Introduction to Introduction to

March 2010 February 2011

Student Manual

March February 20102011

Introduction to ESF #4

Unit 1 – Course Overview

Lesson Terminal Objective: At the completion of this lesson, you will be able to describe the 

ESF #4 course goal and structure.

February 2012 Student Manual 1.1-1
Introduction to ESF #4

When asked, please introduce yourself by providing the following information:

• Name, job title, and organization

• Experience with ESF #4 Experience with ESF #4

• Expectations for this course

February 2012 Student Manual 1.1-2
Introduction to ESF #4

The primary objective of this session is to prepare you to fulfill your ESF #4 responsibilities. 

February 2012 Student Manual 1.1-3
Introduction to ESF #4

ESF #4 – Firefighting is the identified link in the National Response Framework (NRF) 

between FEMA and the wildland and structural fire communities. 

February 2012 Student Manual 1.1-4
Introduction to ESF #4

Review the course objectives presented on the visual. 

February 2012 Student Manual 1.1-5
Introduction to ESF #4

Emergency Support Function (ESF) #4 – Firefighting provides Federal support for the detection and 

suppression of wildland, rural, and urban fires resulting from, or occurring coincidentally with, an incident 

requiring a coordinated Federal response for assistance. 

ESF #4 manag g g p p ,qp , es and coordinates firefighting activities and provides personnel, equipment, and 

supplies in support of State, tribal, and local agencies involved in wildland, rural, and urban firefighting 

operations.

ESF #4 may be activated for any type of natural, technological or human-caused disaster. Recent ESF 

#4 activations (regional and/or national) include:

2011

Northeast Ice Storm Northeast Ice Storm

Tsunami from Japan Earthquake 

North Dakota Flooding 

Northern Rockies/Rocky Mountain Flooding 

Hurricane Irene 

Flooding from Tropical Storm Lee 

Texas Wildfires 

Tropical Storm Nate 

2010

Arizona Winter Storms 

North Dakota Flooding 

Hurricane Earl 

2009

Presidential Inauguration 

North Dakota Flooding and Tornado

February 2012 Student Manual 1.1-6

North Dakota Flooding and Tornado

Hurricanes Anna and Bill 

American Samoa Tsunami and Typhoon Melor
Introduction to ESF #4

Review the characteristics of effective ESF #4 team members. Think about your own 

strengths and weaknesses. Identify the areas that you wish to concentrate on throughout this 

course.

February 2012 Student Manual 1.1-7
Introduction to ESF #4

Make sure you are aware of the course resources that you will be using throughout this 

course.

February 2012 Student Manual 1.1-8
Introduction to ESF #4

Unit 2 – National Mandates

Lesson 2.1: Response Doctrine and Roles

Lesson Terminal Objective: At the completion of this lesson, you will be able to identify the 

national mandates that govern Emergency Support Function (ESF) #4 policies and national mandates that govern Emergency Support Function (ESF) #4 policies and

procedures.

Lesson Enabling Objectives:

• Identify how the following response mandates apply to ESF #4:

• Homeland Security Act of 2002

• Homeland Security Presidential Directives (HSPDs) Homeland Security Presidential Directives (HSPDs)

• National Incident Management System (NIMS)

• National Response Framework (NRF)

• Identify the emergency response roles assumed by:

• Local Governments

• Nongovernmental Organizations/Private Sector

• Tribes/States

• Federal Government Federal Government

• Describe the flow for requesting resources.

February 2012 Student Manual 1.1-9
Introduction to ESF #4

NIMS:

• Defines what needs to be done to prepare for, prevent, respond to, recover from, and 

mitigate the effects of a major event, how it needs to be done, and how well it needs to be 

done. 

• Provides a systematic approach for all levels of government, the private sector, and 

nongovernmental organizations (NGOs) to work seamlessly together. 

• Applies to all incidents regardless of cause, size, location, or complexity.

February 2012 Student Manual 1.1-10
Introduction to ESF #4

To integrate the practice of emergency management and incident response throughout the 

country, NIMS focuses on five key areas, or components. These components work together 

to form a comprehensive incident management system.

Preparedness: Preparedness is essential for effective incident and emergency management Preparedness is essential for effective incident and emergency management. 

NIMS preparedness encompasses a continuous cycle of planning, organizing, training, 

equipping, exercising, evaluating, and taking corrective action. Ongoing preparedness 

provides for better coordination during times of crisis. 

Communications and Information Management: NIMS prompts the use of flexible 

communications and information systems that allow all emergency management and 

response partners to establish and maintain a common operating picture of the incident response partners to establish and maintain a common operating picture of the incident. 

Resource Management: Careful management of resources is essential before, during, and 

after incidents. NIMS describes standardized resource management practices such as typing, 

inventorying, organizing, and tracking. These practices allow for effective sharing and 

integration of critical resources across jurisdictions.

Command and Management: Command and Management: The NIMS Command and Management component enables The NIMS Command and Management component enables

effective and efficient incident management and coordination by providing a flexible, 

standardized incident management structure. This structure integrates three key 

organizational constructs: the Incident Command System, Multiagency Coordination 

Systems, and Public Information.

Ongoing Management and Maintenance. Working with stakeholders, FEMA supports 

ongoing maintenance and continuous refinement of NIMS concepts and principles. 

February 2012 Student Manual 1.1-11

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Introduction to ESF #4

Review the visual for details on NIMS. 

February 2012 Student Manual 1.1-12
Introduction to ESF #4

Review the items on the visual stating “NWCG and NIMS.” NWCG is serious about 

supporting NIMS and ensuring compliance with NIMS requirements. NIIMS, developed by 

the wildland fire community, is the basis today’s NIMS which is used by all disciplines at 

all levels of government. It is important to note that when there are differences, NIMS 

trumps NIIMS as it is a Presidential requirement that all Federal agencies comply with trumps NIIMS as it is a Presidential requirement that all Federal agencies comply with

NIMS, and all State and local agencies must comply with NIMS if they want Federal 

preparedness funds.

February 2012 Student Manual 1.1-13
Introduction to ESF #4

February 2012 Student Manual 1.1-14
Introduction to ESF #4

The National Response Framework (NRF) :

• Is a guide to how the Nation conducts all-hazards response. 

• Builds upon the NIMS coordinating structures to align key roles and responsibilities Builds upon the NIMS coordinating structures to align key roles and responsibilities

across the Nation, linking all levels of government, nongovernmental organizations, and 

the private sector. 

The NRF is comprised of:

• The Core Document that describes the doctrine that guides our national response, roles 

and responsibilities response actions response organizations and planning and responsibilities, response actions, response organizations, and planning

requirements to achieve an effective national response to any incident that occurs. 

• Emergency Support Function Annexes that identify Federal resources and capabilities 

that are most frequently needed in a national response (e.g., Transportation, Firefighting, 

Mass Care).

• Support Annexes Support Annexes that describe essential supporting aspects that are common to all that describe essential supporting aspects that are common to all

incidents (e.g., Financial Management, Volunteer and Donations Management, PrivateSector Coordination).

• Incident Annexes that address the unique aspects of how we respond to seven broad 

categories or types of incidents (e.g., Biological, Nuclear/Radiological, Cyber, Mass 

Evacuation).

February 2012 Student Manual 1.1-15

• Partner Guides that provide ready references describing key roles and actions for local, 

tribal, State, Federal, and private-sector response partners.
Introduction to ESF #4

The term “response” as used in the Framework includes immediate actions to save 

lives, protect property and the environment, and meet basic human needs. Response 

also includes the execution of emergency plans and actions to support short-term recovery. 

The Framework provides structures for implementing nationwide response policy and The Framework provides structures for implementing nationwide response policy and

operational coordination for all types of domestic incidents. It can be partially or fully 

implemented in the context of a threat, in anticipation of a significant event, or in response to 

an incident. Selective implementation allows for a scaled response, delivery of the resources 

needed, and an appropriate level of coordination.

The Framework is always in effect, and elements can be implemented as needed on a 

flexible scalable basis that can help improve response flexible, scalable basis that can help improve response. 

A Federal department or agency acting on independent authority may be the initial and the 

primary Federal responder, but incidents that require more systematic Federal response 

efforts are now actively coordinated through the appropriate Framework mechanisms 

described in the NRF document and in its supporting annexes. 

Federal assistance can be provided to State, tribal, and local jurisdictions, and to other Federal assistance can be provided to State, tribal, and local jurisdictions, and to other

Federal departments and agencies, in a number of different ways through various 

mechanisms and authorities. Often, Federal assistance does not require coordination by 

DHS and can be provided without a Presidential major disaster or emergency 

declaration. 

February 2012 Student Manual 1.1-16
Introduction to ESF #4

The Framework establishes the following response doctrine:

• Engaged partnership: Leaders at all levels must communicate and actively support 

engaged partnerships to develop shared goals and align capabilities so that none allows 

the other to be overwhelmed in times of crisis the other to be overwhelmed in times of crisis.

• Tiered response: Incidents must be managed at the lowest possible jurisdictional level 

and supported by additional response capabilities when needed.

• Scalable, flexible, and adaptable operational capabilities: As incidents change in 

size, scope, and complexity, the response must adapt to meet requirements. 

• Unity of effort through unified command: Response is a team effort. Effective unified 

command is indispensable to all response activities and requires clear understanding of 

the roles and responsibilities of each participating organization. 

• Readiness to act: Effective incident response requires readiness to act balanced with 

an understanding of risk. From individuals, families, and communities to local, State, and 

Federal agencies, national response depends on the knowledge and ability to act. Federal agencies, national response depends on the knowledge and ability to act.

Discussion Questions: 

• What does this doctrine mean to you personally?

• What is an example of a preparedness or response action that would support this 

February 2012 Student Manual 1.1-17

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doctrine?
Introduction to ESF #4

• The President leads the Federal Government response effort to ensure that the 

necessary coordinating structures, leadership, and resources are applied quickly and 

efficiently to large-scale and catastrophic incidents. The President’s Homeland Security 

Council and National Security Council, which bring together Cabinet officers and other 

department or agency heads as necessary provide national strategic and policy advice to department or agency heads as necessary, provide national strategic and policy advice to

the President during large-scale incidents that affect the Nation.

• Overall coordination of Federal incident management activities is the responsibility 

of DHS. Depending upon the incident, the Secretary also contributes elements of the 

response consistent with DHS’s mission, capabilities, and authorities. 

• The FEMA Administrator FEMA Administrator supports the Secretary in meeting these HSPD supports the Secretary in meeting these HSPD-5

responsibilities as the principal advisor to the President, the Secretary, and the Homeland 

Security Council on all matters regarding emergency management. 

• Other Federal departments and agencies carry out their incident management 

authorities and responsibilities. 

February 2012 Student Manual 1.1-18
Introduction to ESF #4

Additional resources on the National Response Framework and response doctrine and roles 

can be found at www.fema.gov/nrf.

