Assessment, Search and Coordination Methodologies. INSARAG Technical Note

Transcription

1 Assessment, Search and Coordination Methodologies INSARAG Technical Note Second Edition, March 2012

2 Table of Content 1 Introduction Basic Principles Coordination by Cooperation Integrate UNDAC and USAR/INSARAG Cultural Awareness Spans of Control Operational Levels Scalability Adaptability Accountability/Responsibility Situational Awareness Field Environment Information Management Safety Assessment, Search and Rescue Levels Introduction The Levels Level 0: Pre Deployment Research of the Affected Area Level 1: Wide Area Assessment Level 2: Sector Assessment Level 3: Primary Search and Rescue Level 4: Secondary Search and Rescue Level 5: Full Coverage Search and Recovery Coordination Methodology Coordination Actors Local Emergency Management Authority (LEMA) On-Site Operations Coordination Centre (OSOCC) Sub-OSOCC Reception and Departure Centre (RDC) USAR Coordination (UC) Sector Coordination (SC) USAR teams Sectorisation... 15

3 4.2.1 Sectorisation Principles Sector Identification System Advantages of Sectorisation Sector Coordination Principles of Sector Coordination Concept of Sector Coordination Advantages of Sector Coordination Worksites Definition of a Worksite Worksite Identification System Worksites Within Worksites Sector and Worksite Identification Protocols USAR Team Identification Marking System USAR Coordination Guides Local Emergency Management Authority (LEMA) On-Site Operation Coordination Centre (OSOCC) Sub On-Site Operation Coordination Centre (Sub-OSOCC) Reception / Departure Centre (RDC) USAR Coordination (UC) Sector Coordination (SC) USAR Team Information Management tools... 31

4 1 Introduction This Technical Note was developed as a result of the Operations Working Group (OWG) work cycle 1. The creation and tasking by the INSARAG Steering Group of the OWG was a result of INSARAG member s feedback. Feedback was gathered through various means including; field operations and experience and more broadly, team engagement events. A number of lessons aimed at improving field coordination, efficiency and effectiveness were identified. USAR operations, as they become larger, more complex and more frequent have continued to provide ever increasing challenges from a coordination perspective. Effective coordination capability is most critical during large scale disaster events such as those that INSARAG members engage in. When coordination systems are ineffective or fail the impact on all involved is significant. It leads to a breakdown in timely reporting, the flow of quality and timely intelligence, efficient and coordinated action and oversight and accountability of teams and personnel at a time when it is most needed. On this basis the OWG was tasked through its Terms of Reference (ToR) with reviewing current INSARAG USAR doctrine and the underpinning coordinating structure to identify potential enhancements. This document and Work Cycle 1 focuses on: 1. Methodology for USAR operational planning 2. USAR assessment and search Critical to the outcome of this review was breaking down the functions and characteristics of the roles performed, the tasks required and the reporting lines required to better understand the relationships and unique requirements of each and every step. The changes included are focused on enhancing the operational performance of overall coordination on the premise of operational need. The OWG has articulated its strategy to ensure the INSARAG community has the capability to undertake coordination and field operations at rapid onset, large scale, and complex USAR incidents requiring international response. Sound, integrated methodology will enable the INSARAG community to more efficiently respond and coordinate these events and do so with greater consistency and effectiveness. The recommended methodology changes will provide an enhanced platform for servicing the INSARAG communities operational needs now and into the future, ensuring that INSARAG is best placed to serve and protect communities impacted by such events. 2 Basic Principles The Operations Working Group s approach to the review of USAR methodology in keeping within its ToR was based on an agreed set of principles. These basic principles were to ensure fair, equitable, unbiased methodology was developed and implemented in the best interests of operational efficiency and effectiveness. These principles are: 2.1 Coordination by Cooperation It is recognised that the environment in which international USAR teams operate and the need to coordinate that response is conducted; not by Command and Control, but on the basis of mutual cooperation based on respect. Appropriate recognition is given to the autonomy of nations, teams and individuals.

5 2.2 Integrate UNDAC and USAR/INSARAG The critical nature of the UNDAC/USAR relationship to the success of operations is acknowledged. Methodology developments must be designed to support and enhance the integration and close cooperation required between UNDAC and the USAR/INSARAG community. 2.3 Cultural Awareness It is recognised that the environment in which international USAR teams operate and indeed the teams themselves are culturally diverse. Consideration and appropriate recognition of this international environment and the cultural requirements of both host countries and responding countries will be included in new methodology. 2.4 Spans of Control New methodology will be developed acknowledging and adopting the accepted wisdom that span of control is usually most effective when maintained with between 5 to 7 assets. Devolving coordination spans of control down when assets exceed this number by use of sectorising etc will ensure optimal effectiveness and efficiency of resource use. 2.5 Operational Levels It is recognised that USAR teams and individuals operate through the course of USAR events at various levels. These levels can vary from the very strategic, to the most basic of duties and everything in between. Any methodologies developed should ensure that they remain relevant to the needs of all levels. 2.6 Scalability It is acknowledged that no two USAR incidents are the same; all methodologies developed must have the ability to be rapidly and seamlessly expanded or reduced. This must be achievable in a manner that does not impact on the effective and efficient delivery of service despite the size of the incident. 2.7 Adaptability It is acknowledged that no two USAR incidents are the same; all methodologies developed must have the ability to rapidly and seamlessly adapt to fit into all possible situations e.g. large scale, complex incident in an undeveloped country compared to a small scale incident in a developed country or vice versa. This must be achievable in a manner that does not impact on the effective and efficient delivery of service despite the size of the incident. 2.8 Accountability/Responsibility Accountability and responsibility are fundamental requirements expected of all actors, at ALL levels within USAR response. All methodology is designed assuming that these characteristics exist within teams/individuals and that it will be required that all participants take responsibility for, and will be accountable for, their actions. 2.9 Situational Awareness Methodology development will be focused on developing systems that will continually try to maintain or improve situational awareness for all levels of participants which is essential for efficient and effective coordination.

