the declaring agency will immediately inform PSNI’s
Incident Co-ordination Centre (ICC) via their local Contact Management Centre (CMC) for
onward transmission to all key responders so they can begin their own emergency
response procedures.
Once informed, NIAS will inform the local health trust(s) and the Public Health Agency.
In situations requiring emergency support centres it is particularly important to alert local
Trust Social Services representatives and local Councils as soon as possible to enable
them to initiate call-out procedures and place their own staff on standby.
Where appropriate other organisations, such as voluntary and utilities organisations
should also be placed on standby to provide support to the emergency services when
necessary.
2.4 Initial Contact Cascade and Mobilisation
The initial declaration of a major incident should be cascaded as follows:
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Major Incident Declared by an organisation
Declaring Organisation contacts PSNI Incident Co-ordination Centre (ICC) via respective local Contact Management Centre (CMC)
PSNI ICC contacts (as required in the circumstances)
Emergency Support Centres: Local Council Local HSCT Social
Services
First Responders: HMCG NIAS NIFRS BHP
_______________NIAS then informs local HSC
Trust(s) and PHA as appropriate
Others (as necessary), for example:
Transport NI MoD Utilities Key contacts for specific
sites/locations
Following this initial cascade, multi-agency co-ordination and communication arrangements should be established as soon as possible.
2.5 Declaring an Emergency
As noted above it does not automatically follow that the declaration of a major incident by
an organisation means the circumstances meet the criteria for a civil emergency however
in many cases a major incident will also be an emergency and vice versa. Emergencies
can be actual or anticipated and multi-agency co-ordinating groups can form in anticipation
of an emergency. By forming a multi-agency co-ordinating group under the ‘CCG(NI)
Protocol for Multi-Agency Co-ordination of Local Level Response and Recovery’ or the
‘CCG(NI) Protocol for the NI Central Crisis Management Arrangements’ or in escalating
the response under the ‘CCG(NI) Protocol for the Escalation of the Multi-Agency
Response’ it is implicit that responders consider they are dealing with an actual or
anticipated emergency. The Chair of any multi-agency co-ordinating group could however
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declare that they are convening to deal with a civil emergency if such declaration would
be deemed to be helpful.
2.6 Stages
Most incidents can be considered to have a number of stages:
- The initial response
- The recovery phase; and
- The restoration to normality.
Res
pons
e
Hearings (trials, inquest, public enquiry)
Time
Initial Response Recovery phase
Stand-by
Investigation
Restoration of normality
Stages of an Incident
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3 Main Functions of the Emergency Services and Other Organisations
This list of main functions covers the emergency services and key responding
organisations. It is recognised that a wide range of other organisations are likely to be
involved in assisting with the response to a major incident/emergency.
3.1 Police Service of Northern Ireland (PSNI)
The primary areas of police responsibility at a major incident/emergency are:
To protect life and property;
To preserve order;
To prevent the commission of offences;
Where an offence has been committed, to take measures to bring the offender to
justice.
Police will:-
Normally coordinate the activities of the emergency services and other responding
agencies at and around the scene of a sudden impact emergency or major incident.
(Each individual agency retains full command over its own resources and its ability to
discharge its own statutory responsibilities)
Agree the boundary of the cordon(s) with the Fire and Rescue Service, NIAS and any
other relevant agency, subject to the best scientific and other inter-agency advice
available. Communicate with other responders to advise where the cordons will be
established.
Take initial responsibility for safety management within the inner cordon at terrorist
related incidents and provide key information to other response organisations
Maintain the integrity of the scene and cordons
Ensure that where the incident is the result of a suspected criminal act a full
investigation is conducted
Where appropriate facilitate other investigatory bodies such as Air Accident
Investigation Branch
In accordance with the local EPG Emergency Support Centre Plan, invoke appropriate
emergency support centre facilities
Where applicable, be responsible for the activation of the Casualty Bureau
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Where the PSNI is coordinating the response to the incident, coordinate the joint media
strategy
As agents of HM Coroner, recover and identify the deceased
Implement traffic management arrangements in response to an emergency
Provide representatives at appropriate elements of the incident Command and Control
structure.
3.2 Northern Ireland Fire and Rescue Service (NIFRS)
The primary role of the NIFRS in a major incident/emergency is to rescue people trapped
by fire, flood water, a major transport accident, wreckage or debris, and to prevent further
escalation of an incident by controlling or extinguishing fires and taking other preventative
measures. Other responses may include:
Dealing with released chemicals or other contaminants in order to render the incident
site safe or recommend exclusion zones
Assisting other agencies with the removal of large quantities of flood water
Assisting the Ambulance Service with casualty handling and the police with body
recovery
Manage gateways into the inner cordon if requested to do so by the police, recording
the entry and exit of personnel. Note: the health and safety of personnel working in the
inner cordon remains with the individual agencies
Determine initial access arrangements with police
Carry out scene assessment and ensure that all key responders are informed of the
outcome in a timely manner
Co-ordinate hazard assessment in consultation with the police
When the hazard/incident scenario is within their statutory remit or where it is apparent
that they are most appropriate agency to do so, take responsibility for the management
of the inner cordon. In the latter case this is subject to the agreement of other key
responders.
If possible, provide liaison officers at all levels of multi-agency coordination structure.
3.3 Northern Ireland Ambulance Service (NIAS)
The primary areas of NIAS responsibility at a major incident/emergency are to:
Maintain medical primacy for the medical treatment of casualties
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Dynamically manage and treat patients at the scene according to their medical priority
Transfer patients to an appropriate receiving unit according to numbers/severity/
resources
Advise the relevant Health and Social Care Trusts and Public Health Agency that a
major incident with casualties has occurred
Contact the Public Health Agency in situations relating to Hazmat or potential
chemical/biological incidents
Prioritise key routes with the PSNI regarding movements to and from receiving units
Provide, when staffing levels permit, liaison officers to relevant locations
Co-ordinate all health service activities on site
Co-ordinate the onsite incident management structure for the health service
Ensure the health and safety of all health service personnel at the scene
Facilitate all electronic communications on site for the health service
Provide medical support on site for responders.
Provide emergency support equipment to HSC responders
Provide specialist teams as appropriate (e.g. Hazardous Area Response Team
(HART)).
3.4 HM Coastguard (HMCG)
HM Coastguard is responsible for the initiation and co-ordination of civil maritime search
and rescue within the UK search and rescue region. This includes the mobilisation,
organisation and tasking of adequate resources to respond to persons either in distress at
sea, or to persons at risk of injury or death on the cliffs or shoreline of the UK.
3.5 Local Health and Social Care Trust
The primary areas of responsibility for the local health and social care trust during a major
incident/emergency are:
Activate major incident plans as necessary
Support the establishment of Emergency Support Centres as per agreed protocols
Provide representatives at elements of the incident Command and Control structure as
appropriate.
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3.6 Public Health Agency
ROLE
The PHA has a statutory health protection function that includes emergency preparedness
and response. In a CBRN/HAZMAT incident as in all other public health emergencies the
role of the PHA is to assess the risk to the public and to provide public health advice to
manage the risk.
RESPONSIBILITIES
Responding to public health emergencies (including CBRN/HAZMAT) through the
provision of robust local arrangements 24/7
Providing an early risk assessment of the actual or likely impact the incident may have
on public health or public safety
To provide public health advice which includes where appropriate public health advice
on:
o The health effects of exposure to the hazard
o The need for decontamination (humans and the environment)
o The use and level of PPE worn by healthcare staff
o The risk to vulnerable people
o The clean-up (in relation to ongoing risk to the public)
o Post mortem and disposal of the body.
Establishing, running and contributing to a Scientific and Technical Advice Cell (STAC)
as and when required
Participating in multi-agency emergency preparedness and response as set out within
the Civil Contingencies Framework for Northern Ireland
Working within the resources available to provide HSC organisations with emergency
preparedness guidance, advice and training as required
Provide representatives at elements of the incident Command and Control structure as
appropriate.
3.7 Other Organisations
3.7.1 Belfast Harbour Police (BHP) (Belfast EPG only)
The primary areas of responsibility for Belfast Harbour Police at a major incident/
emergency are:
23
Where practicable to provide an initial response to any major incident in the Belfast
Harbour Estate
To report to PSNI that a major incident has occurred within the Belfast Harbour Estate
To support PSNI in the response to a major incident within the Belfast Harbour Estate.