February 2012 Student Manual 1.1-19
Introduction to ESF #4

Presidential Policy Directive 8 (PPD-8) required the development of:

• National Preparedness Goal

• National Preparedness System

• 5 National Planning Frameworks with accompanying Interagency Operational 

Plans

• Department/Agency Operational Plans

February 2012 Student Manual 1.1-20
Introduction to ESF #4

The National Preparedness System identifies five mission areas:

• Prevention

• Protection

• Mitigation

• Response

• Recovery

Each of these mission areas will have a Planning Framework and an Interagency Operational 

Plan

Core capabilities are identified in each of the five mission areas. In addition, three core 

capabilities are identified as “cross-cutting” across all five mission areas.

ESFs are the coordinating structures used by the Federal government to provide support in 

delivering the core capabilities. ESF #4 is in the Response mission area, and falls under the 

core capability of “Public and Private Services and Resources.” Wildland fire agencies 

provide support in delivering most of the other core capabilities as well.

February 2012 Student Manual 1.1-21
Introduction to ESF #4

An effective, unified national response requires layered mutually supporting capabilities. 

Response to an incident is a shared responsibility of the “Whole Community,” including:

• Local and Tribal Governments. The responsibility for responding to incidents, both 

natural and manmade begins at the local level natural and manmade, begins at the local level. 

• States and Territorial Governments. States and territorial governments have 

responsibility for the public health and welfare of the people in their jurisdiction. During 

response, States play a key role coordinating resources and capabilities from across the 

State and obtaining resources and capabilities from other States.

• Federal Government Federal Government. When an incident occurs that exceeds or is anticipated to exceed When an incident occurs that exceeds or is anticipated to exceed

State, tribal, or local resources, the Federal Government may provide resources and 

capabilities to support the State response. 

• Individuals and Households. Individuals and households can contribute by reducing 

hazards in and around their homes, preparing an emergency supply kit and household 

emergency plan, and monitoring emergency communications carefully. 

• Private Sector. The private sector plays a key role before, during, and after an incident. 

First, they must provide for the welfare and protection of their employees in the 

workplace. Many private-sector organizations are responsible for operating and 

maintaining portions of the Nation’s critical infrastructure. 

• Nongovernmental Organizations (NGOs). NGOs play important roles before, during, 

and after an incident. For example, NGOs provide sheltering, emergency food supplies,

February 2012 Student Manual 1.1-22

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counseling services, and other vital support services to support response and promote 

the recovery of disaster victims. These groups often provide specialized services that 

help individuals with special needs, including those with disabilities. 
Introduction to ESF #4

Local police, fire, emergency medical services, public health and medical providers, 

emergency management, public works, environmental response professionals, and others in 

the community are often the first to detect a threat or hazard, or respond to an incident. They 

also are often the last to leave an incident site or otherwise cope with the effects of an 

incident. 

Local and tribal governments:

• Are generally responsible for the health, welfare, and safety of their citizens.

• Carry out these mandates using authorities enumerated in their laws and codes.

Review the above list of local/tribal roles. Add any additional roles in the space below.

February 2012 Student Manual 1.1-23
Introduction to ESF #4

The primary role of State government in emergency management is to supplement and 

facilitate local efforts before, during, and after incidents. 

The State p o des d ect a d out e ass sta ce to ts oca ju sd ct o s t oug e e ge cy State provides direct and routine assistance to its local jurisdictions through emergency

management program development and by routinely coordinating in these efforts with Federal 

officials. States must be prepared to maintain or accelerate services to local governments 

when local capabilities fall short of demands. States are also responsible for requesting 

Federal emergency assistance for communities and tribal governments within their area of 

responsibility. 

Review the above list of State roles. Add any p additional roles in the space below.

February 2012 Student Manual 1.1-24
Introduction to ESF #4

The Federal Government maintains a wide array of capabilities and resources that can be 

made available upon request of the Governor. 

For incidents involving primary Federal jurisdiction or authorities (e.g., on a military base or a 

Federal facility or lands) Federal departments or agencies may be the first responders and Federal facility or lands), Federal departments or agencies may be the first responders and

first line of defense, coordinating activities with State, territorial, tribal, and local partners. The 

Federal Government also maintains working relationships with private-sector businesses and 

NGOs. 

February 2012 Student Manual 1.1-25
Introduction to ESF #4

Review the following key points about the diagram:

• Local Level: Requests for resources flow from the on-scene incident command through 

the local Emergency Operations Centers (EOCs). Local EOCs may use mutual aid and 

assistance agreements with other communities to fulfill resource requests If resources assistance agreements with other communities to fulfill resource requests. If resources

cannot be obtained locally, the jurisdictions then communicate their requests to the State 

EOC.

• State Level: At the State EOC, requests from multiple jurisdictions are coordinated and 

prioritized. If the State officials cannot fulfill resource requests, they can use intrastate 

and interstate mutual aid and assistance agreements. 

Mutual aid and assistance agreements are written or oral agreements between and among 

agencies/organizations and/or jurisdictions that provide a mechanism to quickly obtain emergency 

assistance in the form of personnel, equipment, materials, and other associated services. The 

primary objective is to facilitate rapid, short-term deployment of emergency support prior to, during, 

and/or after an incident. The Emergency Management Assistance Compact (EMAC) is a 

congressionally ratified organization that provides form and structure to interstate mutual aid. 

Through EMAC, a disaster-impacted State can request and receive assistance from other member 

States quickly and efficiently States quickly and efficiently. 

• Federal Level: When a State is unable to acquire sufficient resources, it may request 

Federal assistance. Federal assistance may include expertise, funding, and resources/ 

equipment. NIMS is based on the concept that local jurisdictions retain command, 

control, and authority over response activities for their jurisdictional areas even when 

Federal resources are provided.

February 2012 Student Manual 1.1-26

Note: Some Federal agencies (U.S. Coast Guard, Environmental Protection Agency, wildland fire 

agencies, etc.) have statutory responsibility for response and may coordinate and/or integrate directly 

with affected jurisdictions.
Introduction to ESF #4

Unit 2 – National Mandates

Lesson 2.3: National Response Structures and 

Emergency Support Functions Overview

Lesson Terminal Objective: Lesson Terminal Objective: At the completion of this lesson participants will be able to At the completion of this lesson, participants will be able to

identify the national response structures.

Lesson Enabling Objectives:

• Describe the role of the national response structures, including:

• National Operations Center (NOC)

• National Response Coordination Center (NRCC) National Response Coordination Center (NRCC)

• Regional Response Coordination Center (RRCC)

• Joint Field Office (JFO)

• Describe the role and structure of the Emergency Support Functions (ESFs).

Note: The concepts presented in this lesson are derived from the National Incident 

Management System (NIMS) and the National Response Framework (NRF).

February 2012 Student Manual 1.1-27
Introduction to ESF #4

Natural or manmade disasters can result in numerous incidents occurring simultaneously 

requiring both command and support or coordinating structures. 

Command Structures: Using NIMS principles, incidents may be managed using:

• Single command

• Incident complex

• Unified Command

• Area Command

• Unified Area Command

Coordination Structures: Coordination Structures: Multiagency coordination centers as defined in NIMS provide Multiagency coordination centers, as defined in NIMS, provide

central locations for operational information sharing and resource coordination in support of 

on-scene efforts. These structures may include:

• Local Emergency Operations Center (EOC). When an incident requires significant 

multiagency coordination at the local level, usually the local EOC is activated. The local 

EOC coordinates activities with the individual incidents or area command as well as with 

other local EOCs. other local EOCs.

• State Emergency Operations Center (EOC). At the State EOC, requests from multiple 

jurisdictions are coordinated and prioritized. If the State officials cannot fulfill resource 

requests, they can use intrastate and interstate mutual aid and assistance agreements. 

In addition, statewide private-sector and nongovernmental organizations may help fulfill 

needs. 

February 2012 Student Manual 1.1-28
Introduction to ESF #4

A Multiagency Coordination (MAC) System provides the architecture to support coordination 

for incident prioritization, critical resource allocation, communications systems integration, and 

information coordination. 

MAC Systems consist of a combination of elements: personnel procedures protocols MAC Systems consist of a combination of elements: personnel, procedures, protocols, 

business practices, and communications integrated into a common system. 

The primary focus of the MAC System at the State level is the MAC entity and supporting staff 

operating out of the State EOC. The State EOC coordinates activities with local EOCs with 

the agencies and assets within the State.

February 2012 Student Manual 1.1-29
Introduction to ESF #4

The State EOC coordinates with other States through the Emergency Management Assistance Compact 

(EMAC). The State EOC may also coordinate with entities at the Federal level for additional resources. 

The remainder of this lesson will focus on the Federal response structures, including:

• Joint Field Office ( ) JFO . The JFO is the py g rimary Federal incident management field structure. 

The JFO is a temporary Federal facility that provides a central location for the coordination of 

Federal, State, tribal, and local governments and private-sector businesses and nongovernmental 

organizations with primary responsibility for response and short-term recovery. 

• Regional Response Coordination Center (RRCC). At the regional level, Federal interagency 

resource coordination and multiagency incident support are provided by the RRCC.

• National Response Coordination Center (NRCC). National Response Coordination Center (NRCC). The NRCC a component of the NOC is The NRCC, a component of the NOC, is

DHS/FEMA’s primary operations center responsible for coordinating Federal operational support, 

maintaining a common operating picture, and national resource coordination. 

• National Operations Center (NOC). The NOC is the primary national hub for situational 

awareness and operations coordination across the Federal Government for incident management. 

The NOC provides the Secretary of Homeland Security and other principals with information 

necessary to make critical national-level incident management decisions. 

The following two support organizations will be discussed in a later lesson:

• Geographic Area Coordination Center (GACC). If a wildland fire grows to the point where local 

personnel and equipment are not enough, the responsible agency contacts the Geographic Area 

Coordination Center (GACC) for help. When GACCs can no longer meet the requests because 

they are supporting multiple incidents, or when GACCs are competing for resources, the request 

for equipment and supplies is referred to the National Interagency Coordination Center (NICC).

February 2012 Student Manual 1.1-30

• National Interagency Coordination Center (NICC). The NICC serves as the dispatch and 

coordination center for Federal and State fire resources, primarily in response to wildland fires, but 

also in support of ESF #4.
Introduction to ESF #4

The final NOC element is the FEMA National Response Coordination Center (NOC-NRCC). 

During an incident, the NOC-NRCC operates on a 24/7 basis or as required to:

• Monitor potential or developing incidents.

• Support the efforts of regional and field components including coordinating the Support the efforts of regional and field components, including coordinating the

preparedness of national-level emergency response teams and resources.

• Initiate mission assignments or reimbursable agreements to activate other Federal 

departments and agencies (in coordination with Regional Response Coordination 

Centers). 

• Activate and deploy national-level specialized teams. 

In addition the NOC In addition, the NOC-NRCC resolves Federal resource support conflicts and other NRCC resolves Federal resource support conflicts and other

implementation issues forwarded from the field. 

February 2012 Student Manual 1.1-31
Introduction to ESF #4

The Regional Response Coordination Centers (RRCCs):

• Are 24/7 interagency coordination facilities staffed in anticipation of a serious incident in 

the region or immediately following an incident.

• Operate under the direction of the FEMA Regional Administrator Operate under the direction of the FEMA Regional Administrator.

After establishing communications with the affected State emergency management agency, 

RRCCs:

• Develop initial Federal objectives, 

• Provide Federal support to the affected States, and 

• Deploy teams to establish the Joint Field Office (JFO) that will assume these functions Deploy teams to establish the Joint Field Office (JFO) that will assume these functions.