6 2.10 Field Environment It is recognised that all methodology and systems developed must be applicable to the most rugged field conditions in which USAR operations can occur Information Management It is acknowledged that the efficient and effective capture, processing, dissemination and use of information will underpin the success of large scale coordination efforts. Methodologies developed must address the end to end information management system requirements. Systems must recognise the value and use of information across the whole cycle of activity Safety Safety and welfare considerations will be foundation considerations applied within all methodology development. 3 Assessment, Search and Rescue Levels 3.1 Introduction A key element of the INSARAG coordination methodology is the means of clearly identifying and defining every level, or type of work, normally needed during a major USAR incident. This can range from remote desk based research about an affected area all the way through to deconstructing a building to get the last deceased victim recovered. Having a clear definition of the levels then allows the coordination actors to be specific about the planning, tasking, specific USAR operations needed and carried out and progress made. Information management tools (templates, forms, reports, marking system, VO etc.) used to facilitate coordination also relate to the level of USAR work being carried out. 3.2 The Levels It has been determined that six levels can define the phases of potential USAR related work. It should be remembered that not all these levels will always be carried out by international USAR Teams, sometimes LEMA resources can do certain aspects. Levels can also be combined when appropriate and it is also possible that different levels of work are being carried out in different areas of the incident at the same time. The six levels are identified as: - - Level 0: Pre Deployment Research of the Affected Area - Level 1: Wide Area Assessment - Level 2: Sector Assessment - Level 3: Primary Search and Rescue - Level 4: Secondary Search and Rescue - Level 5: Full Coverage Search and Recovery Each level is explained and defined in more detail below.

7 Assessment, Search and Rescue Level Level 0: Pre Deployment Research of the Affected Area Level 0 0 Pre-deployment Research of the Affected Area Definition and purpose General desk based research to establish baseline information about:- Initial disaster information e.g. location, scale, damage, casualties, structure types, building characteristics, likely impact Which international teams are nearest, mobilising or likely to mobilise Arrival airports, infrastructure, transport Baseline Country information e.g. demographics, landscape, culture, religion, political, customs, population, economy, weather, customs, immigration, quarantine, currency etc. Local search and rescue capability, medical facilities etc Safety and security Carried out when and by who INSARAG Tools Outputs 1. The USAR teams home base support personnel during the initial alert phase, prior to mobilisation. Updated as necessary throughout a mission. 2. The OSOCC (Sub OSOCC or UC); updated with direct information during the USAR phase. 3. The USAR teams on the ground feeding back information based on local information to the OSOCC (UC) Pre-Deployment Virtual OSOCC, Affected Area Information Template GDACs During Deployment Virtual OSOCC Team Leaders Briefings Country Information Template 1. Overall disaster assessment information 2. Information to assist decision making e.g. to mobilise or not 3. Information for team briefings and planning

8 Assessment, Search and Rescue Level Level 1: Wide Area Assessment Level 1 1 Wide Area Assessment Definition and purpose The preliminary survey of the affected or assigned area Usually accomplished by; vehicle, helicopter, waterborne craft, on foot or from reports from others e.g. LEMA Initial, fast visual check of the damaged or assigned area For the purpose of:- - determining the scope and magnitude of the incident - identifying scope, location and types of damage - estimating the urgent resource needs - developing a sectorisation plan - establishing priorities - identifying general hazards - identifying infrastructure issues - identifying potential BoO locations Teams carrying out this level of assessment must remain mobile, not engage in rescue operations and report the results as quickly as possible Carried out when and by who INSARAG Tools Outputs 1. The LEMA may do this prior to the arrival of teams and provide all or some of this information. If this is not complete it may be beneficial to redo this 2. By members of the OSOCC/UNDAC team on their arrival 3. By assessment elements of USAR teams when allocated areas not already surveyed 1. Level 1 Assessment Report Form 2. Information on the VO 3. RDC/OSOCC briefing These could be supported by information such as:, LEMA briefings, maps, GPS coordinates, photographs, video 1. Level 1 Assessment Report 2. Briefing back to the OSOCC and LEMA 3. Sectorisation plan 4. BoO Location 5. Initial deployment priorities and plan (Where the first teams are sent) 6. Resource requests e.g. more teams 7. Posts on the VO 8