3.7.2 Port/Harbour Authorities
The primary areas of Port/Harbour Authority responsibility at a major incident/emergency
are to:
Co-ordinate all non-SAR based marine response within Port/Harbour Limits unless
directed otherwise by the Secretary of State’s representative (SOSREP)*
Provide, when staffing levels permit, liaison officers to relevant locations
Liaise with the emergency services re the land based response.
In Northern Ireland this would include the following Harbour Authorities:
- Belfast Harbour Commissioners (Belfast EPG)
- Coleraine Harbour Commissioners (Northern EPG)
- Londonderry Port and Harbour (Western EPG)
- Port of Larne (Northern EPG)
- Warrenpoint Harbour Authority (Southern EPG).
*The role and responsibility of the SOSREP for maritime salvage and intervention is to
oversee, control and if necessary intervene in salvage operations where there is a risk of
significant pollution. SOSREP can direct a person to take, or refrain from taking ‘any action
of any kind whatsoever’. If SOSREP is not convinced that the person directed can, or will,
take the action then he may cause the action to be taken himself - even if this includes the
total destruction of a vessel. The legislation also creates criminal offences for non-
compliance with a direction. Directions must be given to specified persons – this is those
who are in charge of a vessel or a Port/Harbour Authority.
3.7.3 Airport Fire Services
The primary areas of responsibility for the Airport Fire Service at a major incident/
emergency are:
To respond to aircraft incidents within the boundaries of their respective airport
To respond to aviation incidents within the scope of their airport’s Emergency Orders.
24
In Northern Ireland this would include the following airport fire services:
- Belfast International Airport Rescue and Firefighting Service (Northern EPG)
- City of Derry Airport Fire Service (Western EPG)
- George Best Belfast City Airport Fire Service (Belfast EPG)
In addition George Best Belfast City Airport Fire Service has agreed to co-operate with the
NIFRS in accordance with an individually agreed Memorandum of Understanding.
3.7.4 Local Council
The primary areas of responsibility for a local district or city council at a major incident/
emergency are:
Provide expert advice, such as building control or environmental health staff, to attend
the scene if requested
Provide premises, staff and support to the local HSC Trust to establish and provide
Emergency Rest Centres, Survivor Reception Centres and Friends and Relatives
Reception Centres
Co-ordinate the recovery phase
Provide representatives at elements of the incident Command and Control structure as
appropriate.
3.7.5 Ministry of Defence
In a civil emergency, the military can be called upon to provide support through the Military
Aid to the Civil Authorities (MACA). Depending on availability at the time of the request,
the Military may be able to provide (potentially on a recharge basis):
General support e.g. personnel, specialist responses such as CBRN and Army
Technical Officers
Limited medical support e.g. hard standing areas for mobile temporary mortuary
facilities
Logistics support e.g. transportation, engineering equipment, estates facilities, fuel,
logistics advice, telecommunications on a small scale.
3.7.6 NI Environment Agency
The NI Environment Agency has responsibility for protecting the environment and
undertaking activities to prevent, monitor and control pollution of the air, land and water.
In relation to a major incident/emergency this could include:
25
To provide advice to try to prevent pollution of the air, land and water
To attend the scene if requested
To provide representatives at elements of the incident Command and Control structure
as appropriate
To undertake investigations and enforcement of legislation if required.
3.7.7 Utilities and other providers
The primary areas of responsibility for utilities providers in relation to a major incident/
emergency are:
To invoke their internal emergency arrangements if required
To provide expert advice on their infrastructure and services if they are affected or near
the location of a major incident
To attend the scene if requested
To provide representatives at elements of the incident Command and Control structure
as appropriate
To arrange repairs to their infrastructure as necessary - in consultation with the multi-
agency recovery forum if one is established.
In Northern Ireland this would include organisations such as:
- BT and other telecommunications operators
- Gas suppliers including Premier Transmission, Phoenix Natural Gas, Firmus
Energy, SSE Airtricity Gas Supply, Electric Ireland, VAYU, Go Power Energy and
Flogas Natural Gas Ltd
- NI Electricity Networks
- NI Water
- NI Environment Agency
- Transport NI.
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4 Command, Control and Communication
4.1.1 Initial Control at the Scene
Each organisation maintains control of its own resources and will establish its own
command and control arrangements.
The first personnel to respond to the scene from each of the emergency services will
undertake initial control of the activities of their organisation at the scene until more senior
personnel arrive (if appropriate).
From the outset it is important that personnel from each service at the scene liaise with
each other. This will be the foundation upon which all later meetings and co-ordination
arrangements will be based.
4.1.2 Strategic, Tactical and Operational Response
The functions adopted by each of the emergency services are strategic, tactical and
operational. These are commonly referred to as Gold, Silver and Bronze. These functions
are role rather than rank related and may be geographically or function specific.
4.1.3 Strategic (Gold)
If established, Gold is the commander in overall charge of each service, at strategic level.
Each organisation’s Gold commander has overall command of the resources of their own
organisation, but delegates tactical decisions to their respective Silver(s).
4.1.4 Tactical (Silver)
The purpose of the tactical level is to ensure that the actions taken by the operational level
are coordinated, coherent and integrated in order to achieve maximum effectiveness and
efficiency. Silver will be responsible for implementing the strategy set by the Gold level of
command.
4.1.5 Operational (Bronze)
Operational (Bronze) will control and deploy the resources of their respective services
within a geographical sector or undertake a specific role to implement the tactics defined
by Tactical (Silver).
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4.1.6 Identifying Command Vehicles
Unless impractical due to health and safety concerns, once emergency services vehicles
have arrived on site, all blue lights should be extinguished except those of the command
vehicle for each service i.e. there should only be four vehicles with blue lights on at any
time.
4.1.7 Identifying senior officer on site and command point
The individual with overall responsibility onsite for each organisation at the scene will wear
a uniquely identifiable tabard. This will be passed on to their successor if the person with
this responsibility changes.
PSNI: PSNI do not currently wear tabards
HMCG: Once tasked and on scene, an appropriately qualified Coastguard Rescue
Officer (CRO) will be designated as the Officer in Charge (OIC) and will assume
local command under the Mission Co-ordinator. The OIC has a red tabard with
“Officer in Charge” on the back. If a Senior Maritime Operations Officer (SMOO)
has been tasked to the incident they will have a white tabard with “Incident
Commander” on the back.
NIFRS: The Incident Commander has a white tabard with ‘Incident Commander’
written on the back
NIAS: The Incident Commander has a green and white chequered tabard with
‘Ambulance Incident Commander’ written on the back.
4.2 Multi-Agency Co-ordination
It is vital that the organisations co-ordinate their efforts to maintain health and safety,
maximise the use of scarce resources and provide a seamless response to the incident.
Depending on the nature of the incident, multi-agency co-ordination will be required at an
operational, tactical and sometimes strategic level. In practice co-ordination is usually
required both on-site and off-site.
The table below provides an example of potential members which will alter depending on
the incident.
28
It is important to note that the location of these structures and the rank of the individual
with command responsibilities at each location will vary widely depending on the
organisations involved and the nature of the incident. It is therefore essential that each
organisation gives consideration to this plan and pre-determines how their organisation
would participate within these structures.
4.3 Multi-agency Co-ordinating Groups
The formation of both a Tactical Co-ordinating Group (TCG) and a Strategic Co-ordinating
Group (SCG) is of great value at all major incidents/emergencies. It is essential that the
TCG is established as soon as possible to facilitate communication and agree a joint
approach regardless of the seniority of those who attend or the location of the co-ordinating
group meetings.
It is important to note that while a TCG and/or SCG can be established via the
arrangements outlined in this Framework, they may also be established under the
arrangements shown in the Civil Contingencies Group (NI) Protocol for multi-agency co-
ordination of local level response and recovery or the Protocol for escalation of the multi-
agency response.
It is important that the representative who attends a co-ordinating group meeting has
sufficient authority to guarantee that the facilities they offer on behalf of their service will
be delivered.
It is however useful if only one person from each service attends so that the meetings are
not unduly long.
Operational co-ordination
Tactical co-ordination (established if
required)
Strategic co-ordination (established if required)
PSNINIFRSNIAS
HMCG
PSNINIFRSNIAS
HMCGLocal Council
PHA/HSCB/BSO
PSNINIFRSNIAS
HMCGLocal Council
PHA/HSCB/BSOCentral Government
DepartmentsOther supporting organisations as
requested
Other organisations as necessary
Other organisations as necessary
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Minutes, or a note of decisions taken, must be kept of all meetings of the co-ordinating
groups. It is also essential that individual members of the group make their own notes of
meetings.