February 2012 Student Manual 1.1-32
Introduction to ESF #4

Each of FEMA’s regional offices maintains an RRCC. 

FEMA has 10 regional offices, each headed by a Regional Administrator. Regional offices:

• Are FEMA Are FEMA s’ permanent presence for communities and States across the Nation permanent presence for communities and States across the Nation.

• Develop all-hazards operational plans and generally help States and communities 

become better prepared. 

February 2012 Student Manual 1.1-33
Introduction to ESF #4

The RRCC and NRCC Watch is a 24/7 steady-state function that maintains national 

situational awareness of potential or developing events that require a coordinated Federal 

response. 

When the Watch cannot manage the event and remain effective in their primary mission of When the Watch cannot manage the event and remain effective in their primary mission of

maintaining national situational awareness, the Watch will direct the activation of the 

RRCC/NRCC Activation Team. The RRCC/NRCC Director, in collaboration with the Watch 

Officer and Activation Team Officer, activates the Team at the appropriate level to handle the 

incident/event. 

The below table summarizes the activation levels and staffing levels.

Level Description / Staffing 

Level 1 All team members and ESFs. 

Level 2 Level 3 plus selected Emergency Support Functions (ESFs). 

Level 3 NRCC Director and Operations, Planning, Logistics, and 

Finance/Administration Section Chiefs Situation Unit Documentation Unit Finance/Administration Section Chiefs, Situation Unit, Documentation Unit, 

Coordination Staff members, Mission Assignments Manager, Action 

Tracker, and other select staff members as required. 

Normal Operations NRCC Watch Team 24 / 7 

February 2012 Student Manual 1.1-34
Introduction to ESF #4

Review the typical RRCC activities listed on the visual and consider the following questions:

• What are some pre-incident and initial response challenges that the RRCC personnel 

might encounter?

• What actions can be taken in advance of an incident to address these challenges?

February 2012 Student Manual 1.1-35
Introduction to ESF #4

Note that as the Joint Field Office (JFO) becomes fully operational, the RRCC operations are 

scaled back to providing continued support. The RRCC provides continuity of operations 

should the JFO operations be affected by another incident.

Part of the JFO demobilization planning is to transition the operations back to the Region The Part of the JFO demobilization planning is to transition the operations back to the Region. The

Region may manage long-term recovery programs for many years after the JFO closes.

After the initial crisis and response phase, the business aspects of the incident may be 

scrutinized when the region closes out grants and mission assignments. Therefore, 

documentation and accountability are critical during the response phase.

February 2012 Student Manual 1.1-36
Introduction to ESF #4

The JFO is organized into four sections based on the Incident Command System (ICS) 

standard organization as follows:

• Operations Section. The Operations Section coordinates operational support with on-scene 

incident management efforts. Branches, divisions, and groups may be added or deleted as 

requi d d di th t f th i id t Th O ti S ti i l ibl f ired, depending on the nature of the incident. The Operations Section is also responsible for 

coordinating with other Federal facilities that may be established to support incident management 

activities. 

• Planning Section. The Planning Section’s functions include the collection, evaluation, 

dissemination, and use of information regarding the threat or incident and the status of Federal 

resources. The Planning Section prepares and documents Federal support actions and develops 

unified action, contingency, long-term, and other plans. 

• Logistics Section. The Logistics Section coordinates logistics support that includes: control of 

and accountability for Federal supplies and equipment; resource ordering; delivery of equipment, 

supplies, and services to the JFO and other field locations; facility location, setup, space 

management, building services, and general facility operations; transportation coordination and 

fleet management services; information and technology systems services; administrative services 

such as mail management and reproduction; and customer assistance. 

• Finance and Administration Section. The Finance and Administration Section is responsible for 

the financial management monitoring and tracking of all Federal costs relating to the incident and the financial management, monitoring, and tracking of all Federal costs relating to the incident and

the functioning of the JFO while adhering to all Federal laws and regulations.

All or portions of this organizational structure may be activated based on the nature and 

magnitude of the threat or incident.

Depending on the scope and nature of the incident, the Unified Coordination Group identifies 

which Emergency Support Functions (ESFs) to activate. ESF resources are then integrated 

into all areas within the JFO structure.

February 2012 Student Manual 1.1-37
Introduction to ESF #4

• Federal Coordinating Officer (FCO). For Stafford Act incidents upon the 

recommendation of the FEMA Administrator and the Secretary of Homeland Security, the 

President appoints an FCO to coordinate Federal support in the response to and recovery 

from emergencies and major disasters. The FCO executes Stafford Act authorities, 

including commitment of FEMA resources and the mission assignment of other Federal including commitment of FEMA resources and the mission assignment of other Federal

departments or agencies. 

• State Coordinating Officer (SCO): The SCO is the individual appointed by the 

Governor to coordinate State disaster assistance efforts with those of the Federal 

Government. The SCO plays a critical role in managing the State response and recovery 

operations following Stafford Act declarations. The Governor of the affected State 

appoints the SCO and lines of authority flow from the Governor to the SCO following the appoints the SCO, and lines of authority flow from the Governor to the SCO, following the

State's policies and laws. 

February 2012 Student Manual 1.1-38
Introduction to ESF #4

• DOD has appointed 10 DCOs and assigned one to each FEMA Region. If requested and 

approved, the DCO serves as DOD's single point of contact at the JFO for requesting 

assistance from DOD. 

• With few exceptions requests for Defense Support of Civil Authorities (DSCA) originating With few exceptions, requests for Defense Support of Civil Authorities (DSCA) originating

at the JFO are coordinated with and processed through the DCO. The DCO may have a 

Defense Coordinating Element consisting of a staff and military liaison officers to facilitate 

coordination and support to activated ESFs.

• Specific responsibilities of the DCO (subject to modification based on the situation) 

include processing requirements for military support, forwarding mission assignments to 

the appropriate military organizations through DOD the appropriate military organizations through DOD-designated channels and assigning designated channels, and assigning

military liaisons, as appropriate, to activated ESFs.

February 2012 Student Manual 1.1-39
Introduction to ESF #4

The JFO is organized into four sections based on the Incident Command System (ICS) 

standard organization as follows:

• Operations Section. The Operations Section coordinates operational support with onscene incident manag , , gp y ement efforts. Branches, divisions, and groups may be added or 

deleted as required, depending on the nature of the incident. The Operations Section is 

also responsible for coordinating with other Federal facilities that may be established to 

support incident management activities. 

• Planning Section. The Planning Section’s functions include the collection, evaluation, 

dissemination, and use of information regarding the threat or incident and the status of 

Federal resources. The Planning Section prepares and documents Federal support 

actions and develop , g y, g s unified action, contingency, long-term, p and other plans. 

• Logistics Section. The Logistics Section coordinates logistics support that includes: 

control of and accountability for Federal supplies and equipment; resource ordering; 

delivery of equipment, supplies, and services to the JFO and other field locations; facility 

location, setup, space management, building services, and general facility operations; 

transportation coordination and fleet management services; information and technology 

systems services; administrative services such as mail management and reproduction; 

and customer assistance. 

• Finance and Administration Section. The Finance and Administration Section is 

responsible for the financial management, monitoring, and tracking of all Federal costs 

relating to the incident and the functioning of the JFO while adhering to all Federal laws 

and regulations.

All or portions of this organizational structure may be activated based on the nature and 

magnitude of the threat or incident.

February 2012 Student Manual 1.1-40

magnitude of the threat or incident.

Depending on the scope and nature of the incident, the Unified Coordination Group identifies 

which Emergency Support Functions (ESFs) to activate. ESF resources are then integrated 

into all areas within the JFO structure.
Introduction to ESF #4

The Federal Government and many State governments organize much of their resources and 

capabilities – as well as those of certain private-sector and nongovernmental organizations –

under Emergency Support Functions (ESFs). 

The ESFs: The ESFs:

• Are coordinated by FEMA through the NRCC and RRCC. 

• Are a critical mechanism to coordinate functional capabilities and resources provided by 

Federal departments and agencies, along with certain private-sector and 

nongovernmental organizations. 

Many States have also organized an ESF structure along this approach.

February 2012 Student Manual 1.1-41
Introduction to ESF #4

Review the general ESF duties listed on the visual. A later lesson presents detailed 

information about the ESF #4 duties.

Why is it important that ESFs have the authority to commit agency assets?

February 2012 Student Manual 1.1-42
Introduction to ESF #4

The 15 Emergency Support Functions are listed on the visual. For additional information on 

each ESF, see the next couple of pages.

Also, you can access the complete ESF Annexes at the NRF Resource Center at 

www fema gov/nrf www.fema.gov/nrf.

February 2012 Student Manual 1.1-43
Introduction to ESF #4

The ESF structure includes:

• ESF Coordinator. The entity assigned to manage oversight for a particular ESF. 

• Primary Agencies Primary Agencies. ESF primary agencies are Federal agencies with significant ESF primary agencies are Federal agencies with significant

authorities, resources, or capabilities for a particular function within an ESF. A Federal 

agency designated as an ESF primary agency serves as a Federal executive agent under 

the Federal Coordinating Officer (or Federal Resource Coordinator for non-Stafford Act 

incidents) to accomplish the ESF mission.

• Support Agencies. Support agencies are those entities with specific capabilities or 

resources that support the primary agencies in executing the mission of the ESF resources that support the primary agencies in executing the mission of the ESF.

ESFs provide support to other ESFs. For example, ESF #3 – Public Works and Engineering 

may support rural firefighting forces to obtain heavy equipment and/or demolition services as 

needed to suppress incident-related fires.

February 2012 Student Manual 1.1-44
Introduction to ESF #4

The ESF coordinator has management oversight for that particular ESF. 

As described on the visual, the ESF coordinator has a role throughout the incident 

management cycle. 

February 2012 Student Manual 1.1-45
Introduction to ESF #4

Primary Agency: When an ESF is activated in response to an incident, the primary agency is 

responsible for:

• Serving as a Federal executive agent under the Federal Coordinating Officer (or Federal Resource 

Coordinator for non-Stafford Act incidents) to accomplish the ESF mission.

• Orchestrating Federal support within their functional area for an affected State. Orchestrating Federal support within their functional area for an affected State.

• Providing staff for the operations functions at fixed and field facilities.

• Notifying and requesting assistance from support agencies.

• Managing mission assignments and coordinating with support agencies, as well as appropriate 

State agencies.

• Working with appropriate private-sector organizations to maximize use of all available resources.

• Supporting and keeping other ESFs and organizational elements informed of ESF operational 

priorities and activities.

• Maintaining trained personnel to support interagency emergency response and support teams Maintaining trained personnel to support interagency emergency response and support teams. 

Support Agency: When an ESF is activated in response to an incident, support agencies are 

responsible for:

• Conducting operations, when requested by DHS or the designated ESF primary agency, using 

their own authorities, subject-matter experts, capabilities, or resources.

• Participating in planning for short- and long-term incident management and recovery operations 

and the development of supporting operational plans, SOPs, checklists, or other job aids, in 

concert with existing first concert with existing first-responder standards responder standards.