9 Assessment, Search and Rescue Level Level 2: Sector Assessment Level 2 2 Sector Assessment Definition and purpose Main purpose is to identify specific and viable live rescue sites within the assigned sector to allow assignment prioritisation and plan of action. A fast paced but methodical assessment The aim is to assess the whole sector in a timely manner Information from the local population and local responders is often valuable and should be sought during the assessment The Building Triage system should be used at this stage Rescues are not usually performed during this level unless a rapid unexpected opportunity arises or a strategy is adopted to combine Level 2 Sector Assessment with Level 3 Primary Search and Rescue If a live victim is positively identified the decision on whether the L2 team stays or moves on is dependent on the brief the team has and the situation. Additional resources are normally called in to complete further search and subsequent extrication (Level 3/4 teams). If the L2 team stays it must ensure the Sector Assessment is carried on as soon as possible. This level could be done closely behind or possibly simultaneously with Level 1 Wide Area Assessment Carried out when and by who INSARAG Tools Outputs 1. LEMA may have sectorised and started this process prior to assistance arriving. If this is not complete it may be beneficial for a USAR team to redo this 2. It is preferably done closely behind the Level 1 Wide Area Assessment and as soon as possible after sectors have been established 3. If LEMA haven t done this then it will normally be the first action of the initial USAR team(s) in a Sector 4. Usually carried out by a small mobile assessment/search element of the USAR team 5. Use of dogs or technical search is optional but will depend on the situation. Using these will improve the detailed results but will slow down the process. 1. Level 2 Sector Assessment Report Form 2. Assignment package from OSOCC/UC/SC These could be supported by information such as:, LEMA briefings, maps, GPS coordinates, photographs, video 1. Level 2 Sector Assessment Report Part of the USAR Teams Sit. Rep. to OSOCC/UC/SC 2. Development of the Sector plan of Action and priorities by OSOCC/UC/SC 3. Assignment of USAR teams to worksites. 4. Further resource requests. 5. Part of the Sector Coordination Summary Report to the UC/OSOCC 6. Post on the VO 9

10 Assessment, Search and Rescue Level Level 3: Primary Search and Rescue Level 3 3 Primary Search and Rescue Definitions and purpose This applies to a large scale event with a relatively small number of teams available, perhaps in the early stages The team is assigned an area or multiple sites identified during Level 2 Assessment Fairly rapid progress is needed to ensure the allocated structures are all searched relatively quickly to maximise the lifesaving opportunities There is relatively modest commitment to each site with:- o Rapid use of physical, canine or technical search techniques o Rescue operations using debris removal and limited shoring, breaking and breaching etc. o Limited penetration into the structure/rubble The team will not normally undertake long term operations to penetrate deeply into the structure This level of operation should achieve the rescues just beyond the capability of local responders, citizen rescuers or where no rescue effort has yet taken place It will probably not locate the more deeply trapped victims At this level teams should identify those structures or worksites where a Level 4 or 5 search might be worthwhile If a confirmed deeply trapped live victim is identified the team may extend to Level 4 or 5 operations if the terms of engagement allows or they get permission from sector coordination. But they must ensure Level 3 work for the remaining area/structures is continued. Carried out when and by who INSARAG Tools Outputs 1. This is done when USAR teams are allocated into sectors. 2. Usually done at identified Worksites 3. Done by Medium and Heavy USAR Teams 4. They might be LEMA national teams 5. One USAR team may be able to operate simultaneously at more than one Worksite due to the modest commitment 1. Assignment Package 2. Worksite Report Form 3. Building triage matrix 4. Patient Extrication Form 5. Worksite Marking system 6. Worksite Handover Package 1. Worksite reports 2. Marking of Worksites 3. Will form part of the USAR Team Situation Report 10

11 Search and Rescue Phase Level Level 4: Secondary Search and Rescue Level 4 4 Secondary Search and Rescue Definition and purpose This is the search and rescue work that should identify, locate and rescue the small number of heavily trapped or entombed survivors that local rescuers, first responders, LEMA resources or L3 teams did not achieve Relates to specific worksites identified from the L2 Sector Assessment Reports, L3 Primary Search and Rescue Reports or from LEMA instructions It will usually be a single worksite or a small number of worksites (heavy teams) Teams will penetrate into most or all of the survivable voids These are likely to be longer term operations requiring a wide range of USAR skills e.g. o All possible search techniques and equipment and often repeated as access is achieved o Possibly extensive shoring to make the structure or access routes safe o Heavy and repeated breaking and breaching of the full range of structural elements o Lifting and/or moving of large elements o Some delayering may take place at this level if access is needed to an identified potential live rescue o Working in confined spaces, sometimes deep inside structures This may involve several teams on the same worksite Complete command and control of the worksite is needed Carried out when and by who INSARAG Tools Outputs 1. This level is normally carried out after or often in conjunction with Level 3 Primary Search and Rescue. 2. If LEMA has identified specific sites already, a team may go straight into Level 4 operations as their first tasking. 3. Carried out by Medium and Heavy USAR Teams 1. Assignment Package 2. Worksite Report Form 3. Worksite Marking system 4. Patient Extrication Form 5. Worksite Handover Package 1. Worksite reports 2. Marking of Worksites 3. Will form part of the USAR Team Situation Report 11