4.3.1 Multi-Agency Tactical Co-ordinating Group (TCG)
Where formal coordination is required at the tactical level then a Tactical Co-ordinating
Group (TCG) may be convened. This will usually comprise senior officers from each
agency within the area of operations, and will undertake tactical coordination of the
response to the event or situation.
The purpose of the TCG is to implement the strategy agreed by the Strategic Co-ordinating
Group (SCG) and to facilitate communication and mutual support between organisations
by maintaining a shared situational awareness.
Working in coordination the tactical commanders from the responding agencies may:
Deliver the tactical response in line with the strategic objectives
Determine priorities for allocating available resources
Plan and coordinate how and when tasks will be undertaken
Obtain additional resources if required
Share information on significant risks and use this to inform tasking of their own
operational commanders; and
Ensure the health and safety of the public and responding personnel.
Initial Meeting
It is recognised that the location of those with tactical responsibilities differs between the
emergency services i.e. PSNI is generally offsite and NIFRS and NIAS are generally
onsite. Acknowledging this practical issue and that there will inevitably be some delay in
a co-ordinating group being set up, the first TCG meeting should occur at the scene as
soon as possible as it is critical that the initial multi-agency tactical priorities are established
quickly. To avoid delay, the timing of the meeting must be communicated as soon as
possible and those who cannot physically make it to the scene should be provided with
conference call details to enable them to take part remotely.
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The individual representing each organisation should be prepared to discuss tactical level
issues and be aware of the current situational position of their organisation. Each
organisation maintains its own autonomy to determine the rank or seniority of the person
that they ask to represent them. It is recognised that due to operational requirements, the
Silver Commander from each organisation may not be able to attend and therefore a
liaison officer may be provided.
Further Meetings
As time progresses and depending on the circumstances, each agency will establish their
own tactical management arrangements at an appropriate location (onsite or offsite) which
allows them to discharge the responsibilities of their own organisation. Regardless of
location, TCG meetings should continue to occur and appropriate liaison officers (where
available) will be sent by each organisation to the relevant locations or conference calling
should be enabled to bring in those who are not present.
As the incident progresses, TCG meetings should be pre-arranged or occur at the request
of any member of the group. Liaison officers from other organisations may be requested
to engage as required, for example the local authority or scientific/technical advisors.
Agenda & Situation Report Template
To assist the TCG a specimen agenda for each meeting is provided at Appendix C, an
initial incident report template is provided at Appendix F and an ongoing situation report
template is provided at Appendix G. These templates are taken from the CCG(NI) Protocol
for multi-agency co-ordination of local level response.
4.3.2 Multi-Agency Strategic Co-ordinating Group (SCG)
The purpose of the Strategic Co-ordinating Group (SCG) is to take overall strategic
responsibility for incident management and establish a framework of policy within which
the TCG will work.
The SCG will bring together senior representatives from relevant organisations. It is
acknowledged that the Gold Commander of each organisation may be unable to attend
due to operational requirements but will appoint an appropriate liaison officer to attend.
These representatives will advise on behalf of their organisation.
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The initial membership of the group will normally include the emergency services with
additional representation from other organisations depending on the requirements of the
incident. The frequency of meetings will depend on the nature and difficulties of the
incident.
The functions of the SCG include:
Agreeing the strategic priorities including prioritising the demands of the tactical
command group e.g. decisions which may have wide reaching impacts such as
closing major routes, wide scale evacuation, discontinuing utility supplies
Identifying additional resources and facilitating requests for support from the tactical
command group
Implement adequate financial controls
Provide liaison with the media at strategic level
Providing a liaison point to other strategic command and co-ordination groups
(single agency and multi-agency) which may be established including NICCMA and
NIOBR
Providing a liaison point for the multi-agency recovery forum to determine the
strategy to assist a return to normality.
To assist the Strategic Co-ordinating Group a specimen agenda is provided at Appendix
D, a draft strategic intention is provided at Appendix E, an initial incident report template
is provided at Appendix F and an ongoing situation report template is provided at Appendix
G.
4.3.3 Locations for Undertaking Multi-Agency Co-ordination
There are a number of suitable facilities for multi-agency co-ordination of incidents in the
EPG areas in Northern Ireland. It is recognised that the potential locations for multi-agency
co-ordination is currently under discussion and therefore this list is provisional and likely
to be updated. The locations which are currently identified are:
EPG Area Organisation Facility
PSNI PSNI Headquarters, Brooklyn Silver Control Room, Musgrave Street PSNI
StationBelfast EPG NIFRS Eastern Area Command Support Room NIFRS Specialist Operations Co-ordination
Centre, Central Fire Station
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Belfast City Council
Emergency Co-ordination Centre, City Hall Duncrue Emergency Management Room
George Best Belfast City Airport
Multi-agency Co-ordination Centre
Belfast Harbour Port Operations Centre, Milewater BasinPSNI Silver Control Room, Bangor PSNI Station
Silver Control Room, Lisburn Police StationHM Coastguard Coastguard Operations Centre, Bregenz House,
BangorEastern EPG
NIFRS NIFRS Regional Control Centre, LisburnNIAS NIAS Hub, BallymenaHM Coastguard HM Coastguard Station, PortrushNorthern
EPG Antrim & Newtownabbey BC
Mossley Mill
Southern EPG
PSNI Ardmore Police Station, Newry
NIFRS NIFRS Western Area Headquarters NIFRS Niall Hamilton Suite, NIFRS Omagh
Western EPG PSNI Silver Command Room, Strand Road PSNI Station
Multi-Agency Room, Omagh PSNI StationNIFRS NIFRS Command Support UnitsMobile
facilities NIAS NIAS Mobile Command Unit
The policy for activation and management of these emergency co-ordination centres is
shown at Appendix H.
4.3.4 Maritime Incidents
The HMCG will co-ordinate the response to a Search and Rescue (SAR) maritime incident.
Police and NIFRS (and NIAS if deemed appropriate) will send a liaison officer to Bregenz
House, Bangor to assist the co-ordination of the land based response e.g. agreeing landing
points within the relevant EPG area and advising other emergency responders of the
location to enable them to respond appropriately. The co-ordination structure between the
land and maritime responses is shown at Appendix I.
The co-ordination of counter-pollution and/or salvage responses within each Port/Harbour
Authority is dependent on the impact of the incident. The definition and co-ordination
arrangements for Tier 1 and Tier 2 responses differ by Port/Harbour and are defined in
each Port/Harbour’s Oil Pollution Preparedness Response and Co-operation (OPRC)
Plan. The arrangements in the Port of Belfast have been provided below by way of
example. The Tier 3 response is the same regardless of location.
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Tier Definition Co-ordination
Tier 1 Spills which are contained on the ship or dockside and do not enter the water. Small operational spills were events can be dealt with by onsite resources.
Co-ordinated by Belfast Harbour Commissioners. Unlikely to require external incident response, except for notification purposes.
Tier 2 Spills which enter the water. Co-ordinated by Belfast Harbour Commissioners. May require the establishment of a multi-agency Incident Control Centre.
Tier 3 Larger spills or a loss of containment incident likely to spread outside the Port area.
Co-ordinated by HMCG as part of the National Contingency Plan. Will require the full involvement of other authorities and possible mobilisation of a tier 3 and national stockpiles.
The co-ordination structure for these tiers is shown at Appendix J.
4.3.5 Lead Co-ordinating Organisation
When Co-ordinating Groups are established at a Tactical and/or Strategic level, a lead co-
ordinating agency will be agreed between the agencies to facilitate the meetings. The role of the lead co-ordinating organisation is to facilitate the multi-agency co-ordination meetings and act as Chair. They do not command the incident or control the resources of other organisations.
For marine based responses, the lead co-ordination organisation of the TCG will usually
be HMCG for the maritime SAR response. For other marine responses within Port Limits,
lead co-ordination may be managed by the respective Port/Harbour Authority.
For land based responses, the lead co-ordinating organisation of the TCG will normally be
PSNI, NIFRS or the local Council.
PSNI will normally take the role of lead co-ordinating organisation when an SCG is
established.
Where the lead is not evident, this should be discussed between the relevant
organisations. In the absence of consensus, PSNI will undertake the role of lead co-
ordinating organisation.
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4.4 Communication
4.4.1 General
It is essential that all organisations communicate with each other before, during and after
a major incident/emergency. When an organisation becomes aware of a potential threat
or risk they should communicate this with other relevant responders as soon as possible.
The Civil Contingencies Act (CCA) 2004 places a statutory duty on Category 1 and 2
responders to share information with other categorised responders. The NI Civil
Contingencies Framework also encourages information sharing between the wider
emergency planning and response community.
