As utility personnel plan and prepare for emergencies, 

a common question arises: “How do I implement the 

National Incident Management System (NIMS) at my 

utility?” Although the Federal Emergency Management 

Agency (FEMA) developed NIMS compliance 

requirements for state, local, and tribal governments, they 

have not developed requirements for individual sectors, 

such as the water sector. In the absence of specific 

requirements, this document provides recommended water 

sector NIMS implementation objectives that integrate 

NIMS principles into utility operations and planning. It is 

recommended that public drinking water and wastewater 

systems coordinate with their local emergency management 

agency (EMA) when implementing these objectives to 

check whether the local government NIMS compliance 

requirements also apply to their utilities. 

What is NIMS?

Homeland Security Presidential Directive (HSPD) 5 

tasked the Department of Homeland Security to develop 

and administer NIMS. HSPD 5 also requires federal 

departments and agencies to adopt NIMS planning and 

response concepts. States, territories, local jurisdictions, 

and tribal entities must adopt NIMS in order to receive 

federal preparedness assistance. 

NIMS, originally published in 2004, establishes a 

comprehensive, national approach to incident management 

that is applicable at all jurisdictional levels, across all 

agencies, and to all domestic incidents regardless of size. 

NIMS is flexible but still provides a set of standardized 

organizational structures, as well as requirements for 

processes, procedures, and systems designed to improve 

the ability of responders (public and private) to work 

together. NIMS supports the effective use of mutual aid 

and assistance agreements. Many Water and Wastewater 

Agency Response Networks (WARNs) use the concepts of 

NIMS for a more successful program.

What are the Main Components of NIMS? 

There are five main components of NIMS: 

• Preparedness; 

• Communications and information management; 

• Resource management; 

• Command and management; and

• Ongoing management and maintenance. 

Each of these components is described in detail in the 

NIMS document and includes a number of key themes. As 

utilities begin to incorporate NIMS concepts and principles 

into their preparedness planning, many are surprised to 

learn that they are now considered first responders. HSPD 

8, published in 2003, formally acknowledged the vital role 

that public works (which, as defined by HSPD 8, includes 

drinking water and wastewater utilities) personnel play in 

response to an incident. NIMS encourages and helps all 

first responders to work together to provide mutual aid and 

assistance to one another as effectively and efficiently as 

possible.

Preparedness

Many water utility professionals believe that implementing 

NIMS only requires taking one or two classes. However, 

a utility should adopt NIMS by incorporating it into its 

emergency preparedness, response, and security activities. 

Some utilities have formally issued a policy requiring the 

use of NIMS. Subsequently, these utilities have updated 

their existing plans and procedures to ensure consistency 

with NIMS. As defined in the NIMS document, 

preparedness covers the elements of planning, training, and 

exercises. 

Water Sector National Incident Management System 

(NIMS) Implementation Objectives

Office of Water (4608T) • EPA 817-F-09-001 • www.epa.gov/watersecurity • March 2009

• Strengthens response capabilities by following a 

nationally adopted, standard, flexible practice for 

emergency response;

• Improves mobilization, deployment, utilization, 

tracking, and demobilization of needed resources;

• Establishes protocols for improved communication 

with other first responders and support personnel;

• Reduces the time delay to access mutual aid and 

assistance resources; and

• Allows integration with other local and state 

emergency response agencies.

What are the Benefits of NIMS?
Planning

Many utilities are implementing NIMS by preparing 

emergency response plans (ERPs) and business continuity 

plans (BCPs), and by becoming members of Water and 

Wastewater Agency Response Networks (WARNs). If your 

utility has not yet developed an ERP or BCP, or considered 

joining a WARN, it is in your best interest to do so. Be 

sure to coordinate your planned response actions with other 

local first responders.

Training

The second element of preparedness is training. At a 

minimum, all utility staff who would likely be involved in 

the response to an incident should complete the following 

courses:

• Basic Incident Command System (ICS) IS-100PWa; and

• NIMS, An Introduction IS-700a.

These courses are offered for free online through FEMA’s 

Independent Study website at http://training.fema.gov/IS/

NIMS.asp. USEPA is currently offering free in-person 

versions of these trainings at various locations throughout 

the country. 

One advantage to attending a USEPA-sponsored training 

is that the standard FEMA courses have been tailored to 

the water sector and contain relevant teaching examples 

and group activities. To find a USEPA training location 

near you and to register, please visit http://cfpub.epa.gov/

safewater/watersecurity/outreachresult.cfm?outreach_

id=92&type=1. The water sector-specific materials used 

during USEPA’s in-person classes are also available online 

(see the link at the end of this fact sheet). 

If you hold a supervisory or management role within 

your utility, more training is recommended. For example, 

utility personnel who serve as first-line supervisors or 

in management roles should also complete ICS IS-200a 

training. Utility executives and senior officials may wish 

to consider taking the 2-hour state-offered ICS Overview 

G402 course. Complete details regarding NIMS courses 

and who at your utility should complete them can be found 

in the NIMS Five Year Training Plan, available at http://

www.fema.gov/emergency/nims/NIMSTrainingCourses.

shtm.