12 Assessment, Search and Rescue Level Level 5: Full Coverage Search and Recovery Level 5 5 Full Coverage Search and Recovery Definition and purpose This usually means operations carried out to find the deceased victims within a collapsed structure Normally done after the rescue phases have been exhausted and the incident has moved into the recovery phase It is conceivably still part of the rescue phase if this is deemed necessary by the coordinating authority There may be a miracle find of a live victim that is achieved as the structure is de-layered or deconstructed If the work relates to collapsed structures or rubble pile worksites this includes:- o Searching or making access into every possible void o All the USAR skills listed in Level 4 o Delayering of large elements to allow access to all parts of the structure or rubble pile o Working with heavy machinery e.g. cranes and demolition equipment, to achieve this access o Longer term operations at a single worksite o Complete command and control of the worksite is essential Carried out when and by who INSARAG Tools Outputs 1. This is usually done after the rescue phase, but may occasionally be part of the rescue phase in specific circumstances. 2. Usually done by LEMA resources for their own body recovery purposes. 3. USAR teams may be asked to undertake this task where final clearance and body recovery is a high priority. 1. Assignment Package 2. Worksite Report Form 3. Worksite Marking system 4. Patient Extrication Form 5. Worksite Handover Package 1. Worksite Reports 2. Marking of Worksites 3. Will form part of the USAR Team Situation Report 12

13 This Level can also relate to areas where damage is less but USAR skills are needed for access or safety to enable complete clearance of all possible victims. In this case the operations will include:- o Systematic search of every room of every structure in the assigned area of operation. o This operation should quickly clear relatively large areas. o If necessary forced entry is used to gain access to all areas o Heavy machinery may occasionally be needed to clear smaller rubble piles This may specifically be for deceased victim location/recovery The rules of engagement (brief) have to detail what teams do if they locate a live or deceased victim e.g. call in other teams or stay and deal with it themselves. Full control and coordination is needed with detailed recording by the teams of the exact areas they have cleared 1. This version of Level 5 working is more likely at incidents where there is less serious damage. 2. LEMA resources are most likely to do this but USAR teams may be asked to do this in some circumstances. 3. USAR teams may or may not decide to move to this phase of work based on various factors e.g. other rescue possibilities, capacity of teams at the event, policy of the team, mandate from sponsors etc. 13

14 4 Coordination Methodology 4.1 Coordination Actors The coordination process of international USAR teams involves many different stakeholders. To some extent, the number and type of entities will differ from one emergency to another. However, main actors are the same and their responsibilities, tasks and needs in terms of coordination are described hereunder. Register and brief incoming international resources Assisting LEMA with overall coordination of international resources Coordination within an assigned area or sector Objectives Requests Briefings Allocation of resources Briefings Sector Coordination Briefings Assignments RDC OSOCC USAR Coordination Objectives Requests Briefings Reports Request for supplies Objectives Requests Briefings Reports Request for supplies Reports Request for supplies LEMA USAR Coordination Back Office Int. USAR Int. USAR Local Donor deciding on mandate of mission for own team Reports Instructions, orders Information sharing Requests Requests Information sharing Fig. 1: Flow of information between main coordination actors Local Emergency Management Authority (LEMA) LEMA has the overall responsibility for the emergency response and points out the objectives that will guide the local/national response as well as the international response. In order to get the most efficient support from the OSOCC, LEMA must brief and update the OSOCC about, among other issues, baseline information, the current situation and mission objectives On-Site Operations Coordination Centre (OSOCC) The role of the OSOCC is to work in close liaison with LEMA to facilitate cooperation with, and coordination of, international humanitarian assistance. It is also intended to serve as a platform for information exchange between the LEMA and various relief providers in a

15 disaster receiving international assistance. The OSOCC is constituted of different functions such as Information Management, Liaison, Safety and Security, Operations, Logistics, Media, Administration and Support. The organisation of the OSOCC for a certain emergency is adjusted to the specific needs of that situation Sub-OSOCC In disasters over a widespread area there might be a need to establish one or several sub- OSOCC(s). This is done when it is not possible for the OSOCC to coordinate and oversee operations in more remote and less accessible areas. A sub-osocc is a separate entity that works under supervision from the OSOCC. It should receive directions and guidance from the OSOCC, but creates its own links with LEMA and other humanitarian partners locally. The structure of a sub-osocc should follow the same set up as the main OSOCC as required Reception and Departure Centre (RDC) In many disasters there is a need to establish an RDC as a part of the OSOCC. The RDC should be located at the arrival point of international relief teams and items in order to facilitate and coordinate their arrival and further deployment to the disaster site. The primary responsibility of the RDC is to register teams, provide a briefing of the latest information, direct them to the OSOCC and pass processed information of incoming teams to the OSOCC in order to facilitate the operational planning in the OSOCC USAR Coordination (UC) At a disaster with an influx of international USAR teams, a UC function should be established. The UC constitutes a part of the OSOCC and is staffed by USAR specialists. The function is subordinated to the OSOCC Manager. The USAR Coordinatoris the appointed person in charge of the UC function. The main responsibility of the UC is the overall coordination of the USAR operations. The UC allocates resources to the sectors Sector Coordination (SC) In order to maintain the span of control, SC should usually be established if the number of international USAR teams exceeds 5 to7 teams. To do that, the UC appoints an IEC classified team, with required coordination capability, to take responsibility for the coordination in a given geographic sector. The Sector Coordinator is the appointed person in charge of the Sector Coordination function. The SC assigns tasks to the teams and coordinates their work within the sector. The SC is subordinated to and reports back to the UC USAR teams USAR teams allocated into sectors are subordinated to and report back to the SC, or the UC if no SC is established. USAR teams must report to RDC on arrival and then to the OSOCC. 4.2 Sectorisation A disaster that warrants international USAR response will inherently be a large-scale event. The scale of destruction may just involve one town or it may affect a huge area involving numerous cities and towns. In any case, geographical sectorisation of the affected areas is almost certainly needed to ensure effective coordination of search and rescue efforts. 15