It is recognised that it may not be appropriate to share some types of information such as
information prejudicial to national security, information prejudicial to public safety,
commercially sensitive information and personal information.
4.4.2 Warning
It has been agreed that where there is imminent danger that a major incident/emergency
may occur, each relevant organisation will alert established contacts in other organisations
to advise them of key information/intelligence which they are aware of.
4.4.3 Cross Boundary Communication
Where an incident occurs near the boundary of an organisation, consideration should be
given to notifying the organisation on the other side of the boundary.
4.4.4 Use of Barracuda Interoperability
If requested in accordance with agreed protocols, multi-agency command channels can
be established through normal protocols to enable the emergency services to
communicate with each other.
4.4.5 Mobile Telephone Privileged Access Scheme (MTPAS)
In an emergency the PSNI Gold Commander may request the activation of the Mobile
Telephone Privileged Access Scheme (MTPAS) scheme. Due to the impact of the
implementation of the scheme, the SCG should discuss and agree this course of action.
35
Key responding organisations will have mobile phones with a SIM card which is listed on
the MTPAS. When MTPAS is activated these MTPAS enabled phones will have
preferential access to the mobile phone system.
4.4.6 Radio Amateurs’ Emergency Network (RAYNET)
RAYNET are a group of licensed enthusiasts who will provide a radio communications
network, including mobile repeater stations, which can be operated independently of
power of connection to existing networks.
While a joint protocol exists between Raynet and the Belfast EPG agencies (as listed within
the protocol), work is underway to ensure that this capability could be provided across
Northern Ireland in an emergency. RAYNET are governed by the terms of their license
and can only provide services to and at the request of the agencies listed in the protocol.
To avoid overloading the system, the strategic/tactical group will facilitate a communication
capability assessment to inform the tasking which is then given to RAYNET. A tasking
sheet for completion when using RAYNET is provided in the appendix to the protocol.
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5 Responding to a Major Incident or Emergency
5.1 Initial Contact with the Emergency Services
The Emergency Services will usually be alerted to an incident through the 999 system.
They will then follow their usual deployment systems for their own organisation and inform
other emergency services organisations which need to provide a response based on this
initial call.
5.2 Arrival at the Scene/Scene Assessment
5.2.1 Role of First Responding Resources to Arrive
The primary duty of the first responding resources to arrive at the scene from each
emergency services organisation is to undertake an initial scene assessment and pass
this information back to their control room. They should not get personally involved in
rescue work.
Following their initial assessment, the first responding resources from each organisation
should:
Report to their respective control room using the scene assessment mnemonic
METHANE (explained at Appendix A)
Implement their organisation’s own incident command procedures
Declare and/or confirm a major incident (for detail see declaration and notification of
declaration in Section 2)
Prepare to brief a more senior officer from their organisation on their arrival (if
appropriate)
Request additional resources from their own organisation as required
Liaise with other emergency services initial commanding officers to form a plan of
action (including requesting assistance from other organisations if appropriate)
Issue instructions to responders from their own organisation to effect the plan of action
Co-ordinate a joint hazard assessment and agree a safe method of working including
levels of PPE required within the inner cordon.
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5.2.2 Scientific Advice/Technical Advice/Suspicious Circumstances
Where there is any suspicion regarding the source or impact of an incident e.g. content of
a plume or suspicious substance present at the site, additional assistance may be
required. Consideration may be required re convening a Scientific & Technical Advice Cell
(STAC) to act as the single co-ordinated source of scientific and technical advice to the
multi-agency co-ordinating group, using the Belfast CBRN Site Specific Plan or NI CBRN
Response Plan or having the situation assessed using the Step 1, 2, 3 protocol.
Other steps may include:
Public Health Agency
Immediately following an incident the primary source of public health advice into the multi-
agency command structures is the health protection service within the PHA. Public health
will provide an early assessment of the actual or likely impact the incident may have on
the wider public health. This may include advice on sheltering and first responder safety.
The Public Health Agency has a 24/7 contact number to provide this immediate public
health advice into an unfolding incident.
CHEMET procedures (information from the Met Office):
In the event of an incident involving hazardous chemicals, NIFRS or PSNI will contact the
Met Office Environment Monitoring and Response Centre (EMARC). The Public Health
Agency will automatically be advised by Public Health England when a CHEMET report is
requested.
FireMet procedures (information from the Met Office):
FireMet is a weather system designed to provide fire and rescue service (FRS) responders
with the latest weather information to help them identify a safe approach when dealing with
a major incident. The aim is to provide immediate access to forecast conditions, while
they are waiting for a more detailed CHEMET report.
NIFRS D.I.M. Team
The NIFRS D.I.M Team (Detection, Identification and Monitoring) provide specialist scene
assessment in relation to the detection, identification and monitoring of hazardous
38
substances and environments. The D.I.M. team will give specialist advice on type of
hazard, control measures, cordon size and PPE.
5.2.3 Incidents Involving Improvised Explosive Devices (IEDs) or Suspicion of Terrorist
Involvement
When PSNI become aware that an Improvised Explosive Device (IED) may be present in
a location or terrorist involvement is suspected in an incident, the PSNI will task an
Explosive Ordnance Disposal (EOD) team through the Joint Service EOD Operations
Centre in England. An Ammunition Technical Officer (ATO) will then attend the incident.
This may be in response to a telephone warning, a suspicious device, a hoax or following
an explosion.
In these circumstances, responders must consider their own safety when responding to the event and should also be cognisant of the possibility of secondary devices.
They must make contact with the PSNI who will clear the immediate area and establish a
cordon in consultation with the ATO to ensure the safety of the public and responders.
5.3 Activation of Voluntary Organisations
When required, emergency services organisations have formal arrangements to call upon
various voluntary community organisations to provide them with additional support. This
currently includes:
Search and Rescue support (Police, NIFRS, NIAS and HMCG joint MoU)
NIAS: British Red Cross, St John Ambulance, Order of Malta, Other Voluntary
Ambulance Services
NIFRS: British Red Cross (primarily for welfare of the public)
Local HSCT: British Red Cross
A summary of the support that various voluntary organisations can offer is provided in the
EPG Voluntary Organisations Capability Summary. Offers of assistance may be made by
other voluntary community organisations during a Major Incident. Any organisation
considering accepting ad-hoc support should satisfy itself that the assisting organisation
is competent and suitable (e.g. insurance and health & safety accredited) to provide the
39
assistance offered and be cognisant that they may later be charged for accepting this
assistance.
5.4 Scene Management
5.4.1 Saving of Life, Rescue and Evacuation
Once an initial assessment of the scene has been conducted, the immediate and
overriding responsibility of all the emergency services at the scene of a major incident is
the saving of life. To this end the emergency services, together with other specialist rescue
services which they request to support them, must be afforded the opportunity to use their
training, expertise and experience. During this rescue phase multi-agency co-ordination
is vital.
Rescue is defined as the ‘removal, from a place of danger to a place of relative safety, of
persons threatened or directly affected by an incident, emergency, or disaster.’ Evacuation
is the ‘removal, from a place of actual or potential danger to a place of relative safety, of
people and (where appropriate) other living creatures.’
Subject to undertaking a dynamic risk assessment, PSNI and NIFRS will initiate rescue
and evacuation until further support arrives. As appropriate, NIAS will medically assess
survivors who need to be rescued and advise PSNI and NIFRS as to the most appropriate
and safest mechanism to rescue the individual.
The EPG Generic Protocol for the Establishment of Emergency Support Centres should
be followed when an evacuation is anticipated or occurring or where a place of safety is
required for survivors or their friends and relatives.
Any service may request the temporary assistance of personnel and equipment of another.
Personnel from one service who help another in this way should only be given tasks for
which they are trained and not simply supplement the other service in a potentially
dangerous situation.
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5.4.2 Access to the public transport system during an evacuation
If assistance is required to transport people due to an evacuation following an emergency
or major incident, PSNI can invoke their Memorandum of Understanding with Translink to
request assistance using the public transport system.
5.4.3 Initial Public Safety Announcements
The emergency services should work together to ensure that public safety messages are
related to the public as quickly as possible. This may be through house to house calls,
loud hailers, through the media or using social networking arrangements.
5.4.4 Ongoing Public Information/Media Arrangements
Each organisation maintains responsibility for alerting its own media/public information
representative if required.
The EPG Public Information/Media Plan provides guidance on how the media
representatives from all the responding organisations will work together throughout the
incident to provide information to the public and the media.