• Assisting in the conduct of situational assessments.

• Furnishing available personnel, equipment, or other resource support as requested by DHS or the 

ESF primary agency.

• Providing input to periodic readiness assessments.

• Participating in training and exercises aimed at continuous improvement of response and recovery 

capabilities.

• Identifying new equipment or capabilities required to prevent or respond to new or emerging 

th t d h d t i th bilit t dd i ti th t

February 2012 Student Manual 1.1-46

threats and hazards, or to improve the ability to address existing threats.
Introduction to ESF #4

As shown in the table, there are fifteen Emergency Support Functions. There are 32 agencies 

involved in the ESFs. 

USDA, USFS, and DOI play key roles in many of the ESFs.

February 2012 Student Manual 1.1-47
Introduction to ESF #4

As shown in the table, there are fifteen Emergency Support Functions. There are 32 agencies 

involved in the ESFs. 

USDA, USFS, and DOI play key roles in many of the ESFs.

February 2012 Student Manual 1.1-48
Introduction to ESF #4

The NRF is divided into 15 Emergency Support Functions. The ESFs provide structure for 

coordinating Federal interagency support during declared emergencies and major disasters. 

Firefighting is just one of 15 different Emergency Support Functions under the NRF, the 

purpose of which is to coordinate firefighting activities in support of state and local agencies purpose of which is to coordinate firefighting activities in support of state and local agencies

involved in rural and urban firefighting operations during incidents that are or may be declared 

as emergencies or major disasters under the Stafford Act.

February 2012 Student Manual 1.1-49
Introduction to ESF #4

ESFs may be selectively activated for both Stafford Act and non-Stafford Act incidents under 

circumstances as defined in HSPD-5. Not all incidents requiring Federal support result in the 

activation of ESFs. 

FEMA can deploy assets and capabilities through ESFs into an area in anticipation of an FEMA can deploy assets and capabilities through ESFs into an area in anticipation of an

approaching storm or event that is expected to cause a significant impact and result. This 

coordination through ESFs allows FEMA to position Federal support for a quick response, 

though actual assistance cannot normally be provided until the Governor requests and 

receives a Presidential major disaster or emergency declaration. 

February 2012 Student Manual 1.1-50
Introduction to ESF #4

When activated, ESFs may be deployed to:

• NRCC. At FEMA headquarters, the ESFs support decisionmaking and coordination of 

field operations within the NRCC. 

• RRCC and JFO. The ESFs deliver a broad range of technical support and other services 

at the regional level in the RRCCs and at the field level at the JFO. 

• State EOC and Other Entities. In addition to being assigned at the JFO, ESFs may 

serve as Advance Teams members at a State EOC or work in other coordination entities 

such as a Geographic Area Coordination Center (GACC) .

February 2012 Student Manual 1.1-51
Introduction to ESF #4

This visual shows the interaction among the different levels and response partners during a 

complex incident. As shown on this chart, firefighting resources may be deployed through:

• Intrastate mutual aid and assistance agreements

• Interstate mutual aid and assistance plans Interstate mutual aid and assistance plans

• The Emergency Management Assistance Compact (EMAC)

• The ESF Structure of the National Response Framework

Do you have any questions about how the parts of the system work together and the 

role of the Emergency Support Functions?

February 2012 Student Manual 1.1-52
Introduction to ESF #4

Unit 3 – Mission and Concept of Operations 

Lesson 3.1: ESF #4 Purpose and Scope

Lesson Terminal Objective: At the completion of this lesson, you will be able to identify key 

aspects of ESF #4 aspects of ESF #4. 

Lesson Enabling Objectives:

• Describe the purpose of ESF #4.

• Identify the primary agency.

• Describe the responsibilities of the primary agency under ESF #4.

• Identify support agencies Identify support agencies.

• Describe responsibilities of support agencies under ESF #4.

• Identify ESF #4 resource capabilities.

February 2012 Student Manual 1.1-53
Introduction to ESF #4

ESF #4:

• Manages and coordinates firefighting activities, including the detection and suppression 

of fires. 

• Provides personnel, equipment, and supplies in support of State, tribal, and local 

agencies involved in wildland, rural, and urban firefighting operations. 

February 2012 Student Manual 1.1-54
Introduction to ESF #4

Under ESF #4, all-hazards incident-specific training is provided to personnel prior to 

mobilization for any given assignment. 

Additionally, ESF #4 primary and support agencies provide:

• Training to Federal, State, tribal, and local partners to build capacity.

• Technical assistance in incident planning to enhance State, tribal, and local 

organizations’ ability to plan.

ESF #4 coordinates the use of state-of-the-art technology and equipment to detect and fight 

wildland fires occurring during or because of a disaster. 

While response always begins at the lowest level of government, ESF #4 is responsible for 

supporting these efforts when requested by coordinating Federal firefighting resources, 

including:

• Trained firefighting personnel. 

• Incident management expertise and support. 

• Engines and other heavy equipment. Engines and other heavy equipment.

• Aerial firefighting support. 

• Logistical support for firefighting operations. 

February 2012 Student Manual 1.1-55
Introduction to ESF #4

National Coordinator: The Department of Agriculture (USDA)/Forest Service Disaster and 

Emergency Operation Branch Chief serves as the national ESF #4 coordinator at the 

headquarters level. This position is the link to the National Director for Fire and Aviation 

Management at USDA/Forest Service Headquarters.

The national ESF #4 coordinator or representative:

• Reports to and is a member of the National Response Coordination Center (NRCC), 

when activated. 

• Provides subject-matter expertise through the USDA leadership to the Domestic 

Readiness Group (DRG) and other departments/agencies at the headquarters level. 

Based on recommended Dep y( ) q , y artment of Homeland Security (DHS) requirements, ESF #4 may

be operational on a 24-hour basis.

While operational, ESF #4, through the NRCC, provides subject-matter expertise as needed 

to FEMA and other ESFs. Support agencies have representatives available at the NRCC or 

by telephone or pager on a 24-hour basis while ESF #4 is operational.

Regional/Area Coordinator: The regional/area ESF #4 coordinator (provided by the 

USDA/Forest Service reg ) ional/area office):

• Coordinates Federal firefighting response support. 

• Is responsible for establishing and maintaining coordination with the national ESF #4 

coordinator, regional support agencies, regional FEMA officials, and the Joint Field Office 

(JFO). 

While operational, ESF #4, through the Regional Response Coordination Center 

(RRCC)/JFO, provides subject-matter expertise as needed to FEMA and other ESFs. Support

February 2012 Student Manual 1.1-56

(RRCC)/JFO, provides subject matter expertise as needed to FEMA and other ESFs. Support

agencies have representatives available at the RRCC/JFO or by telephone or pager on a 24-

hour basis while ESF #4 is operational. 

Geographic Area Coordination Centers (GACCs) provide regional firefighting response, 

mobilization of resources, and logistics support. 
Introduction to ESF #4

The Department of Agriculture (USDA)/Forest Service is the ESF #4 coordinator and primary 

agency. 

February 2012 Student Manual 1.1-57
Introduction to ESF #4

As the ESF #4 primary agency, the USDA/Forest Service: 

• Provides qualified representatives to serve as ESF #4 coordinators at the national and 

regional/area levels.

• Provides support personnel at the NRCC and RRCC/JFO levels.

• Requests assistance from support agencies as necessary to accomplish ESF #4 

responsibilities.

• Provides logistical support through the GACC and/or the National Interagency 

Coordination Center (NICC) for mobilizing resources for firefighting Coordination Center (NICC) for mobilizing resources for firefighting.

February 2012 Student Manual 1.1-58
Introduction to ESF #4

The ESF #4 primary agency: 

• Assumes full responsibility for suppression of wildfires burning on National Forest 

System lands and joins in a unified command with the local jurisdiction on incidents 

threatening National Forest System lands threatening National Forest System lands.

• Provides and coordinates firefighting assistance to other Federal land management, 

State forestry, tribal, and local fire organizations as requested under the terms of existing 

agreements and the National Response Framework (NRF).

• Arranges for direct liaison with State emergency operations centers (EOCs), local EOCs, 

and fire chiefs in the designated area as appropriate to coordinate requests for and fire chiefs in the designated area, as appropriate, to coordinate requests for

firefighting assistance in structural or industrial fire detection, protection, and suppression 

operations.

• Provides information to the Planning Section at the incident and the JFO as assessments 

of fire-caused damages are obtained.

February 2012 Student Manual 1.1-59
Introduction to ESF #4

The U.S. Forest Service All-Hazard Response doctrine outlines priorities for accepting 

missions/tasks:

1. Agency mission

2. ESF #4 mission under the NRF ESF #4 mission under the NRF

3. Support to other ESFs as specified in the NRF

4. Nonspecified support to other ESFs and departments/agencies

February 2012 Student Manual 1.1-60
Introduction to ESF #4

Take a moment to review the roles of the ESF #4 support agencies listed on the next page.

February 2012 Student Manual 1.1-61
Introduction to ESF #4

The Department of the Interior (DOI) through the Bureau of Land Management (BLM), Fish 

and Wildlife Service (FWS), National Park Service (NPS), and Bureau of Indian Affairs (BIA):

• Assumes full responsibility for fighting wildfires burning on lands within its jurisdiction.

• Assists the USDA/Forest Service in managing and coordinating firefighting operations Assists the USDA/Forest Service in managing and coordinating firefighting operations.

• Provides firefighting assistance to other Federal land management organizations as 

requested under the terms of existing agreements and the National Response 

Framework.

February 2012 Student Manual 1.1-62
Introduction to ESF #4

The U.S. Fire Administration (USFA):

• Provides subject-matter experts and expertise regarding structural, urban/suburban fire 

and fire-related activities.

• Maintains a representative at the NIFC to assist with national coordination Maintains a representative at the NIFC to assist with national coordination. 

February 2012 Student Manual 1.1-63
Introduction to ESF #4

State forestry organizations in most States are responsible for wildland firefighting on nonFederal lands. The National Association of State Foresters (NASF) promotes the 

conservation and protection of forest lands and resources. 

States may assist other States in firefighting operations and may assist Federal agencies States may assist other States in firefighting operations and may assist Federal agencies

through agreements.

February 2012 Student Manual 1.1-64
Introduction to ESF #4

There are more than 30,000 fire departments in the United States.

A fire department responds to a fire in the United States every 19.0 seconds. Together, fire 

departments respond to a total of nearly 1.8 million calls each year for: 

• Medical aid

• Fires

• Mutual aid/assistance 

• Hazmat

• Search and rescue

• Special operations (e.g., technical rescue)

• Other hazards (e g arcing wires bomb removal) Other hazards (e.g., arcing wires, bomb removal)

• False alarms

Other firefighting facts and considerations:

• The United States has a yearly average of 1,758,000 fires and 4,025 fire deaths. 

• In 2004, there were 511,000 structural fires, causing 3,105 civilian deaths, 15,325 In 2004, there were 511,000 structural fires, causing 3,105 civilian deaths, 15,325

civilian injuries, and $9.2 billion in property damage. 

• In 2007, 113 firefighters died.

• 800,000 firefighters in the United States are volunteers. 