16 4.2.1 Sectorisation Principles a. Sectorisation should be undertaken at the earliest stage of a disaster response to ensure its effectiveness. To achieve this, sectorisation of the affected areas should be undertaken immediately upon arrival of the UNDAC team or the first IEC classified USAR team to size up the scale of the disaster and the extent of the damage. b. Sectorisation should be undertaken together with LEMA to ensure consistency in the management of the affected areas. If the LEMA is already using a sector and/or worksite identification system, then it is usually necessary for the USAR teams and UC to adopt this system. If any additions or changes are needed, the LEMA should be consulted and/or informed. c. Sectorisation should be used as part of the coordination mechanism. When determining the size of the sector, the expected volume of work and spans of control must be principal consideration s to ensure a manageable number of USAR teams is being allocated for each level of coordination. Spans of control should normally be restricted to a maximum of 5 to 7. d. A sector identification system must be applied to allow proper coordination and as part of the overall identification system. e. Sector boundary search responsibilities must be clearly understood. On sector boundaries teams are responsible for at least half of the boundary delineation landmark feature. An example being if a street is being used as the sector boundary limit then it is the responsibility of the team for each sector to search up to the middle of the street as a minimum. This will ensure all areas are covered and avoid confusion between sectors Sector Identification System The Sector Identification System must be simple to improve understanding, consistency and to make training easy. The identification used when embarking on geographical sectorisation must be consistent to avoid mis-communication among international USAR teams. When sectorising the affected areas, use existing street names, actual building number and prominent landmarks as a means to demarcate the boundary of a sector. Use a marker to mark out the boundary line on the map clearly. This ensures clarity when defining and assigning a sector to an international USAR team for coordination or operation. Then for each sector, assign an alphabet in capital letters A, B, C, D, so on and so forth to denote the Sector ID. The figures below are simple illustrations of how geographical sectorisation can be done. 16

17 Charlie Street Delta Street Echo Street Foxtrot Street Golf Street Fig. 2: Sectorising the affected areas into smaller manageable sectors Bravo Street Bravo Street Alpha Street Alpha Street Fig. 3: Sectorising an affected area using street names 17

18 Charlie Street Delta Street Echo Bridge Delta Street Echo River Bravo Street Bravo Street Alpha Street Alpha Street Fig. 4: Sectorising an affected area using prominent features e.g. river, bridge The Level 1 Wide Area Assessment process should produce a sectorisation plan with a letter allocated to each area e.g. A and B for a town split north and south or A, B, C, D for a city that is split into four quadrants and so on. Due to the potential geographical variations, there is no standard way of applying the letters, but a logical sequence should be applied. In very large scale events, there may be several areas that can be sectorised independently. In some national incident command systems these would be known as divisions. In an international USAR incident it would be a large geographical area and the relevant name would be used. As an example, if Istanbul was affected, it may be sensible to split the coordination by using the areas on the European side and Asian side e.g. Istanbul Asia Sector A, B, C or Istanbul Europe Sector A, B, C Advantages of Sectorisation By sectorising the affected areas, arriving international USAR teams can be speedily and systematically deployed to the various sectors to commence search and rescue operations, thus ensuring better management and deployment of incoming resources. In addition, sectorising allows better situational awareness and coordination of USAR operations. The USAR Coordination Manager is able to maintain an overall picture of the entire operation at the UC. This will enable him or her to perform forward planning as the operation progresses. 4.3 Sector Coordination When the number of international USAR teams responding to an incident is large, coordination at the UC may become a challenge. Instead of dealing with all the USAR Team 18