5.4.5 Establishing Key Locations and Functions
Depending on the incident, the following key locations and functions may be established
by the various responding organisations:
- On Site (Scene) Command Point
(see Key to Diagram of Key
Locations below)
- Triage
- Access Control Point(s) - Ambulance Loading Point
- Scene Access Control Point(s) - Casualty Clearance Station
- Cordons – inner and outer - First Aid Provisions
- Rendezvous Point - Emergency Support Centres
- Marshalling Area - Hospital Documentation Teams
- Traffic Management - Casualty Bureau
- Diversions - Welfare Provisions for
Responders
- Decontamination (if necessary) - Cultural and Faith Provisions
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Each of these key locations and functions is defined in the following paragraphs.
5.4.6 Diagram of Key Locations
The first responders to the scene should be cognisant of the footprint that will be required
for all the emergency responders that will attend the scene. Sufficient space needs to be
established at the outset within the appropriate cordon for vehicles, personnel and those
involved in the incident.
The diagram below shows the location of these key locations. Responders should be
cognisant of the wind direction and suitability of locations when determining where to
locate. NIFRS prefer to use a line diagram to depict these arrangements (the content is
identical). This is shown at Appendix K.
The diagram is stylised for demonstration purposes. The location of each element is
indicative only, and will be flexibly interpreted in the context of individual incidents.
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Marshalling Area
Access Control Point
Scene Access Control Point
Casualty Clearance Station, Ambulance Parking & Loading Point Survivor Assembly Area
Access Control Point
HotZone
RVP
INNER CORDON
On Site (Scene) Command Point *
Diagram of Key Locations
OUTER CORDON
Note: If hazards are present in the incident hot zone, other structures e.g. decontamination
will be established where required.
Operational Commanders from NIFRS and NIAS may deploy into the Inner Cordon area.
* KEY – On Site (Scene) Command Point
Organisation Command Terminology
NIFRS Silver / Tactical Command Support Unit (CSU)
NIAS Silver / Tactical Ambulance Command
PSNI Bronze / Operational Forward Command Post
Other(s) As required
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5.4.7 On-Site (Scene) Command Point
This is where the command vehicles of the various responders will be co-located and
exercise their respective command functions at the scene. The scene commanders from
each organisation should be prepared to meet as soon as possible to discuss tactical
matters at the scene. Blue Light responders use different terminology for this location, and
this is outlined in the Key to the diagram above.
5.4.8 Access Control Point
The Access Control Point is a controlled point through which essential non emergency
service personnel may gain access through the outer cordon.
This will be controlled by PSNI.
5.4.9 Scene Access Control Point
The Scene Access Control Point is a controlled point through which essential personnel
may gain access through the inner cordon. NIFRS and PSNI may jointly control access at
this point to ensure that investigative (PSNI) and health and safety (NIFRS) priorities are
maintained.
5.4.10 Hot Zone Cordon
Within the inner cordon, NIFRS may also identify a hot zone cordon. Where this is
applicable, NIFRS will control access to the hot zone through the Forward Control Point.
5.4.11 Cordons
Security and safety cordons are essential to guard the scene of an incident, protect the
public, control sightseers and prevent unauthorised interference with, for example,
wreckage, public and private property and to facilitate emergency services operations.
An incident may require water based and/or land based cordons.
Emergency service commanders should consult with each other (when appropriate) and
then establish appropriate inner and outer cordons as soon as is practicable.
Inner cordon: to provide immediate security of the incident site (which must be preserved
as a 'scene of crime') and allow operations at the incident site to continue in safety and
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without interruption. Only authorised personnel, i.e. those having an identified function
and appropriate PPE, should be allowed within the inner cordon. A joint access control
point (the Scene Access Control Point) should be established as outlined above. The
inner cordon should be defined with appropriate tape.
Within the inner cordon, NIFRS may define a hot zone and warm zone if appropriate.
Outer cordon: to control a wide area surrounding the scene (size determined by the
incident). All access and exit points must be staffed and persons seeking access vetted.
Appropriate tape should be used to denote the extent of the area (where practical).
5.4.12 Rendezvous Points
If a major incident/emergency is declared, large numbers of responding vehicles will be
involved. As soon as practicable all resources attending the scene should initially be
directed to designated land (and water if appropriate) Rendezvous Points (RVPs).
Each of the relevant Emergency Services will appoint Officers to carry out the following
functions:-
Maintain a log of incoming resources;
Inform the Incident Control Point of resources availability;
Brief personnel attending the scene;
Issue equipment as necessary;
Log details of resources leaving the RVP to be deployed;
Direct reserves to a marshalling area and liaise with the Marshalling Officer.
Officers will be required to identify suitable locations to ensure that any responding
vehicle/vessel is appropriately briefed prior to attending the scene.
5.4.13 Marshalling Area
The Marshalling Area is where resources and personnel not immediately required at the
scene can be directed to stand by, and may be located either inside or outside the outer
cordon.
Liaison officers from the responding organisations should be available at the marshalling
area.
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5.4.14 Traffic Management and Diversions
A PSNI Bronze Traffic manager will be identified to facilitate these arrangements in
conjunction with the Transport NI Traffic Information Control Centre (TICC).
The police will attempt to ensure free passage of emergency traffic to and from the site
and to prevent congestion at the scene and in the surrounding area. PSNI will work with
Transport NI to agree a strategy for main arterial routes using the ‘Joint Protocol for the
Management of Major/Critical Incidents on the Strategic Road Network’. Diversionary
routes should be established to divert all non-essential traffic from roads leading to or from
the incident. Information on traffic diversions should be passed to the media for public
broadcast. The relevant PSNI CMC and the Transport NI Traffic Information Control
Centre can assist in notifying motorists of diversions using overhead signage on the
motorways.
Emergency routes to and from designated hospitals will be identified in consultation with
the NIAS. Routes to Receiving Hospitals and Emergency Support Centres should be kept
free as far as reasonably practicable.
Wherever possible a 'one way' traffic system, with defined access and exit routes for
essential services, should be implemented to ensure the rapid attendance of emergency
vehicles at the scene and to facilitate the unimpeded removal of casualties to hospital.
If there is only one common access/exit route 'turning areas' must be identified and
supervised to avoid congestion. These areas should be identified in consultation with the
responding emergency services and communicated to the relevant CMC.
5.4.15 Meeting Points and Identification of Key Staff
It is likely that responding organisations will request additional staff resources during a
major incident. This may involve requesting staff to come from other locations or calling
off duty staff to attend. Traffic congestion is likely during a major incident and staff may
find it difficult to travel. In these circumstances consideration should be given to identifying
a meeting point for key staff and shuttle services can then be arranged to transport staff
from this point to the location where they are required, for example at a hospital, an
emergency support centre or the traffic information control centre.
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Staff should carry identification cards either on their person or in their vehicle to enable
those organising shuttle services to identify that they should be transported.
5.5 Medical Provisions
5.5.1 Casualty Clearance Station
A Casualty Clearance Station (CCS), if required, will be established at locations agreed by
NIAS. Medical personnel will treat the injured at this location prior to their removal to
hospital.
A NIAS officer will be identified as the Casualty Clearance Officer. This officer will:-
Liaise with medical staff to maintain a count of all persons processed through the
clearing station including designated hospitals and numbers of casualties taken to
each.
Ensure that those persons who are dead on arrival or who die prior to their removal
to hospital are labelled and bagged prior to their removal to the designated body
holding area.
Ensure that persons not requiring, or declining, hospital treatment are directed to
the Survivor Reception Centre where full documentation procedures will be carried
out.
5.5.2 Triage
Triage is the assessment of casualties and allocation of priorities by the medical or
ambulance staff at a casualty clearing station and/or a receiving hospital.
The NIAS triage process involves giving each casualty a colour coded triage card which
will be word by the patients around their neck:
P1 – Red (casualty requires immediate medical attention)
P2 – Yellow (casualty requires urgent medical attention)
P3 – Green (casualty requires medical attention).
5.5.3 Decontamination of Individuals
NIAS has responsibility for the assessment of both survivors and responders and will
determine if decontamination of individuals is required. If needed, NIAS will determine the
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type of decontamination required. NIAS has the capability to decontaminate a small
number of people using its HART team. NIAS can also request assistance from NIFRS to
undertake decontamination.
5.5.4 Ambulance Loading Point
The Ambulance Loading Point will be co-located with the Casualty Clearance Station.
NIAS will supply Ambulance Loading Officers to ensure that casualties are evacuated in
order of priority, as directed by medical staff and to provide a communications link with
receiving hospitals via Bronze/Silver Command. Where resources permit, police will
allocate an officer to assist at these locations and document casualties.