• All-volunteer/mostly volunteer fire departments protect approximately 38 percent of the 

February 2012 Student Manual 1.1-65

y p p pp y p

country’s population and more than 70 percent of the country’s land area. 
Introduction to ESF #4

States may request or provide additional structural firefighting support, including some of the 

following specialized structural firefighting resources:

• Aerial Ladder Trucks provide access to, and exits for, all parts of a fire building. 

Ladder company crews also are responsible for removing heat smoke and gases to Ladder company crews also are responsible for removing heat, smoke, and gases to

allow greater visibility and permit engine company crews to move rapidly and safely 

within a fire building or exposed buildings.

• Fire Boats are water vessels that are used as pumpers. They have the capacity to 

draw in and spray water simultaneously. Many fire boats also are outfitted to serve a 

rescue vessel on bodies of water.

• Hazmat Response Units are specialized fire apparatus with a specially trained crew 

that are used on hazardous material incidents that are used on hazardous material incidents. 

• Airport Rescue and Firefighting Units are used to extinguish aircraft fires. These 

vehicles have the capability to mix foam with water using hoses and monitors to 

extiguish aircraft fires.

• Breathing Air Supply Units are used to replenish Self-Contained Breathing Apparatus 

(SCBA) bottles at an incident scene.

• Mobile Incident Command Posts are vehicles that are specially designed to serve as 

an Incident Command Post (ICP) at the incident scene. These vehicles are equipped an Incident Command Post (ICP) at the incident scene. These vehicles are equipped

with radios, phones, computers, and workspace for an Incident Commander and other 

staff at a working incident.

• Technical Rescue and Special Operations capabilities may include swift water 

rescue and other technical rescue teams. 

February 2012 Student Manual 1.1-66
Introduction to ESF #4

Unit 3 – ESF #4 Mission and Concept of Operations

Lesson 3.2: ESF #4 Positions

Lesson Terminal Objective: At the completion of this lesson, you will be able to identify the 

roles and responsibilities of the ESF #4 coordinator and subordinates roles and responsibilities of the ESF #4 coordinator and subordinates.

Lesson Enabling Objectives:

• Identify the emergency response roles and responsibilities assumed by ESF #4, and who 

serves—and/or is eligible to serve—in the following positions: 

• National coordinator

• Primary Leader Primary Leader

• Support – Wildland

• Support – Structure

• Support – Administrative 

• Explain the parallel structure of ESF #4 at the national and regional/area levels.

• Analyze the various duties assumed by the ESF #4 staff as a whole, and describe how 

they pertain to the following areas:

• Informing and interfacing with chain of command Informing and interfacing with chain of command

• Financial oversight

• Safety of personnel

• Reporting and recordkeeping

February 2012 Student Manual 1.1-67
Introduction to ESF #4

This lesson presents:

• The specific role and responsibilities of the ESF #4 National and Regional/Area 

Coordinators. These leadership positions are appointed prior to an incident. Depending 

on the type of incident the individuals in these positions may serve as the Primary Leader on the type of incident, the individuals in these positions may serve as the Primary Leader

at the National Response Coordination Center (NRCC) or Regional Response 

Coordination Center (RRCC).

• ESF #4 staff positions (commonly referred to as the ESF #4 desk) and their roles. 

Individuals in these positions are assigned to work at the Geographic Area Coordination 

Center (GACC), NRCC, or RRCC/Joint Field Office (JFO). The Primary Leader (if not the 

ESF #4 Coordinator) receives a delegation of authority ESF #4 Coordinator) receives a delegation of authority.

February 2012 Student Manual 1.1-68
Introduction to ESF #4

The USDA/Forest Service (USFS) Disaster and Emergency Operation Branch Chief serves as 

the ESF #4 Coordinator. The National ESF #4 Coordinator or representative reports to and is 

a member of the ESF Leaders’ Group (ESFLG) and the NRCC (when activated); is 

accountable to the National Director for Fire and Aviation Management at USFS 

Headquarters. 

The National Coordinator is responsible for the overall ESF #4 activities and financial 

management, including:

• Contacting the Fire and Aviation Management Budget Analyst, Forest Service, 

Washington Office, to obtain Office of Management and Budget (OMB) reimbursement/ 

apportionment authority. 

• Establishing communications links with Regional/Area ESF #4 Coordinator(s), support 

agencies, the USDA Emergency Operations Center, the National Director for Fire and 

Aviation Management at USFS Headquarters, and the USFS Assistant Director –

Operations at the National Interagency Fire Center (NIFC).

The Regional/Area ESF #4 Coordinator is responsible for regional/area ESF #4 activities, 

including:

• Establishing and maintaining coordination with the National ESF #4 Coordinator, 

regional/area support agencies, regional/area FEMA officials, and the JFO. 

• Coordinating Federal firefighting response support from the RRCC, including providing 

subject-matter expertise as needed to other ESFs and FEMA and conducting pre-incident 

coordination with the appropriate FEMA Regional Interagency Steering Committee 

(RISC). 

February 2012 Student Manual 1.1-69
Introduction to ESF #4

The primary oversight responsibilities of the ESF #4 Coordinator(s) at both the national and 

regional/area levels are:

• Ensure the FEMA ESF #4 activation mission assignment (MA) is accepted and other 

issued MAs are accepted or redirected issued MAs are accepted or redirected.

• Ensure appropriate fiscal codes are established for each MA and communicated to the 

appropriate parties. In addition, the Regional/Area ESF #4 Coordinator works in 

conjunction with the Regional Incident Business Management Coordinator (or designated 

responsible person) to establish processes to forward MAs to support agencies and the 

Albuquerque Service Center (ASC).

• Ensure compliance with business management requirements. 

Note: Additional information on managing the mission assignment process is presented in a 

later lesson.

February 2012 Student Manual 1.1-70
Introduction to ESF #4

The primary responsibilities for resource management of the ESF #4 Coordinator(s) at both 

the national and regional/area levels are:

• Make internal notifications and ESF support agency notifications (when necessary).

• Issue written delegation of authority to the ESF #4 Primary Leader who may represent 

them at the NRCC or RRCC/JFO.

• Establish incident safety procedures to ensure employee health and safety.

• Serve as liaison between USDA and National Response Framework (NRF) partners at 

the appropriate level the appropriate level.

In addition, the Regional/Area ESF #4 Coordinator must arrange for adequate staffing for 

all shifts at the RRCC and other locations.

February 2012 Student Manual 1.1-71
Introduction to ESF #4

The ESF #4 Primary Leader (ESFL):

• Manages and directs the ESF #4 organization.

• Provides technical advice and support to FEMA as the Forest Service representative Provides technical advice and support to FEMA as the Forest Service representative. 

• Communicates with Federal and State agencies regarding policies, procedures, and 

capabilities related to all-hazard emergency management. 

• Serves as an intelligence and information conduit during an ESF #4 activation.

• Determines the appropriate response to a request for resources (determines the best type Determines the appropriate response to a request for resources (determines the best type

of resources for a given task/mission).

• Delegates appropriate tasks that are within the scope of a given MA to resources.

February 2012 Student Manual 1.1-72
Introduction to ESF #4

The Support – Wildland position (ESFW):

• Reports to the Primary Leader.

• Supports the Primary Leader in daily tasks Supports the Primary Leader in daily tasks.

• Recommends procedures and management actions addressing incident issues, 

concerns, and opportunities. 

February 2012 Student Manual 1.1-73
Introduction to ESF #4

The Support – Structure position (ESFS):

• Reports to the Primary Leader.

• Provides subject Provides subject-matter experts/expertise regarding structure/urban/suburban fire matter experts/expertise regarding structure/urban/suburban fire-related related

activities.

• Serves as an “information bridge” to State fire administrators and Emergency 

Management Assistance Compact (EMAC) staff between requests for Federal firefighting 

assistance and State/local firefighting resources.

• As necessary helps facilitate coordination of structure fire resources and provides As necessary, helps facilitate coordination of structure fire resources and provides

technical assistance to wildland and structural organizations. 

The ESF #4 National Coordinator will complete the USFA subtasking request when an ESFS 

is activated.

February 2012 Student Manual 1.1-74
Introduction to ESF #4

The Support – Administrative position (ESFA):

• Reports to the Primary Leader.

• Provides administrative support to the ESF #4 function Provides administrative support to the ESF #4 function.

• Assists with documentation, organization, and related administrative day-to-day needs. 

February 2012 Student Manual 1.1-75
Introduction to ESF #4

Information flow starts with establishing and maintaining positive interpersonal and 

interagency working relationships, and keeping the chain of command informed (up, down, 

and sideways). 

The key responsibilities of the ESF #4 staff in maintaining information flow include the The key responsibilities of the ESF #4 staff in maintaining information flow include the

following duties:

• Receive briefings and brief subordinates, including the initial briefings from the Regional 

Fire and Emergency Operations Specialist or the FEMA Emergency Services Branch 

Chief. Be sure to advise appropriate personnel of multiagency agendas and group 

meetings.

• Provide technical information and guidance to FEMA and cooperating agencies related to 

the availability and capabilities of resources from Federal and State wildland fire 

agencies.

• Provide daily briefings of Forest Service activities to the FEMA Director at the RRCC/JFO 

and the Director of Fire and Aviation Management at the appropriate level.

• Prepare and present situation reports as required by the RRCC/JFO Director, describing 

the activities and status of ESF #4 and other support agency resources.

• Provide input to planning and reporting processes at the NRCC, RRCC, and JFO as 

requested. 

• Respond to information requests. 

February 2012 Student Manual 1.1-76

p q

Note that ESF #4 personnel should inquire and understand expected timeframes for any 

briefing, meeting, or report input. 
Introduction to ESF #4

The key responsibilities of the ESF #4 staff regarding financial oversight include the following:

• Ensure that mission assignments (MAs) are accepted or redirected as appropriate. 

• Ensure FEMA MA documents have been finalized with specific language describing the Ensure FEMA MA documents have been finalized with specific language describing the

assignment, and that these MAs are approved. MAs must be approved by FEMA and 

accepted by an appropriate Director, Fire and Aviation Management, or designee. 

• Coordinate with other ESFs whose organizations are involved in common missions. 

Prepare sub-tasking request when sub-tasking to another agency. Ensure sub-tasking 

MAs are completed and approved.

• Ensure that appropriate fiscal codes are established for each MA and communicated.

• Monitor MAs to ensure the dollar limitations are not exceeded. If it is anticipated that the 

dollar limitation set forth in the MA will be exceeded, submit a request for additional 

funding.

• Monitor the anticipated length of response activities for ESF #4 personnel. Assist in Monitor the anticipated length of response activities for ESF #4 personnel. Assist in

coordination of a smooth and seamless transition to another agency, organization, or 

private-sector source to manage recovery activities and long-term support needs.

February 2012 Student Manual 1.1-77
Introduction to ESF #4

The key responsibilities of the ESF #4 staff regarding the safety, welfare, and accountability of 

deployed personnel include the following:

• Communicate specialized requirements for MAs, including needed vaccinations, 

credentials (as defined by NIMS) specialized training and personal protective equipment credentials (as defined by NIMS), specialized training, and personal protective equipment

(PPE) required for personnel to operate safely within their assigned mission.