Office of Water (4608T) • EPA 817-F-09-001 • www.epa.gov/watersecurity • March 2009

NIMS Implementation Objectives for the Water Sector*

Preparedness

Planning

1. Revise Emergency Response Plans (ERPs) to incorporate NIMS principles such as ICS.

2. Maintain mutual aid and assistance agreements with response partners and participate in a Water and Wastewater Agency Response Network (WARN).

Training

3. Use existing resources for NIMS trainings, such as USEPA’s Water Sector ICS-NIMS Training.

4. All staff completes IS-100PWa (ICS) and IS-700a (NIMS) at a minimum.

5. Managers/Supervisors complete ICS-200a, ICS-300a, ICS-400a, and IS-800B National Response Framework (NRF) as appropriate.

Exercises

6. Incorporate NIMS principles into exercises, such as a corrective action process.

7. Participate in an all-hazards, multi-agency, and multi-jurisdictional exercise program such as those offered by LEPCs and EMAs.

Communications and Information Management

8. Use NIMS terminology and clear text, avoid using acronyms.

9. Use tools during an incident or event to promote a common operating picture (e.g., ICS Form 209 and/or SitRep).

Resource Management

10. Inventory resources and type them according to local protocols and the AWWA Water & Wastewater Mutual Aid & Assistance Resource Typing Manual.

11. Purchase interoperable equipment (e.g., radios).

12. Use a WARN program to help obtain needed resources.

13. Participate in jurisdictional credentialing (e.g., first responder ID cards) if applicable.

Command and Management

Incident Command System

14. Use ICS to manage all incidents and events.

Multi-Agency Coordination System

15. Use your jurisdiction’s Emergency Operations Center (EOC) for incident support in addition to mutual aid and assistance such as a WARN.

Public Information

16. Use the Joint Information System during an incident or event, for example, designating a Public Information Officer.

17. Ensure that all water use advisories and notices are compliant with the Public Notification Rule and fully coordinated with other public notifications regarding 

the incident.

* Based on FEMA’s FY2008 NIMS Compliance Objectives
Exercises

Exercises comprise the last element of preparedness. Many 

preparedness organizations, such as Local Emergency 

Planning Committees (LEPCs) and either local or state 

EMAs, already plan and conduct all-hazard exercises 

that incorporate NIMS. Utilities should reach out to 

these preparedness organizations and take part in the 

exercises they conduct. This will ensure that a utility’s 

ERP is coordinated with other local emergency plans. In 

addition, this participation allows utility staff to take part 

in professionally facilitated exercises with minimal utility 

resource expenditure. It also allows utility personnel 

to develop working relationships with other local first 

responders before an emergency occurs. 

Utilities with more resources may wish to consider 

conducting their own exercises and inviting other first 

responders to attend. Exercises should to be designed 

and conducted in accordance with the Homeland Security 

Exercise and Evaluation Program (HSEEP) guidance. 

Scenarios and exercise materials can be obtained from 

the USEPA’s Water and Wastewater Emergency Response 

Tabletop Exercises tool at http://www.epa.gov/safewater/

watersecurity/tools/trainingcd/. This tool will be updated 

with new all-hazards scenarios and a new format to comply 

with HSEEP guidance. Once the tool is finalized, it will 

be posted on USEPA’s website at http://cfpub.epa.gov/

safewater/watersecurity/tools.cfm. 

Also consider these points when you are developing, 

conducting, or participating in exercises:

• Incorporate NIMS components, such as ICS;

• Ensure key staff have a role;

• Capture and incorporate lessons learned into an exercise 

after action report; and

• Implement corrective actions identified in the after 

action report by updating your utility’s ERP and other 

plans and procedures.

Communications and Information 

Management

Communications and information management is another 

component of NIMS that should be implemented. An 

important aspect of communications is for utilities to use 

common NIMS terminology and what is referred to as clear 

text. Common NIMS terminology includes, for example, 

using the title Incident Commander for the person with 

overall responsibility for managing an incident. The use of 

common terminology greatly reduces confusion between 

jurisdictions and agencies working together during a larger 

incident, since all first responders across the country are 

learning the same, common NIMS terminology. 

Clear text refers to the principle that utility personnel 

should always use plain English when communicating 

during an incident. Other agencies and jurisdictions are 

not familiar with your utility-specific acronyms or jargon, 

and your use of them will only lead to confusion on larger 

incidents and when mutual aid and assistance agreements 

are activated. For example, the acronym SCADA is not 

understood by everyone outside of a utility!

Information management is necessary so that everyone 

responding to an incident is on the same page, or shares a 

common operating picture. One information management 

tool that already exists and can be readily adopted by 

utilities is the Situation Report, or SitRep. The SitRep 

format has been in use for years, and is a proven way to 

present incident information to others so that a common 

operating picture can be developed and shared. The daily 

national SitRep can be found on FEMA’s website at http://

www.fema.gov/emergency/reports/index.shtm. Another 

tool that can be used at the local level is the ICS Form 209 - 

Incident Status Summary.