5.5.5 Medical Support Provisions for Responders
A continued presence by the NIAS may be requested by any of the emergency service
commanders to provide standby medical provision if:
The number of responders on site combined with possible hazardous conditions
warrants it.
There is a continued possibility of survivor rescue.
5.6 Survivor Management
5.6.1 Hospital Documentation Teams
On activation of the PSNI Emergency Response Plan the PSNI Silver Commander will
consider if hospital documentation teams are required. At specified receiving Hospitals the
relevant local Police District will supply officers as hospital documentation teams to collect
information from the hospital.
Receiving hospitals will liaise with the police to inform them as to where hospital
documentation teams will be required.
5.6.2 Ongoing Public Health Advice
Where ongoing public health and wider scientific and technical advice (beyond that
available from the initial 24/7 health protection process noted above) is deemed to be
necessary to assist the decision making and co-ordination process of the responding
agencies, public health may recommend to the multi-agency tactical commander that a
STAC be established. Vice versa the multi-agency tactical commander may also request
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PHA to set up a STAC. The establishment of a STAC is particularly important where there
are wider public health and environmental health consequences such as in a CBRN or
HAZMAT incident.
Membership of the STAC will be incident specific and members should have the necessary
knowledge and skills to collectively provide scientific and technical advice relevant to the
emergency. A core membership in most scenarios is likely to include the expertise
available within PHA; NIAS (HART); NIFRS (HAZMAT) and local environmental health.
As the initial focus will be on the risks to human health the STAC will be chaired by public
health however as the incident progresses the focus may move away from health matters,
for example to wider environmental concern, and it would then be appropriate for the cell
to consider reassigning the chair.
When required, the Public Health Agency will provide ongoing public health advice to the
public.
5.6.3 Emergency Support Centres
An Emergency Support Centre is a “designated secure building for the temporary
accommodation of individuals/families who have been involved in an emergency/incident.”
There are three types of Emergency Support Centre:
Rest Centre: A rest centre is an emergency support centre which is established when
members of the public have been evacuated from their homes or place of work and require
temporary shelter, care and support until they can return to their homes or be
accommodated in another way.
Survivor Reception Centre: A survivor reception centre is an emergency support centre
in which survivors of an emergency/major incident who do not require hospital treatment
can be taken for short-term shelter, first aid, interview and documentation.
Friends and Relatives Reception Centre: A friends and relatives reception centre (or
Family and Friends Reception Centre) is an emergency support centre which is
established by the police in consultation with the local Health and Social Care Trust and
local Council to cater for the family and friends of people affected by an emergency.
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The detail of how these centres are requested, set up, managed and closed is provided in
the EPG Generic Protocol for the Establishment of Emergency Support Centres.
PSNI may also have access to keyholder contact details for a range of buildings such as
churches and schools which are not included in the list of pre-designated buildings. To
ensure that the keyholder is provided with appropriate support, the activation protocol
should still be followed if these premises are opened for the public.
5.6.4 Casualty Bureau
Casualty Bureau is also known as the Police Casualty Bureau and is the initial point of
contact, maintained by the police, for all information relating to persons believed to be
involved in the emergency.
The Casualty Bureau may be part of the Police response to a major incident. Activation of
the Casualty Bureau will be via the Incident Co-ordination Centre (ICC) with the
authorisation of the Gold Commander.
5.7 Fatalities
Should fatalities occur, the Coroner will be informed of the circumstances by the PSNI.
The Coroner will liaise with the State Pathologist’s Department and others as necessary
to decide on the mortuary provisions that will be utilised. This may be through existing
mortuary capacity, or where numbers exceed this, by using temporary provisions in
accordance with EPG Mass Fatalities Plan.
Police can deploy divers regarding underwater searches and body recovery.
5.7.1 Victim Audit Area
Should the incident result in fatalities a Victim Audit Area may be identified. This will be
staffed by officers from the PSNI Body Recovery and Identification Team. Remains can
be temporarily held in this secure private location prior to transport to a mortuary. The
victim audit area acts as a quality control point for victim labels and other accompanying
documentation.
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5.7.2 Family Liaison Officers
In the case of fatalities resulting from the incident, the Police Senior Investigating Officer
or Senior Identification Manager will deploy Family Liaison Officers (FLO). The relevant
CMC will task Police FLOs via existing call-out procedures.
5.8 Welfare Provisions for Responders
5.8.1 Health and Safety
Each organisation is responsible for the health and safety of its own staff. Experts such
as HSENI and PHA may be contacted to provide advice if the circumstances warrant it.
Each responding organisation should also be cognisant of the health and safety of those
involved in the incident.
5.8.2 Providing for Responders
Each organisation maintains responsibility for providing for the physical and psychological
needs of its staff both during the response and after.
5.9 Cultural and Faith Provisions
The Home Office and Cabinet Office guidance – ‘The Needs of Faith Communities in Major
Emergencies’ provides key information in relation to nearly twenty different faith/cultures.
It provides an overview of key issues such as language, diet, medical treatment, dying,
death customs and resources. Emergency responders should refer to this document or
speak to the individual affected when trying to determine what cultural or faith provisions
should be made.
The Belfast EPG Faith Directory contains contact information for NI representatives from
a range of faiths and cultures.
5.10 Retrieval and Investigation
Once search and rescue work has been completed, PSNI will undertake retrieval and
investigation work in conjunction with the relevant investigation authorities.
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6 Procedures for Stand-Down/Transition to Recovery and Debriefing
Once a major incident/emergency has been declared, a Multi-Agency Recovery Forum
(MARF) will be formed by the local Council(s) to work alongside the multi-agency co-
ordination group to manage and provide advice in relation to recovery issues.
When the lead co-ordinating agency is ready to stand-down, a formal hand-over will occur
and the local Council(s) will then continue to progress the recovery process.
6.1 Debriefing
6.1.1 Staff and Single Organisation
Each organisation has responsibility for debriefing their own staff and arranging their own
internal organisation debrief.
6.1.2 Multi-Agency
The lead co-ordinating organisation has responsibility for arranging a multi-agency debrief
on a timely basis.
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Appendix A: Extracts from JESIP Doctrine including Scene Assessment Mnemonic
Principles for Joint Working:
Joint Decision Model:
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Scene Assessment Mnemonics:Historically each emergency service organisation had their own mnemonic to use when
undertaking an initial scene assessment and assessing resources and expertise required
in the initial response. Following the introduction of JESIP the emergency services all now
use METHANE as the recognised model for passing incident information between services
and their control rooms:
Major -major incident declared (or hospitals to stand by)Exact - exact location of the incident, with map references if possibleType - the type of incident with brief details of types and numbers of vehicles,
trains, buildings, aircraft, etc involvedHazards - present, suspected or potentialAccess - best access routes that are safe to use for emergency vehicles and suitable
provisional rendezvous points (RVPs)Numbers - approximate numbers of priority 1, 2 and 3 patients, dead and injuredEmergency - emergency services present and required including other support
organisations.
Extract from JESIP:
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Appendix B: Map of Emergency Preparedness Group Boundaries
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Appendix C: Specimen Agenda for TCG
Specimen agenda
Introduction of attendees, roles and responsibilities (as required)
Declaration of items for urgent attention
-------------------------------------------------------------------------
Break out time to address items for urgent attention (if required)
-------------------------------------------------------------------------
1. Review and agree minutes of previous meeting
2. Purpose of Meeting
3. Assessment of Situation : Update from Relevant Organisations
4. Determine/Anticipate Impacts
5. Vulnerabilities. Infrastructure, Vulnerable Premises/Persons,
6. Command and Control. Responsibility for Coordination, Coordination Centre,
Assessment of requirements
7. Setting Objectives. Mission and Task objectives. (Long, medium and short term)
8. Responses. Capacity of lead departments and agencies, requirements for mutual
aid, sources of mutual aid, anticipation of other needs. Sources of support
9. Media / Information to the Public/ Elected members/. Multi-agency lead for
communication
10.Next Steps : Actions and Timescales for Delivery
11.AOB
12.Time of Next Meeting
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Appendix D: Specimen Agency for SCG
Specimen agenda
Introduction of attendees, roles and responsibilities (as required)
Declaration of items for urgent attention
-------------------------------------------------------------------------
Break out time to address items for urgent attention (if required)
-------------------------------------------------------------------------
Review and agree minutes of previous meeting
Update on Strategic Situation (Common Recognised Information Picture)
Review and agree Strategic aim and objectives
Review outstanding actions
Updates from working groups/cells/attendees (by exception)
Discuss and agree on Strategic Decisions
Confirmation and allocation of Actions Required
Discuss if MTPAS needs to be invoked
Agreement as to date, time and location of the next meeting of the SCG
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Appendix E: Draft Strategic Intention for Use by the SCG
Strategic Intention Notification in relation to:
Incident:
Date:
Time:
The current agreed priorities of the Strategic Co-ordinating Group are as follows:
Preserve and protect life
Preserve public health and public safety
Mitigate and minimise the impact of the incident
Inform the public and maintain public confidence
Prevent, detect and deter crime
Assist an early return to normality
Safeguard the environment
Facilitate and inform judicial, public, technical and other enquiries
Relieve suffering
Maintain normal services at an appropriate level
Contain the emergency, limiting its escalation and spread
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Appendix F: Initial Incident Report TemplateINITIAL INCIDENT REPORT
INITIATING AGENCY…..................................... DATE/TIME ….............................