• Ensure all employees involved are supported and managed by an agency leader, agency 

liaison, or interagency Incident Management Team (IMT). This support includes agency 

participation in mission assignment, incident action planning, and resource tracking while 

on all-hazard work assignments.

• Ensure individuals ordered as a single resource have a “lifeline” back to ESF #4 

personnel. In this case, the ESF #4 Primary Leader is responsible for ensuring the safety 

and health needs of the employees are met. Single resources and the Primary Leader 

will maintain contact to ensure all safety, health, and related issues can be resolved.

• Ensure a clear, concise “Leader’s Intent” mission briefing is provided to committed 

resources to ensure safe, effective, and efficient assignment management for employees resources to ensure safe, effective, and efficient assignment management for employees

on the incident(s). The briefing should emphasize incident-specific information and 

safety/personal protective training required prior to task(s) accomplishment. Note that 

risk management during incident action planning and resource tracking activities helps 

ensure the safety of employees.

February 2012 Student Manual 1.1-78
Introduction to ESF #4

The key responsibilities of the ESF #4 staff for reporting and recordkeeping include the 

following:

• Maintain an ICS Form 214, Unit Log, as a daily shift log of events.

• Maintain files (electronic and/or hard copy) of pertinent correspondence, reports, logs, 

and other information.

• Follow the responsibilities outlined in the ESF #4 Annex of the NRF.

• Develop after-action reports and submit updates for the Concept of Operations 

(CONOPS) action matrix as requested by the USFA USFS and FEMA (CONOPS) action matrix as requested by the USFA, USFS, and FEMA. 

February 2012 Student Manual 1.1-79
Introduction to ESF #4

At the end of an assignment, ESF #4 personnel should: 

• Provide Remedial Action and Lessons Learned input to the FEMA Emergency Services 

Branch Chief.

• Organize information and prepare final incident package including: Organize information and prepare final incident package, including: 

• Briefing papers

• Chronological narrative

• Unit Action Log

• Remedial Action Issue and Lessons Learned

• Action Request Forms

• Mission assignments

• Cost tracking data Cost tracking data

• Record time on appropriate form and obtain appropriate approval. 

• Restock ESF #4 desk with necessary supplies. 

• Arrange for return travel. 

• Leave names and phone numbers for ESF #4 contacts taped to the ESF #4 computer 

screen. 

• Complete final checkout. 

• Check in with home unit Dispatch Office upon arrival back home. 

February 2012 Student Manual 1.1-80
Introduction to ESF #4

The NRCC and the RRCC/JFO normally staff with a Primary Leader, a Wildland Support 

position, and when necessary, a Structure Support position and/or an Administrative Support 

position. During a wildfire emergency declaration, additional staffing may be deployed to the 

State Emergency Operations Center (EOC) and the Geographic Area Coordination Center.

At the State EOC: 

• An ESF #4 Primary Leader works with State fire officials to determine the best method for 

requesting firefighting resources. The State EOC Primary Leader reports to the ESF #4 Primary 

Leader at the RRCC/JFO. 

• An ESF #4 Structure Support position coordinates with EMAC regarding firefighting resource 

requests. This position supports and reports to the Primary Leader at this location.

An ESF #4 satellite unit may be placed at the GACC. The satellite unit reports to the Primary Leader at 

the RRCC/JFO and consists of:

• An intelligence-gathering position (Situation Unit Leader recommended) to answer inquiries from 

the JFO, RRCC, NRCC, and National Interagency Coordination Center (NICC).

• Finance/Administration Section Chief qualified person to compile and track mission assignmentrelated costs.

• Resource Unit Leader to track resources and support other ESF #4 positions at the GACC.

In addition, the Regional/Area ESF #4 Coordinator provides coordination/liaison between regional 

Forest Service leadership and coordinates with Bureau or Regional Coordinators from support agencies 

and land management leadership (line officers) as appropriate. 

In order to better coordinate the release of information, ESF #4 should request the JFO send a Public 

Information Officer (PIO) to the GACC Joint Information Center (JIC). The GACC should likewise send 

February 2012 Student Manual 1.1-81

a PIO to the JFO JIC.
Introduction to ESF #4

Intentionally Left Blank

February 2012 Student Manual 1.1-82
Introduction to ESF #4

Unit 5 – Resource Management 

Lesson 5.1: Mutual Aid and Assistance

Lesson Terminal Objective: At the completion of this lesson, participants will be able to 

describe the processes used for intrastate and interstate agreements and compacts describe the processes used for intrastate and interstate agreements and compacts.

Lesson Enabling Objectives: At the end of this lesson, you will be able to describe:

• Methods for providing aid under intrastate agreements.

• Existing interstate agreements for providing aid. 

• Key lessons learned in blending resources from different sources.

February 2012 Student Manual 1.1-83
Introduction to ESF #4

Responsibility for situation assessment and determination of resource needs lies primarily 

with the local Incident Commander.

Local, tribal, and State governments have the option of requesting interstate and intrastate 

firefighting assistance and resources firefighting assistance and resources.

ESF #4 uses established firefighting and support organizations, processes, and NIMS 

procedures as outlined in the National Interagency Mobilization Guide. 

Resources arrival at the incident scene through different resource management 

mechanisms or lanes.

February 2012 Student Manual 1.1-84
Introduction to ESF #4

There are several types of mutual aid and assistance agreements, including:

• Automatic Mutual Aid: A basic contract or informal agreement that permits the 

automatic dispatch and response of requested resources without incident-specific 

approvals. 

• Local Mutual Aid: An agreement between neighboring jurisdictions that involves a 

formal request for assistance. Local mutual aid and assistance agreements cover a 

larger geographic area than automatic mutual aid. 

• In-State Regional Mutual Aid: A regional mutual aid and assistance agreement among 

multiple jurisdictions within a State multiple jurisdictions within a State. 

• Intrastate Mutual Aid: An agreement, often coordinated through the State, that 

incorporates State and local government and nongovernmental assets. 

• Interstate Agreements: Assistance provided through the Emergency Management 

Assistance Compact (EMAC) or other formal State-to-State agreement.

Note About Tribal Governments: In most cases, State law and jurisdiction does not apply to 

tribal governments on a reservation or trust lands. The jurisdiction question varies and needs 

to be understood prior to entering into mutual aid and assistance agreements. Depending on 

the structure of a tribal government, the treaties, tribal constitution, Federal statute, the Bureau 

of Indian Affairs (BIA), and/or other legal structures will provide the authorities needed for a 

tribal government or entity to enter into a mutual aid and assistance agreement. Protection of 

sovereignty and treaty rights is critical to a tribal government, and understanding this priority

February 2012 Student Manual 1.1-85

gy yg g , g p y

will enable the necessary successful relationships for mutual aid and assistance agreements. 
Introduction to ESF #4

The ability to acquire Federal resources is based on laws (e.g., the Stafford Act), regulations, 

and State and local agreements (e.g., cooperative fire). 

Agreements must be supported by law regardless of level. 

It is also important to know under what authorities or agreement the resources are being 

mobilized. In some cases, there is no authority for Federal resources. By law, Federal 

entities are not involved in inter- or intrastate compacts. 

February 2012 Student Manual 1.1-86
Introduction to ESF #4

The Emergency Management Assistance Compact (EMAC) is an interstate mutual aid 

agreement that was developed out of the need to assist and coordinate resources across 

State lines in the event of a disaster situation. 

Since EMAC was ratified by Congress and signed into law in 1996 (Public Law 104 Since EMAC was ratified by Congress and signed into law in 1996 (Public Law 104-321) 50 321), 50

states, the District of Columbia, Puerto Rico, Guam, and the U.S. Virgin Islands have enacted 

legislation to become members of EMAC. Through EMAC, States provide emergency relief 

resources needed to protect the public’s safety and quickly restore infrastructure in a time of 

emergency or disaster. 

A copy of P.L. 104-321 establishing EMAC can be found on the HSIN portal. Additional 

information about EMAC can be found online at: www emacweb org information about EMAC can be found online at: www.emacweb.org. 

February 2012 Student Manual 1.1-87
Introduction to ESF #4

Activation under EMAC begins when a Governor declares a state of emergency and an event 

is opened in the EMAC Operations System. 

The affected State may request that an EMAC advance team work with the State to determine 

the need the need.

After the terms of the mission have been agreed upon by both States, the terms constitute a 

legally binding agreement. The form that sets these terms is called the EMAC Request for 

Assistance form (REQ-A).

When a request for assistance is made via EMAC, the Requesting State first completes 

Section 1 of the REQ Section 1 of the REQ-A The Requesting State and Assisting State or States negotiate the A. The Requesting State and Assisting State or States negotiate the

terms of the mission.

February 2012 Student Manual 1.1-88
Introduction to ESF #4

The Assisting State or States then deploy resources to perform the mission. When the 

mission is completed, the resources are demobilized and sent back to the Assisting State. 

To be reimbursed for expertise, services, or equipment, the Assisting State submits paperwork 

to the Requesting State The two States then negotiate the reimbursement package and to the Requesting State. The two States then negotiate the reimbursement package and

reimbursement is sent to the Assisting State. 

February 2012 Student Manual 1.1-89
Introduction to ESF #4

Resources needed for an incident may be obtained via:

• The local EOC and local mutual aid agreements.

• The State EOC and State mutual aid agreements, such as EMAC.

• The JFO and mission assignments The JFO and mission assignments.

February 2012 Student Manual 1.1-90
Introduction to ESF #4

Unit 5 – Resource Management

Lesson 5.2: Mission Assignments

Lesson Terminal Objective: At the completion of this lesson, you will be able to describe the 

mission assignment process mission assignment process. 

Lesson Enabling Objectives:

• Define a mission assignment.

• Describe Action Request Form (ARF) preparation.

• Identify considerations when developing a Statement of Work.

• Identify the steps of a mission assignment: Identify the steps of a mission assignment:

• Issuance

• Execution

• Billing and Closeout

• Describe the advantages of pre-scripted mission assignments.

February 2012 Student Manual 1.1-91
Introduction to ESF #4

The Robert T. Stafford Act provides FEMA the delegated authority to direct other Federal 

departments and agencies to provide disaster assistance to State and local jurisdictions 

impacted by disasters or other emergencies. 

A mission assignment (MA) is: A mission assignment (MA) is:

• A work order issued by FEMA to another Federal agency directing the completion of a 

specific task, and citing funding, other managerial controls, and guidance. (44 CFR 

206.2(18)) 

• Given in anticipation of, or response to, a Presidential declaration of an emergency or 

major disaster major disaster.

An MA is not a grant, interagency agreement, or contract to a Federal agency, but a 

reimbursable work order that can be performed before and/or after a declaration. 

Under the Stafford Act, resources should not be ordered without a mission assignment.

February 2012 Student Manual 1.1-92
Introduction to ESF #4

The three types of MAs are described below:

• Federal Operations Support (FOS) is requested by the Federal Government to support 

the Federal Government, and consists of any resource provided to FEMA or responding 

Federal agencies when logistical or technical support is needed for their operations Federal agencies when logistical or technical support is needed for their operations.

• Technical Assistance (TA) is expertise provided to State and local jurisdictions when 

they have the resources but lack the knowledge and skills needed to perform the 

required activity. Technical Assistance is not the same as a “technical assistance 

contract” used in the Public Assistance and Mitigation programs. 