19 Leaders at the coordination meetings, the UC may implement the sector coordination concept and deal only with the Sector Coordinators at the coordination meetings at the OSOCC. The UC will allocate USAR teams into sectors to work under Sector Coordination Principles of Sector Coordination a. The concept of Sector Coordination should be undertaken when it is anticipated that there will be an influx of international USAR teams and coordination may become ineffective if all the Team Leaders are involved in the coordination meetings. b. IEC classified teams that have the capability to coordinate may be appointed by the UCC to undertake sector coordination function. c. In each sector USAR teams will be tasked by the relevant sector Coordination team, sector coordination will take place involving USAR teams deployed to that particular sector independently, led by the respective sector coordinator Concept of Sector Coordination Once the sectorisation plan is produced, USAR teams will be deployed to each sector. If the number of international USAR teams is within spans of control and effective coordination can be carried out at the UCC level involving all team leaders, this will form the basic coordination model for the entire operation. Thus, the coordination structure might be as follows. Fig. 5: Coordination with in sectors carried out by the UCC in the OSOCC In the event whereby sub-osocc(s) are established, the sector coordination structure will follow suit accordingly, as per how it is set up with the OSOCC. If it is a large scale disaster involving a lot of international USAR teams, the coordination structure will need to be enhanced to ensure effective coordination is carried out at all levels. In this case, once the sectorisation plan is produced, an additional level of coordination will need to be put in place in the structure. This level is known as Sector Coordination. As outlined earlier, IEC classified teams with the capability to coordinate may be appointed to undertake the sector coordination function. The coordination structure is as follows. 19

20 Fig. 6: Coordination whit in sectors carried out by Sector Coordinators In the event whereby sub-osocc(s) are established, the sector coordination structure will follow suit accordingly, as per how it is set up with the OSOCC Advantages of Sector Coordination During the regular OSOCC coordination meeting for USAR operation, only the Sector Coordinators need to attend to report the progress status of the search and rescue operation in their respective sector. With only the key representatives at the coordination meeting, it allows coordination meetings to be carried out more efficiently with better focus on the mission. After the OSOCC coordination meeting, the Sector coordinators will in turn conduct their own individual sector meeting to engage teams placed in the sector and disseminate information gathered from the OSOCC coordination meeting. With the concept of sector coordination providing direct reporting to the UC, communication between the USAR coordinator and the international USAR team leaders can be better streamlined. Instead of gathering information and updates from all international USAR team leaders, the communication flow is now confined between the USAR coordinator and the Sector coordinators, making communication traffic less congested. The information and messages received by the USAR coordinator will be more concise and clearer as it would have been filtered and verified by the Sector coordinators. The USAR coordinator is thus less likely to be overwhelmed by information overload. Also, by geographically sectorising the affected areas and systematically deploying the international USAR teams to the sectors, it minimizes the chance of USAR teams repeatedly searching the same affected areas. This will ensure the quickest possible commencement of commencing rescue operations in all areas, particularly in remote sites where USAR teams are equally required. 4.4 Worksites To allow effective coordination of USAR operations, one essential element is a system of identifying every worksite involved. 20

21 Charlie Street Delta Street Echo Bridge Delta Street Echo River Definition of a Worksite A worksite can mean different things. It will most often be one building that is being worked on by one USAR team/squad. But at different stages of operations, a worksite could be much larger or much smaller. A large building or complex of buildings e.g. a hospital may start as a single worksite and be allocated a number for the whole complex. Alternatively, a small building with a single rescue involving many hours of work confined within a few square metres would also normally have its own Worksite ID. If any significant USAR operations are carried out at a specific site then this usually means it is a worksite Worksite Identification System During sector assessment Worksites are usually identified. This process includes the following: - a. A USAR Team(s) should allocate a number to each worksite they identify e.g. 1, 2, 3 etc. b. This number when added to the Sector ID produces the unique Worksite ID e.g. A1, A2, A3 etc. c. If more than one team is in the same sector, then the SC will instruct teams which numbers to use e.g. Team 1 uses 1 to 20, Team 2 uses 21 to 40 etc. The figures below illustrate the procedures involved. Bravo Street Bravo Street Alpha Street Alpha Street Fig. 7: A complete identification of the worksites in the sectors Worksites Within Worksites As Level 3 and Level 4 operations develop at larger Worksites it is likely that further sites within the original Worksite are identified e.g. at the hospital complex there may be two distinct rescue operations at different locations. These should also have Worksite IDs so proper coordination can be done. In this situation the original Worksite ID should be used but with a suffix letter added e.g. A1a, A1b etc. These can be allocated by the USAR team working at the site who must ensure no suffix letters are repeated. 21