Resource Management 

Resource management is another critical component 

of NIMS implementation. Resources include utility 

personnel, equipment, supplies, and materials. Under 

NIMS, all resources should be typed, which means that 

resources are classified by their function (category), class 

(kind), and their performance or capability (type). Once 

a resource is typed, it is very clear to first responders what 

resource they are asking for, and it helps to ensure that 

the first responder receives the resource that he or she 

requested. 

Utilities should consider inventorying and typing 

their resources. This can be done in conjunction with 

jurisdiction efforts (local, county, or state level). The 

American Water Works Association’s Water and 

Wastewater Mutual Aid and Assistance Resource Typing 

Manual provides a large number of typed water sector 

resources that are commonly requested during water sector 

related incidents. This free document is available at http://

www.nationalwarn.org. Resource inventories can be kept 

using a hard copy system, such as a card catalog, or by 

using a spreadsheet, database or other digital program, such 

as the online resource lists maintained by many WARN 

programs. 

Additional NIMS implementation objectives under this 

component include:

• Procurement and/or use of interoperable equipment, 

such as radios. This allows utility response personnel to 

readily communicate with other first responders in their 

jurisdiction. 

• Participation in your jurisdiction’s development or 

implementation of a credentialing system. This will 

help verify the identity and qualifications of emergency 

personnel responding to an incident. 

Office of Water (4608T) • EPA 817-F-09-001 • www.epa.gov/watersecurity • March 2009
Office of Water (4608T) • EPA 817-F-09-001 • www.epa.gov/watersecurity • March 2009

Command and Management 

The Command and Management component within NIMS 

is designed to enable effective and efficient incident 

management and coordination by providing a flexible, 

standardized incident management structure. The structure 

is based on three key organizational constructs: the ICS, 

Multiagency Coordination System (MACS), and Public 

Information.

Incident Command System (ICS)

HSPD 5 requires that federal agencies manage all domestic 

incidents under ICS. During large incidents, utilities 

should be prepared to coordinate with state and federal 

agencies using ICS. Utilities can practice using ICS when 

responding to routine emergencies such as main breaks. 

This will ensure that utility personnel are familiar with 

NIMS common terminology and how the ICS functions, 

which will be an advantage when working with other local, 

state, and federal first responders during a larger incident. 

Multiagency Coordination System (MACS)

The primary function of the MACS is to coordinate 

activities above the field level and to prioritize the incident 

demands for critical or competing resources. At the 

management level, the MACS assists with the coordination 

of field operations. The MACS consists of a combination 

of elements: personnel, procedures, protocols, business 

practices, and communications integrated into a common 

system. 

The MACS can be implemented from a fixed facility (such 

as an Emergency Operations Center or EOC) or by other 

arrangements outlined within the system. Utilities should 

learn the location, contact information, and organizational 

structure of the EOC that serves their community. In 

addition, utilities should ensure that they are represented 

within their local EOC during emergencies. The EOC can 

help a utility to obtain resources during an incident.

Public Information

If public information or notices (e.g., water use advisories) 

are to be disseminated during an incident, the Public 

Notification Rule must be followed. NIMS principles 

regarding public information further support this rule. In 

addition, utilities should have templates for foreseeable 

public notifications such as boil order or system bypass 

notices. These templates help to ensure that no detail is 

overlooked and that notifications are consistent. A Public 

Information Officer (or individual serving in that capacity) 

prepares the notification, which is then approved by the 

Incident Commander prior to issuance. At larger incidents, 

the Public Information Officer may need to coordinate 

the utility’s public notice with public notices from other 

agencies involved in the response. The bottom line is 

that a clear, consistent message needs to go to the public 

from all agencies and jurisdictions taking part in public 

notifications. 

Ongoing Management and Maintenance

Just like your ERP, NIMS is constantly being revised and 

changed based on best management practices and lessons 

learned. NIMS was first revised in 2008. If you have 

comments about NIMS or have suggestions to improve 

NIMS, you can contact the NIMS National Integration 

Center at 202-646-3850 or FEMA-NIMS@dhs.gov.

NIMS implementation may appear daunting, but in 

actuality it relies on many best practices already in use by 

water and wastewater utilities as well as other agencies and 

jurisdictions. These best practices have been adopted under 

NIMS so that mutual aid and assistance can be as effective 

as possible.

To learn more about NIMS, please visit:

http://www.epa.gov/watersecurity

(click on “Emergency/Incident Planning” and scroll down 

to NIMS)

http://www.fema.gov/emergency/nims

(FEMA’s official NIMS website)

http://cfpub.epa.gov/safewater/watersecurity/

outreachresult.cfm?outreach_id=92&type=1

(learn about U.S. EPA’s water sector ICS and NIMS 

training)

http://cfpub.epa.gov/safewater/watersecurity/home.

cfm?program_id=8#nims

(download the water sector ICS and NIMS presentations 

here)