• Direct Federal Assistance (DFA) Direct Federal Assistance (DFA) is goods and services provided to the affected State is goods and services provided to the affected State

and local jurisdictions when they lack the resources to provide specific types of disaster 

assistance, either because of the specialized nature of the assistance, or because of 

resource shortfalls. The State has the legal responsibility to provide vital goods and 

services to its citizens, but asks the Federal Government to meet needs until the State 

can do or contract for the work.

February 2012 Student Manual 1.1-93
Introduction to ESF #4

All official requests for Federal assistance should be made to FEMA via the Action Request 

Form (ARF).

All requests are submitted to FEMA’s Operations Section for eligibility and sourcing in 

coordination with Logistics coordination with Logistics.

A request will NOT always result in a mission assignment. Instead, a request may be 

fulfilled by contract, procurement, or other FEMA programs. 

If the request is to be filled through an MA, the information from the ARF is used to create the 

Statement of Work and the MA. A sample ARF is included on the following page. 

Tasks assigned by FEMA and performed under an agency’s authority will not be reimbursed.

February 2012 Student Manual 1.1-94
Introduction to ESF #4

To issue an MA:

• The MA is signed by FEMA and State personnel, including the:

• MA Manager.

• Project Manager Project Manager.

• State Approving Official (SAO), to indicate agreement with the State cost share.

• Federal Approving Official (FAO).

• FEMA’s Comptroller then certifies and obligates funds.

An example of an MA is shown on the following page. Note that the recommended language 

regarding use of DOI personnel was inadvertently left off of this MA As a result DOI regarding use of DOI personnel was inadvertently left off of this MA. As a result, DOI

personnel would not be able to be used to fill this mission unless the MA were amended or a 

subtask to DOI was written. 

February 2012 Student Manual 1.1-95
Introduction to ESF #4

MA Task Orders: 

• Are used when the request falls within the Statement of Work of an existing MA.

• Prevent the issuance of multiple MAs for the same SOW. 

• Should be processed at the RRCC or the JFO Should be processed at the RRCC or the JFO. 

A Task Order is shown on the following page. 

February 2012 Student Manual 1.1-96
Introduction to ESF #4

Note that the assigned agency should only perform activities that are clearly within the SOW. 

There are circumstances when the assigned agency may need technical expertise or other 

support to accomplish the mission. In these instances, the primary agency may subtask 

specific work to a support agency using the MA Subtasking Request Form specific work to a support agency using the MA Subtasking Request Form.

Note that all MAs need a Department of the Interior subtask, handled whenever the MA is 

issued.

U.S. Fire Administration activations need a USFA subtask, handled by the USFS Washington 

Office.

Sample Subtasking Request Forms are shown on the following pages. 

February 2012 Student Manual 1.1-97
Introduction to ESF #4

Personnel costs that are eligible for reimbursement include:

• Overtime, travel, and per diem of permanent Federal agency personnel.

• Wages, travel and per diem of temporary Federal agency personnel who are assigned 

solely to provide disaster services solely to provide disaster services.

• Travel and per diem of Federal military personnel.

Eligible costs for reimbursement also include:

• Cost of contracts to provide work, services, and materials procured under contract for the 

purpose of providing assistance. The contractor’s name, cost, period of performance, 

and purpose must be provided and purpose must be provided.

• Cost of materials, equipment, and supplies (including transportation, repair, and 

maintenance) used in providing disaster assistance.

February 2012 Student Manual 1.1-98
Introduction to ESF #4

Pre-scripted mission assignments (PSMAs) are developed by ESFs to:

• Facilitate rapid response.

• Standardize commonly used mission assignments.

FEMA and some Federal agencies have mutually agreed to Statements of Work, 

projected cost estimates, and timelines to be used as a general guideline or template that may 

be used in an actual event. Any PSMA can be revised to fit the specific requirements of an 

incident. 

PSMAs are not mandatory or automatic. The Federal Approving Official decides whether to 

use a PSMA in each instance use a PSMA in each instance. 

Examples of activation and staffing PSMAs can be found at the end of this lesson. More 

examples of PSMAs can be found on the Homeland Security Information Network (HSIN) 

portal. 

The Incident Business Center has an updated list of cost estimates: 

www.fs.fed.us/fire/ibp/cost accounting.html www.fs.fed.us/fire/ibp/cost_accounting.html

February 2012 Student Manual 1.1-99
Introduction to ESF #4

ESF #4 coordinates several pre-scripted mission assignments. In keeping with the priorities 

for accepting missions, the PSMAs are separated into those related to the ESF #4 Mission, 

and those that are support missions to other ESFs or FEMA.

Remember that Mission Assignments whether pre Remember that Mission Assignments, whether pre-scripted or ad hoc are given to individual scripted or ad hoc, are given to individual

departments or agencies, not to ESFs. The ESFs are simply the coordinating mechanism to 

provide functional resources. 

Review the types of PSMAs that are coordinated through ESF #4, listed on the visual.

February 2012 Student Manual 1.1-100
Introduction to ESF #4

Unit 7 – ESF #4 Business Management Practices

Lesson 7.1: Financial and Administrative Functions

Lesson Terminal Objective: At the completion of this lesson, participants will be able to 

describe financial and administrative functions in support of ESF #4 team members describe financial and administrative functions in support of ESF #4 team members. 

Lesson Enabling Objectives:

• Describe the roles of the Albuquerque Service Center (ASC).

• Identify procedures and recordkeeping requirements for:

• Property and Procurement

• Payments

• Timekeeping

• Travel 

• Describe methods for tracking resources and costs.

February 2012 Student Manual 1.1-101
Introduction to ESF #4

Following adopted incident business management guidelines allows for:

• More accurate data. 

• Increased interagency collaboration.

• Increased accountability Increased accountability.

• Improved efficiency. 

Personnel staffing the ESF #4 desk are not expected to be overall technical experts, but they 

should be knowledgeable about the Interagency Incident Business Management Handbook 

(IIBMH) and the policies that apply to the ESF #4. 

The IIBMH chapter 90 of which addresses business management practices pertaining to ESF The IIBMH, chapter 90 of which addresses business management practices pertaining to ESF

#4, can be found online at: http://www.nwcg.gov/pms/pubs/large.html#IIBMH. 

The IIBMH details national incident business management guidelines. For an example of 

regional/area guidelines, refer to the administrative area at the Southern Area Coordination 

Center (SACC) Web site, available at: http://gacc.nifc.gov/sacc.

February 2012 Student Manual 1.1-102
Introduction to ESF #4

The Regional Incident Business (IB) Coordinator is responsible for:

• Assisting ESF #4 with the resolution of business-related issues.

• Assisting ESF #4, if needed, with cost estimates and/or MA language on business items 

such as Buying Teams such as Buying Teams.

• Coordinating with the Albuquerque Service Center – Incident Finance (ASC-IF), if 

necessary to resolve job code, accrual or payment issues.

• Work with Incident Management Teams (IMTs) regarding business issues and providing 

IMTs with Regional Incident Business Standard Operating Procedures (SOPs).

The role of the ESF #4 Primary Leader, or a designee, is to:

• Contact the Regional IB Coordinator to introduce him or herself.

• Utilize the expertise of Regional IB Coordinators . The ESF #4 Leader should not try to 

answer questions or establish business policy without their input.

• Become familiar with Regional policy regarding roles and responsibilities.

February 2012 Student Manual 1.1-103
Introduction to ESF #4

When a FEMA mission assignment (MA) is accepted, the ESF #4 Coordinator/Primary Leader will 

establish an incident job code (F-code) and immediately notify the Albuquerque Service Center (ASC) 

Incident Finance Branch (ASC-IF). 

The ESF #4 Coordinator/Primary g p () Leader at the Regional Response Coordination Center (RRCC) will 

document the following information:

• The name of the FEMA official requesting the resource.

• The task the resource will be performing.

• Where and to whom the resources are to report.

• How much money is allocated for the task/resource.

The ESF #4 Coordinator/Primary Leader will: The ESF #4 Coordinator/Primary Leader will:

• Ensure that the above information is included on the MA. 

• Provide the above information to ASC Incident Finance, including faxing a copy of the signed MA. 

Note that the ESF #4 Coordinator/Primary Leader will also notify wildland fire support agencies by 

sending a copy of the MA to the National Interagency Coordination Center (NICC) at the National 

Interagency Fire Center (NIFC). 

ASC Incident Finance: ASC Incident Finance:

• Enters the F-code in the Federal Financial Information System (FFIS). 

• Monitors threshold of MA and tracks costs.

• Submits bills to FEMA. 

• Collects billed and unbilled cost data from DOI bureaus in order to monitor when the MA can be 

closed. 

Department of the Interior (DOI) wildland fire support agencies will issue their own financial code for

February 2012 Student Manual 1.1-104

Department of the Interior (DOI) wildland fire support agencies will issue their own financial code for

each mission assignment, enter it into their financial system, and provide it to dispatch (typically the 

NICC). DOI wildland fire agencies will submit their bills to ASC-IF.
Introduction to ESF #4

Sources available to ESF #4 for procurement of goods and services include:

• National Cache System. Common and special purpose incident items are stocked as part of the 

National Cache System. Caches may be national, regional, or local, and any of these levels could 

service an incident. Orders for items needed for the incident and for immediate stock 

replenishment should be directed to the appropriate cache using the dispatch coordination system.

• Contracts. Contracts are established at the national and regional/geographic area levels to 

provide aircraft, equipment, and services that are available for use by State and Federal wildland 

agencies. Aircraft, equipment, and services available through contracts include: 

• Airtanker services.

• Type 1 and Type 2 helicopter services. 

• Aircraft services for transport and smokejumper transport Aircraft services for transport and smokejumper transport. 

• Portable retardant base equipment rental. 

• Bulk retardant. 

• Mobile Food and Shower Services. 

• Crews.

These contract sources are mandatory for Federal wildland firefighting agencies. For more details, 

see the National Interagency Mobilization Guide or http://www.fs.fed.us/fire/contracting/

• Buying Teams Buying Teams. Buying teams may be assigned to assist with local purchasing These teams Buying teams may be assigned to assist with local purchasing. These teams

process service and supply orders for items that are not available in the cache or are not typically 

available through dispatch. The National Interagency Buying Team Guide is available online at: 

www.nwcg.gov/pms/pubs/buying_guide.pdf. 

The Water Handling Equipment Guide can be used as a resource to identify available wildland firefighting 

resources that are available for procurement. The primary objective of the Guide is to provide field users in 

wildland firefighting agencies with a basic information document on water handling equipment. This Guide does 

not contain all water handling equipment in use, but does contain equipment components that are: (1)

February 2012 Student Manual 1.1-105

g q p , q p p ()

commercially available or economically reproducible, (2) interagency in scope or application, and (3) currently in 

use. To qualify for being reproducible, there normally has to be the availability of specifications and drawings that 

have been tested.
Introduction to ESF #4

Payments

Prior to implementing any incident payments, including those made by purchase cards or 

convenience checks, coordination with the IMT or Finance Chief is required. The IMT reviews 

payment packages prior to submission to the designated payment office payment packages prior to submission to the designated payment office.