22 4.4.4 Sector and Worksite Identification Protocols Every worksite must have an identification number which, when linked to the full Sector ID, is completely unique to that particular location. This full address will be known as the Worksite ID. The Worksite ID will then be used on any related document or record relating to that site. The Worksite ID will also be used as part of the INSARAG marking system on any site markings. All teams must communicate all Worksite ID details to the UC at the OSOCC, Sub OSOCC or Sector Coordination as soon as possible. Locally known identifications e.g. addresses, building names, company names or landmarks should be incorporated into the identification system. These details will be used in related documents associated with but not part of the actual Worksite ID code. If the LEMA is already using a sector and/or worksite identification system then it is usually necessary for the USAR teams and UC to adopt this system. If any additions or changes are needed then the LEMA should be consulted and/or informed. 4.5 USAR Team Identification In order to standardize the identification of all USAR Teams within the coordination of the international response to an affected area, a predefined identification system shall be implemented. The identification code of any USAR Team will be composed of two parts. The first, a three-letter code reflecting the name of the home country of the team, and a second part consisting of a number to differentiate teams from the same country. The first and second part will be separated with a hyphen. Country Team name Team ID. Australia Queensland USAR AUS-1 Japan Japan Disaster Relief Team JPN-1 USA LA County USAR Team USA-2 USA Fairfax County USAR Team USA-1 USA XXX USAR Team (Non-Classified) USA-10 USA YYY USAR Team (Non-Classified) USA-11 Indonesia XXX USAR Team (Non-Classified) INA-10 Germany XXX USAR Team (Non-Classified) GER-10 Table 1: Examples of Team ID The three-letter code will normally be based on the three-letter abbreviation country codes established by The International Olympic Committee (IOC). For IEC classified teams the number will be decided by the home country at the time of classification and register in the INSARAG USAR team directory. For non-iec classified teams, the number will be assigned by the RDC based upon sequence of arrival, starting from the number 10, for teams from the same country. When successfully completing an IEC classification process, the USAR Team will be assigned its exclusive team identification code. 22

23 4.6 Marking System The structural marking system currently in use will need to reflect the following new aspects of the USAR coordination methodology: - Implementation of a unique worksite identification system, as described in Identification of the assessment, search and rescue levels completed at the worksite. The team identification code system proposed in 4.5 will apply to the structural marking system. Possible further changes to the structural marking system will be addressed in the next work cycle. 4.7 USAR Coordination Guides In order to facilitate and enhance the coordination between the relevant coordinating entities, USAR Coordination Guides have been developed for the OSOCC, Sub-OSOCC, RDC, UC, SC and USAR teams. These guides describe the main responsibilities in terms of coordination for the respective entity, relation to other entities, name of position in charge for the function, tasks, communication schedules, means of communication and tools for coordination. 23

24 4.7.1 Local Emergency Management Authority (LEMA) USAR Coordination Guide for Local Emergency Management Authority (LEMA) Main responsibility in terms of coordination: Overall responsibility for the emergency response. Relation to other USAR coordination bodies: LEMA is a generic term that may relate to authorities at different levels Should interact with the OSOCC and at every local level with the USAR coordination function Position in Charge: Determined by LEMA. Tasks: Brief OSOCC of current situation, LEMA response, provide baseline data, identify needs, establish priorities, safety and security details, resources available, local procedures, medical issues. Formulate objectives for USAR operations and present to OSOCC. Meeting Schedule: Bilateral meetings with LEMA, regular OSOCC meetings that LEMA participate in. Reporting Schedule: Regular reports to the OSOCC on objectives, situation updates, requirements etc. Postings on the VO. Means of communication: Meetings, , phone, verbal, forms, liaison officer, VO. Tools, forms: Affected Area Information Template OSOCC-LEMA briefing template Wide Area Assessment 24

25 4.7.2 On-Site Operation Coordination Centre (OSOCC) USAR Coordination Guide for On-Site Operation Coordination Centre (OSOCC) Main responsibility in terms of coordination: Assist LEMA with coordination of international USAR teams and establish inter-cluster coordination mechanism. Relation to other coordination bodies: OSOCC is the main focal point for LEMA in terms of coordination of international resources. OSOCC carries out coordination based on cooperation and voluntariness. Coordinated under the OSOCC (i.e. OSOCC Manager) are the Sub-OSOCC, RDC, UC, SC. RDC and UC constitute parts of the OSOCC. Position in Charge: OSOCC Manager Tasks: Present LEMA objectives and needs to UCC. If needed, interpret LEMA objectives into USAR operational objectives (possibly using the UC) Collating progress reports on the USAR operation to LEMA Tasks not related to USAR coordination are not mentioned here but found in the OSOCC Guideline and UNDAC Handbook. Meeting schedule: Bilateral meetings with LEMA, regular OSOCC meetings that LEMA participate in, internal meetings as appropriate. Reporting schedule Progress reports to LEMA, Sit Reps to OCHA. Means of communication: Meetings, , phone, verbal, forms, liaison officer, VO. Tools, forms: Affected Area Information Template OSOCC-LEMA briefing template Wide Area Assessment Standard meeting format/agenda Mission Summary report 25

26 4.7.3 Sub On-Site Operation Coordination Centre (Sub-OSOCC) Coordination Field Guide for Sub On-Site Operation Coordination Centre (Sub-OSOCC) Main responsibility in terms of coordination: Same as main-osocc (i.e. assist LEMA with coordination of international USAR teams and establish inter-cluster coordination mechanism) though used in case the geographic area is too widespread thus hampering the communication with the main OSOCC. Relation to other coordination bodies: Subordinated to the main-osocc. Sub-OSOCC is main focal point for LEMA at local level in terms of coordination of international resources. Sub-OSOCC carries out coordination based on cooperation and voluntariness. Coordinated under the Sub-OSOCC (i.e. Sub-OSOCC Manager) are the RDC, UCC, SC in the related geographic area. Position in Charge Coordinating Body: Sub-OSOCC Manager Tasks: Same as main-osocc (i.e. present LEMA objectives and needs to UCC. If needed, interpret LEMA objectives into USAR operational objectives). Tasks not related to USAR coordination are not mentioned here but found in the OSOCC Guideline and UNDAC Handbook. Reporting schedule: Bilateral meeting with LEMA, regular OSOCC meeting where LEMA participate in. Means of communication: Meetings, cell phone, verbal, forms, liaison officer. Tools, forms: Team Factsheet RDC form Country Information Template OSOCC-LEMA briefing template Wide Area Assessment Sector Assessment Assessment Briefing package Worksite Report form Worksite Handover package Summary Report Standard meeting format/agenda Demobilisation form Mission Summary report OSOCC Planning form Post Mission Report 26

