The role and function of command is primarily strategic, regardless of the size of the incident or event. Strategy is taking a big-picture view of an incident; nevertheless, every big picture is relative based on the type of incident and the resources available to the incident commander to affect the incident’s course.

For many incident commanders, strategic planning is something that they do in their heads and communicate to those working in the command structure. Operating this way often impresses fire service folks because it suggests that the IC has the “experience” to be able to manage the incident without a piece of paper. However, there are many situations when the planning needs of the incident outpace the ability of the human brain to keep up with the information and keep it straight “in their head” no matter how much “experience” the IC has.

An important tool in strategic planning for an incident is the incident action plan, which can be written or unwritten depending on the complexity of the incident. In a fully implemented ICS structure, the planning section chief generally is responsible for developing the IAP, however, the incident commander needs to be fully knowledgeable of the plan and the planning process including situations when the plan is best in a written form.

Multiple jurisdictions operating at the same scene create a different set of issues and make written plans extremely important. The assumption is that agencies at a single scene often are from the same jurisdiction, which has legitimate authority and ability to set policy. This authority, along with familiarity, allows agencies in the same jurisdiction to develop almost a sixth sense regarding what other agencies will do. Conversely, agencies from different jurisdiction have limited opportunities to work together or to develop working knowledge of each other’s tendencies at an incident. A written plan makes operational intentions clear to all that are involved, whether they have worked together regularly or not.

Another situation that simply cries for a written plan is an incident that extends more than one operational period. An operational period is not a prescribed period of time, rather is a period of time within which strategic goals are accomplished. Though there is no set time for an operational period, four hours is a general guideline for a structural fire incident, six hours for hazmat or technical rescue incidents, and 12 hours for major or disaster operations. An operational period is sometimes perceived as a break when the incident allows the responders to switch out the players. This is actually an opportunity to reassess the plan and how successful it either is or is not. A written plan with clear strategic goals is the best way to assess effectiveness.

As a management tool, the ICS is at its best when an organization is dealing with a significant incident. Significant incidents generally more attention to how the resources on scene are managed than how the incident itself is resolved. The more significant the incident, the more important a written plan of action is in place to assist the IC in managing the incident. Complex incidents tend to become more challenging from a logistical and planning perspective than they are from an operational perspective. Complex logistical situations are made more complex when plans are not written and understood by all involved.

In the end, written reports and plans are not the most exciting activities that a fire official will engage in. There are many arguments that can be made to dedicate limited resources at an incident to other functions. However, a clear, concise, written incident action plan will be the most important tool that an incident commander will have at their disposal to manage a complex incident effectively. Though it might be instinctual to go off the top of one’s head when strategizing at an incident; there are definitely times when just have to write the plan down!

I. David Daniels is fire chief of the Fulton County (Ga.) Fire Department, a metro department surrounding the City of Atlanta. He holds a master's degree in human resources management. He is a member of the NFPA’s Fire Service Occupational Safety and Health and the Professional Qualifications for Incident Management Functional Positions committees.