OFFICER RESPONSIBLE…...................................... CONTACT DETAILS….........................
a) The nature of the incident.
b) The location of the incident
c) Date and time of occurrence
d) Available estimate of the severity.e.g. Casualty numbers, environmental contamination issues, extent of areas affected, areas at risk
e) Response Phase Lead
f) The location from which the response will be co-ordinated e.g. Police Silver Command or Sub-regional Multi-Agency Group
Contact details for lead agency
g) Other Organisations and Agencies involved
Key contact details
h) Identified objectives and priorities
i) Immediate support required. E.g. provision of accommodation, personnel,
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equipment or other support.
j) Information available regarding access to designated buildings, safe routes etc.
k) Estimate of duration of response phase
l) Key information for public.
It is suggested that this form should be completed in the first instance by the lead agency and, if subsequently the incident passes to a sub-regional multi-agency group, by the coordinator of that group.
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Appendix G: Ongoing Situation Report Template for Multi-Agency Co-ordinationSITUATION REPORT
DATE/TIME ................................
CONTACT DETAILS............................
a) Situation Overview
b) Current Situation
c) Key Events for this Reporting Period
e) Other relevant Informatione.g. manpower/staffing issues/support requiredmedia/communications
f) Actions planned to take place over next reporting period
g) Forward Look: issues that may arise over longer period
h) Other Information not covered elsewhere
i) Attached information
j) Time of Next Update
k) Relevant contact details
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Appendix H: Guidance for Activation and Management of Emergency Co-ordination Centres
1 INTRODUCTION
1.1 Purpose
The purpose of this guidance document is to bring clarity and uniformity to the operation of each designated Sub Regional Emergency Co-ordination Centre (ECCs) in Northern Ireland. The guidance considers the process of activation of these centres, outlines their aim, details incidents when these facilities are to be opened, their function and the roles and responsibilities of agencies participating within the centre. Included with Annexes are the operational procedures associated with the activation and management of the designated centres.
1.2 Aim of Guidance
The aim of this guidance document is to provide a consistent approach for the activation, management and operation of sub-regional ECCs across Northern Ireland.
1.3 Objectives
The objectives of this guidance document are to:
Identify the locations at sub-regional ECCs across each of the sub-regional EPGs
Document the activation triggers for the opening of such a facility
Set out the process for a consistent approach to the operation of such a facility
Ensure a common understanding by all participating organisations of the function of the ECC and their organisations role within its operation and
Within the Annexes, outline specific operational guidance for the activation, set-up and management of designated ECCs.
1.4 Links to Internal Documents & Multi Agency Plans
This document is linked to internal NIFRS and PSNI operating procedures for the activation of these centres. The host organisations should ensure that they are familiar with these documents.
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2 ACTIVATION OF A SUB-REGIONAL ECC
2.1 Decision for Activation
Where a lead agency, emergency responder, essential service provider or local government becomes aware of an emergency with multi-agency impacts, a sub-regional multi-agency emergency response group may be convened. This group is referred to as the multi-agency response group or the Tactical Co-ordinating Group (TCG).
A sub-regional ECC may be established in response to a local or strategic level emergency, as defined within the CCG (NI) Protocol for multi-agency co-ordination of local level response and recovery (June 2014, V3).
2.2 Choice of Location of an ECCFactors such as estimated duration of the response, potential for developments within the response phase, the location where it is best to facilitate the command of the specific incident and also staffing issues should be considered.When identifying a potential location consideration needs to be given to a wide range of actors in order to provide suitable facilities on site or nearby. This includes; access security and resilience accommodation parking utilities communications health and safety catering
When a sub-regional ECC is activated, the TCG will convene as soon as possible to facilitate communication and agree a ‘joint approach’.
An ECC may be set up on a pro-active or reactive basis.
2.3 Pro-active Activation
For events which are known about in advance, or scenarios which can be predicted, it may be appropriate to activate a sub-regional ECC.Examples of pre-planned events include:
Large public assembly events Potential incidents that can be predicated or have a known lead-in period, e.g.
coastal flooding
2.4 Reactive Activation
The sub-regional ECC may be activated in response to:
A major incident
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Response to flooding incident Response to severe weather As a result of any organisation represented on a local EPG requesting
activation of a specific ECC.
2.5 Activation Details
The centres can be activated using the activation details as outlined in Section 1.2. It is the responsibility of the lead agency assisted by the PSNI/EPCO to ensure all the appropriate organisations are contacted as soon as practicable to attend the centre.
2.6 Co-ordination of the Multi-Agency Response
The CCG (NI) Protocol for multi-agency co-ordination of local level response and recovery outlines in detail the arrangements for the;
multi agency assessment of an anticipated or developing situation; co-ordination of the multi-agency response and recovery; and inter-agency communication and compilation of an accurate and up to date
information picture for the developing situation.
To summarise, the PSNI will co-ordinate the multi-agency response group, where the incident poses a threat to life. Where the emergency services (first responders) do not clearly have a primary role in responding to the incident, the TCG would normally be convened by the relevant EPCO and be chaired by the District Council Chief Executive. (The District Council CEO may delegate the role of chair to the EPCO).
Where another emergency responder organisation would more appropriately chair the TCG, this would be determined by agreement.
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3 MULTI-AGENCY CO-ORDINATION WITHIN THE ECC
3.1 Linkage with Protocol for Multi-Agency Co-ordination of Local Level Response and Recovery
The CCG (NI) Protocol for multi-agency co-ordination of local level response and recovery (June 2014, Version 3) sets out arrangements for the co-ordination of the multi-agency response and recovery of a local level emergency. In Northern Ireland a local level emergency is classified as an emergency where the outcomes are such that the response can be delivered entirely by organisations operating locally/sub regionally.
Reference should be made to this protocol for the management of the response phase.
Particular attention should be made to the following documents which are included as Annexes to the Protocol for multi-agency co-ordination of local level response and recovery. These documents should be utilised to allow for a consistent approach across organisations and sub regions:
Annex A: The completion and distribution of the Incident Report TemplateAnnex B: The use of the suggested Agenda for the multi-agency meetingAnnex D: The completion of Incident LogsAnnex E: The completion of a composite Situation Report with input from all
participating organisations
3.2 Roles of Participating Agencies within the response phase of an emergency
Each participating agency will be requested by the organisation chairing/ facilitating the ECC or to input via conference call. All participating agencies will input to the completion of a composite Situation Report. Each organisation will be required to detail: Key events for the reporting period Other relevant Information e.g.
- manpower available- staffing issues- support required- media/communications
Actions planned to take place over next reporting period Look forward: Issues that may arise over longer period Relevant contact details
3.3 Potential for Escalation to Regional Level
Where a potential need for escalation has been identified by two or more agencies within the TCG because:
the impact is likely to be severe and /or prolonged and affect a widespread geographical area; and / or
there is potential for progression / expansion from a local level emergency to a
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strategic level emergency;
then the lead agency will contact CCPB, or if more appropriate the Lead Government Department, who will in turn will convene an assessment group of key responders to the incident to make a joint multi-agency risk assessment of the potential or actual impact for the wider community. CCPB will act as default for this function.
This action is as detailed in the CCG (NI) Protocol for the Escalation of the Multi-Agency Response.
3.4 Review of Co-ordination of IncidentIn the event of the incident progressing where the focus of the lead agency may change, consideration should be made to making alternative arrangements to a more suitable location. This issue will be included within the multi-agency meeting agenda and any move to an alternative site be considered within a reasonable time scale.