27 4.7.4 Reception / Departure Centre (RDC) USAR Coordination Guide for Reception / Departure Centre (RDC) Main responsibility in terms of coordination: Facilitate arrival and departure of international resources at entry point(s) Relation to other coordination bodies: Constitutes a part of the OSOCC. Works closely with Airport/Harbour, Immigration and Custom Authorities and with LEMA. Position in Charge: RDC manager Tasks: Use the RDC Planning form to help gather information Prepare RDC Briefing Hand-out Register and brief incoming international resources Assign team ID:s to non-classified USAR teams Forward Team Factsheets to OSOCC. Support departure of outgoing teams Meeting schedule: Ad hoc meetings with Airport/Harbour, Immigration, Custom and LEMA staff Reporting schedule: As determined by OSOCC manager Postings to the VO Regular general sit rep to the OSOCC Means of communication: Meetings, VHF, phones, VO, Radio set, liaison officer. Tools, forms: Team Factsheet RDC Planning Form RDC Briefing Hand-out Affected Area Information Template Demobilisation form 27

28 4.7.5 USAR Coordination (UC) Coordination Field Guide for USAR Coordination (UC) Main responsibility in terms of coordination: Overall coordination of international USAR teams Relation to other coordination bodies: Constitutes a part of the OSOCC. Position in Charge Coordinating Body: USAR Coordinator Tasks: Identify Sectors in consultation with LEMA Assign Sector Coordinators Brief SC of the situation and LEMA s objectives as well as priorities Allocate resources to sectors Compile reports from sectors Analyse results Relocate resources if needed Report to Ops function in OSOCC / IM function in OSOCC Maintain communication with RDC with regards to incoming from airport /outgoing teams to airport Reporting schedule: Report to OSOCC Manager on critical issues (live victims, security/safety) on ad-hoc basis. Daily progress report to OSOCC Manager and Information Management Cell. Means of communication: Meetings, VHF, Cell phone, Sat phone, Social Media Tools, forms: Team Factsheet RDC form Country Information Template OSOCC-LEMA briefing template Wide Area Assessment Sector Assessment Assessment Briefing package Worksite Report form Worksite Handover package Summary Report Standard meeting format/agenda Demobilisation form Mission Summary report OSOCC Planning form Post Mission Report 28

29 4.7.6 Sector Coordination (SC) USAR Coordination Guide for Sector Coordination (SC) Main responsibility in terms of coordination: Coordination of international USAR teams allocated by UCC to sector of responsibility Relation to other coordination bodies: Subordinated to UCC, above UT. Function carried out by appointed IEC USAR team. Subordinated UC, located in the BoO of the appointed IEC team. May be located close to UC together with other SC if found more suitable. Appointed IEC team carries out coordination in sector by cooperation and in own team by command. Position in Charge Coordinating Body: Sector Coordinator (should be a team leader of IEC classified team) Tasks: Brief and assign UT for assessment, search and rescue Coordinate operations within the sector Compile reports Analyse results Review and act. Request/offer resources to UC Report to UC Advise and offer suggestions to UT with regard to operation issues Reporting schedule: Immediate report to UC on critical issues (live victims, security/safety), Ad-hoc basis. Daily progress report from SC to UC. Means of communication: Meetings, VHF, Cell phone, Sat phone Tools, forms: Team Factsheet RDC form Country Information Template OSOCC-LEMA briefing template Wide Area Assessment Sector Assessment Assessment Briefing package Worksite Report form Worksite Handover package Summary Report Standard meeting format/agenda Demobilisation form Mission Summary report OSOCC Planning form Post Mission Report 29

30 4.7.7 USAR Team Coordination Field Guide for USAR Team Main responsibility in terms of coordination: Team Leader commanding own team. Relation to other coordination bodies: USAR team voluntary subordinate to coordination structure; i.e. SC, UC, OSOCC. Position in Charge Coordinating Body: Team Leader/Deputy Team Leader Tasks: Carry out assignment from SC, report back to SC. Liaise with responders on same site Reporting schedule: Immediate report to SC/USAR Team on critical issues (live victims, security/safety). Daily progress report from USAR Team to SC. Means of communication: Meetings, VHF, Cell phone, Sat phone Tools, forms: Team Factsheet RDC form Country Information Template OSOCC-LEMA briefing template Wide Area Assessment Sector Assessment Assessment Briefing package Worksite Report form Worksite Handover package Summary Report Standard meeting format/agenda Demobilisation form Mission Summary report OSOCC Planning form Post Mission Report 30