3.5 Validation & Training
The validation of this guidance should be included in the ongoing exercise programme for the respective EPG area. Functionality checks on the facilities within the centre/room should be carried out at regular planned intervals. Annex 2 suggests a recommended format for such checks/validation of the centre’s functionality. Each member organisation of the EPG should conduct their own training/awareness to ensure that relevant personnel within their organisation can effectively deliver their responsibilities within the remit of the TCG.
3.6Ownership and Review
This is a multi-agency document which was produced by the EPG General Purposes Group. The document and its annexes will be reviewed after each activation of the room/centre and in whole on an annual basis.
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ANNEX 1Location and Activation Details for ECCs
Across Northern Ireland, the designated ECCs are as follows:
EPG Area
Name of Room/Centre
AddressContact
Details for Activation
PSNI Strategic Co-ordination Centre
PSNI Headquarters, Brooklyn, 65 Knock Road, Belfast, BT5 6LE
Contact PSNI
Silver Control Room, Musgrave Street PSNI Station
60 Victoria Street, Belfast, BT1 3GL Contact PSNI
Eastern Area Command Support Room
Eastern Area Command Headquarters, 6 Bankmore Street, Belfast, BT7 1AQ
Contact NIFRS
NIFRS Specialist Operations Co-ordination Centre
Central Fire Station, 6 Bankmore Street, Belfast, BT7 1AQ
Contact NIFRS
BCC Emergency Co-ordination Centre, Belfast City Hall
5 Donegall Square South, Belfast, BT1 5GS
Contact Belfast City Council
BCC Duncrue Emergency Management Room
Duncrue Complex, Duncrue Road, Belfast, BT3 9BP
Contact Belfast City Council
Multi-Agency Co-ordination Centre
George Best Belfast City Airport, Belfast, BT3 9JH Contact GBBCA
Belfast EPG
Belfast Harbour Commissioners Port Operations Centre,
Milewater Basin, Belfast, BT3 9AF Contact BHC
Silver Control RoomBangor PSNI Station, 1-5 Castle Park, Bangor, BT20 4BN
Contact PSNI
Coastguard Operations Centre, Bregenz House
Quay Street, Bangor, BT20 5ED Contact HMCGEastern
EPGNIFRS Regional Control Centre
NIFRS Headquarters, 1 Seymour Street, Lisburn, BT27 4SX
Contact NIFRS
NIAS Hub Ballee Road West, Ballymena
Contact NIAS
HM Coastguard Station Gateside Road, Portrush Contact HMCG
Northern EPG
Mossley Mill, Antrim & Newtownabbey BC
Carnmoney Road North, Newtownabbey, BT36 5QA
Contact Antrim & Newtownabbey BC
Southern EPG
Ardmore Police Station Ardmore Police Station, 3 Belfast Road, Newry, BT34 1EF
Contact PSNI
NIFRS Western Area Headquarters
Northern Ireland Fire & Rescue Service Western Area Headquarters, 10 Crescent Link, Londonderry, BT47 5FR
Contact NIFRSWestern EPG
NIFRS Niall Hamilton SuiteNIFRS Omagh
NIFRS, Omagh District Headquarters, 1 Killybrack Road,
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Omagh, BT79 7DG
Silver Command Room
Strand Road PSNI Station, 81A Strand Road, Londonderry, BT48 7AA
Multi-Agency RoomOmagh PSNI Station
Omagh PSNI Station, 1 Derry Road, Omagh, BT78 5DR
PSNI Regional Control Centre: 028 9065 0222
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ANNEX 2Detailed Descriptions of each designated ECC
(these details will be collated and stored locally)
Name and Address of Sub Regional Emergency Co-
ordination Centre
GIS Co-ordinates
Ownership of CentreActivation Details for Centre
FACILITIES DETAILS ADDITIONAL COMMENTS
PHYSICAL ENVIRONMENT
Suitable sized room with separate meeting room and additional break out rooms.
24/7 access to room
Sufficient parking availability
Outline of welfare facilities
Pre-agreed layout and membership within room
Storage capacity for agencies to store documents, equipment or other items that may be necessary during the response to a multi-agency incident
TELECOMMUNICATIONS
Direct Dial-in availability within each room
Teleconference Phone in the multi-agency meeting room
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Good mobile telecommunications reception
Base Radio for NIAS, NIFRS and PSNI
Video conferencing facilities
IT FACILITIES
Access to IT Systems – via Wi-Fi or wired connections. (This may be via pre-agreed guest log-in details)
SMART Boards
TV Screens
Access to printer
Access to CCTV
Other relevant information:
- Plan illustrating layout of room(s) as an ECC: attached -
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ANNEX 3 Functionality Checks Schedule for ECCs
ELEMENTS TO TEST
DETAIL DATE TEST CONDUCTED
AREAS HIGHLIGHTED
TO ACTION
DATE ACTIONS
COMPLETED
EPG SIGN-OFF
Physical Environment
- Access to Room
- Pre-Agreed layout of room
- Membership within ECC
Telecommunications
- Testing of phones
- Testing of radios
- Testing of video - conferencing
assets
- Testing of internet and Wi-Fi connections
- Testing of printers
- Testing of access to websites/portals eg Spatial NI, Rivers Agency Stakeholder Viewers and Resilience Direct
Training & Exercising
- Ensuring that each organisation have up-to-date documents securely available within the ECC
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- Familiarisation of each organisation on their role within the ECC
- Multi-Agency Functioning of ECC
Other Areas to Test
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Appendix I: Co-ordination Structure for Major Incident at Sea: Search and Rescue Phase
HMCG On Scene Co-ordinator
Sea Land
Coastguard Operations
Centre (CGOC) (Liaison Officers
from agencies as required)
Multi-Agency Tactical
Coordinating Group (TCG)
Multi-Agency Strategic
Coordinating Group (SCG)
PSNI Bronze Scene CommanderPSNI Bronze Traffic ManagementPSNI Bronze Survivor Reception Centre(s)PSNI Bronze Hospital Documentation Team(s)PSNI Casualty Bureau ManagerPSNI Bronze MediaPSNI Scene Evidence Recovery ManagerPSNI Bronze Friends & Relatives Reception CentreHMCG On Scene Co-ordinatorHMCG On Shore Co-ordinatorOther agency operational co-ordinators as necessary
EITHER/OR
Landing Points
(Agreed between
agencies)
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Appendix J: Co-ordination Structure for Major Incident at Sea: Counter Pollution & Salvage Response
Tier 1 and 2 Response Structure – Each Port/Harbour Authority defines its Tier 1 and 2
responses in its OPRC Plan. By way of example operational spills which are contained on
the ship or dockside and do not enter the water and spills which enter the water which are
dealt with by the Belfast Harbour Commissioners and co-ordinated as shown below:
Sea Land
Port/Harbour
Authority
Incident
Control Centre(Liaison Officers
from agencie
s as require
d)
Multi-Agency Tactical Coordinating Group (TCG)
Multi-Agency Strategi
c Coordinating Group (SCG)
EITHER/OR (if any
required)
Report to & consu
lt SOSR
EP Environment Group (EG)(NIEA led)Contractors (if
appointed)
Shoreline Respons
eCentre
(Port/Harbour
Authority Led)
Single Agency Operational (Bronze) as necessary
74
Tier 3 Response Structure – Larger spills or a loss of containment incident likely to spread
outside the Port/Harbour area
Sea Land
Coastguard Operations
Centre (CGOC)(Liaison Officers from agencies as
required)
MarineResponse
Centre (MRC) (HMCG led)
Environment Group (EG)(NIEA led)
Multi Agency Tactical
Coordinating Group (TCG)
Multi-Agency Strategic
Coordinating Group (SCG)
Contractors(if appointed)
Shoreline ResponseCentre (NIEA led if spill outside Port/Harbour Area, Port/Harbour Authority led if spill inside Port/Harbour
Area)
Single Agency Operational (Bronze) as necessary
SOSREP &Salvage Control
Unit (SCU)
EITHER/OR
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Appendix K: Key Locations at the Scene – NIFRS Diagram
HOT ZONE/SCENE(Only personnel on a specific task, with correct PPE and accounted for allowed in this
zone)
HOT ZONE CORDON___________________________] [_________________________
Controlling access to Hot Zone: NIFRS lead
WARM ZONE(Only responders needed at ICP for liaison in this zone)
ICP: On-Site Command and inter-agency liaison point: NIFRS lead___________________________] [_________________________INNER CORDON
COLD ZONE(Holding area for on-site responders)
Access control to secure area: PSNI lead___________________________] [_________________________OUTER CORDON