Timekeeping

After the first day on an incident, individuals are spot changed to a first 8-, 9-, or 10-hour daily 

tour of duty depending upon their weekly tour of duty.

Every day is considered a workday during an incident assignment until the assignment is over Every day is considered a workday during an incident assignment until the assignment is over

or the individual is officially released from the incident. All individuals are ensured pay for 

base hours of work, travel, or standby at the appropriate rate of pay for each workday. This is 

true for part-time and intermittent individuals as well. When personnel are required to take a 

mandatory day off that falls on their normal day off, there will be no pay compensation.

For additional information on timekeeping, refer to Chapter 10 of the Interagency Incident 

Business Management Handbook (IIBMH), available online at: Business Management Handbook (IIBMH), available online at:

http://www.nwcg.gov/pms/pubs/large.html#IIBMH.

Travel

Travel is compensable under a declared emergency because it results from an event that 

could not be scheduled or controlled administratively by agency management. 

February 2012 Student Manual 1.1-106
Introduction to ESF #4

Spreadsheets may be used to track costs within a mission assignment. Cost-monitoring must 

be done to ensure that the dollar amount on the MA is not exceeded.

If there is an IMT, the Finance/Administration Section will use the cost module in I-Suite to 

determine cost estimates The Planning Section reports the incident status including the cost determine cost estimates. The Planning Section reports the incident status, including the cost

estimate, per operational period using the Incident Status Summary, ICS Form 209. IMTs are 

expected to submit accruals to ASC daily.

If there is no IMT, costs must still be tracked by ESF #4 in a clear, concise format, including: 

• Summary sheets that list daily costs.

• Detail sheets showing the individual resource costs Detail sheets showing the individual resource costs. 

The Forest Service's Incident Business Practices Web site provides information pertaining to 

interagency coordination of business practices for wildfire, nonfire, and FEMA emergency 

responses at: http://www.fs.fed.us/fire/ibp/. This Web site is referenced by all wildland fire 

agencies.

February 2012 Student Manual 1.1-107
Introduction to ESF #4

It is mandatory that IMTs use the I-Suite application.

The I-Suite application consists of a Resource, Cost, Time, Incident Action Plan, and Supply 

Units. 

These units are integrated, which means they have a similar user interface, and share a 

common database. Data only need to be entered once to be available to all of the different 

areas. 

For additional information, see the I-Suite Web site at: http://isuite.nwcg.gov.

February 2012 Student Manual 1.1-108
Introduction to ESF #4

Depending on the size and complexity of an incident, the ESF #4 Coordinator may need an 

organized method to track mission assignments (MAs). An example of a tracking spreadsheet 

is shown on the visual. 

Each MA has a unique number and should have a unique F Each MA has a unique number and should have a unique F-code. 

Note that the MA number reflects the account used, the affected State, and the assigned 

agency:

• 7220SU is used for all pre-declaration MAs, with SU noting the surge account. 

• 3XXXEM is used for emergency declaration MAs, with EM noting emergency declaration.

• 1XXXDR is used for major disaster declaration MAs with DR noting a major disaster 1XXXDR is used for major disaster declaration MAs, with DR noting a major disaster

declaration.

February 2012 Student Manual 1.1-109
Introduction to ESF #4

Unit 7 – ESF #4 Business Management Practices

Lesson 7.2: Mission Assignment Reimbursement

Lesson Terminal Objective: At the completion of this lesson, participants will be able to 

identify steps in the reimbursement process under a mission assignment (MA) identify steps in the reimbursement process under a mission assignment (MA). 

Lesson Enabling Objectives:

• Identify steps in the billing, reimbursement, and closeout process under a mission 

assignment. 

• Identify the importance of mission assignment documentation.

February 2012 Student Manual 1.1-110
Introduction to ESF #4

Federal agencies may be reimbursed for expenditures under the Stafford Act from funds 

appropriated for the purposes of this Act. Funds expended by the Forest Service or the 

Department of the Interior (DOI) will be reimbursed according to the fund code used.

DOI must have a subtask initiated by ESF #4 for each MA in order to establish their financial DOI must have a subtask initiated by ESF #4 for each MA in order to establish their financial

codes and track costs for reimbursement. (See Lesson 5.1 for an example of a DOI 

Subtasking Request.)

FEMA must ensure the proper use of Disaster Relief Funds (DRF). Agencies under the 

Stafford Act must record, report, expend, and liquidate obligations in a timely manner so that 

much-needed DRF can be put back to use expeditiously. 

The Regional/Area Incident Business Coordinator will ensure that Incident Business 

guidelines are provided to Incident Management Teams (IMTs) during their initial briefing.

For an example of regional/area operating guidelines, the USFS Region 8 (Southern Region) 

Incident Business Administration guidelines for hurricane events are available online at: 

www.fs.fed.us/r8/allhazardresponse/section06-business/index.php

February 2012 Student Manual 1.1-111
Introduction to ESF #4

Under MA billing, reimbursement, and closeout:

• Mission-assigned agencies bill FEMA and collect payment.

• The FEMA Finance Center (FFC) conducts a financial review. 

• FEMA conducts the program review Remaining funds are FEMA conducts the program review. Remaining funds are deobligated deobligated and the MA file is and the MA file is

closed. 

FEMA will bill the State for cost share. The Forest Service will reimburse any State resource 

responding under ESF #4. 

DOI bills the Forest Service directly for reimbursement of their costs.

Each bill with supporting documentation is submitted to the FFC by the Forest Service. Billing 

may begin once the agency incurs costs and can provide supporting documentation.

Basic financial management guidance for National Response Framework (NRF)/ESF activities 

is available in the Financial Management Support Annex, online at: www.fema.gov/pdf/nrf/nrfsupport-fin.pdf.

February 2012 Student Manual 1.1-112
Introduction to ESF #4

The Albuquerque Service Center (ASC) coordinates with FEMA through the ESF #4 

Coordinator or Incident Business Coordinator to determine when all expenditures have been 

made and the MA can be closed. The ASC then prepares the bill and submits the billing 

documentation to FEMA. 

The procedures for reimbursement are: 

• The primary agency is tasked by FEMA on a mission assignment. The primary agency 

can then sub-task any needed support agencies to accomplish the mission, e.g., DOI, 

Department of Commerce. 

• Sub-tasked agencies submit documentation of expenses to the primary agency following tasked agencies submit documentation of expenses to the primary agency following

agency policy. The primary agency reviews, approves, and notifies the sub-tasked 

agency to initiate the billing process. The primary agency reimburses the sub-tasked 

agency. 

• The primary agency then submits documentation to FEMA. FEMA pays the primary 

agency upon receipt and examination of eligible, documented costs incurred. 

February 2012 Student Manual 1.1-113
Introduction to ESF #4

FEMA requires supporting documentation be available for the following: 

• Personnel costs, including whether the costs were for regular or overtime pay. 

• Travel per diem and transportation This includes when the travel was conducted and Travel, per diem, and transportation. This includes when the travel was conducted and

how much it cost. 

• Contract services, detailing who was awarded the contract, how much it cost, and the 

period of performance. 

• Purchases, with description, receipts, and appropriate documentation to clarify what was 

purchased. 

• Property or equipment leased, with information on the item, description, amount, and 

period of lease. 

It is important for ESF #4 and IMTs to maintain and archive proper documentation so that it 

can be produced upon request for purposes such as audits or supporting billing needs.

Large purchases, as appropriate within the MA, should be documented on a task order and 

signed by a FEMA comptroller or other appropriate FEMA official. The official’s name should 

also be printed in case the signature is not legible. 

February 2012 Student Manual 1.1-114
Introduction to ESF #4

In the event FEMA determines a charge is inappropriate, FEMA contacts the ASC. 

Through working with the ESF #4 Coordinator or the Incident Business Coordinator, the 

ASC/DOI then determines whether:

• The charge was not within the scope of the mission assignment. In these instances, the 

ESF #4 Coordinator must then resolve the discrepancy with FEMA. 

• The charge was within the scope of the mission assignment. In these instances, the 

Incident Business Coordinator or the ESF #4 Coordinator, in conjunction with the 

ASC/DOI, explains the item and negotiates with FEMA. 

FEMA will pay for cache items. Accountable/durable property purchased may be reimbursed 

if FEMA approved the purchase and documentation can be furnished that the property was 

transferred to FEMA.

FEMA will consider reimbursement of agency charge card purchases only if the necessary 

supporting documentation is provided. All charges must be supported by an incident order 

and request number (resource order number or S and request number (resource order number or S-number). number).

Agency procedures for establishing reimbursable charge codes should be followed.

For a complete list of items eligible for reimbursement, see chapter 90 of the IIBMH, available 

online at: www.nwcg.gov/pms/pubs/large.html#IIBMH

February 2012 Student Manual 1.1-115
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Intentionally Left Blank

February 2012 Student Manual 1.1-116
Introduction to ESF #4

Unit 9 – Information Management & Reporting

Lesson Terminal Objective: At the completion of this lesson, participants will be able to 

describe the information management and reporting methods and processes used to support 

ESF #4.

Lesson Enabling Objectives:

• Define the common operating picture.

• Identify the elements of situation awareness.

• Describe common pitfalls in analyzing information.

• List methods for validating information List methods for validating information.

• Identify typical information needs and sources.

• Describe the importance of responding to regional and national information requests.

• Identify the typical types of data reported at the National Response Coordination Center 

(NRCC).

• Distinguish between effective and ineffective briefing papers.

February 2012 Student Manual 1.1-117
Introduction to ESF #4

The example on the visual illustrates the difficulty in trying to maintain a common operating 

picture.

Hurricane Katrina Example: On the day of landfall, authoritative reporting from the field was 

extremely difficult to obtain because of the widespread destruction of communications extremely difficult to obtain because of the widespread destruction of communications

infrastructure, the incapacitation of many State and local responders, and the lack of Federal 

representatives in the city. As a result, local, State, and Federal officials were forced to 

depend on a variety of conflicting reports from a combination of media, government, and 

private sources, many of which continued to provide inaccurate or incomplete information 

throughout the day, further clouding the understanding of what was occurring in New Orleans. 

In particular information about the status of the levees was highly unreliable There was In particular, information about the status of the levees was highly unreliable. There was

widespread confusion and misuse of the terms “breach” and “overtopping” by observers and 

reporters who did not fully understand the distinction between the two terms, or whose 

observations were not sufficient to enable differentiation of one from the other. 

As early as 9:12 AM EDT on August 29, the National Weather Service received a report of a 

levee breach and shortly thereafter issued a flash flood warning, stating, “A levee breach 

occurred along the Industrial Canal at Tennessee Street. Three to eight feet of water is occurred along the Industrial Canal at Tennessee Street. Three to eight feet of water is

expected due to the breach.” However, as late as 6:00 PM EDT that same 

day, the DHS National Operations Center reported to senior DHS and White House officials 

that, “Preliminary reports indicate the levees in New Orleans have not been breached; 

however, an assessment is still pending.”

What are the consequences of failing to maintain a common operating picture?

February 2012 Student Manual 1.1-118
Introduction to ESF #4

Situation awareness builds on the facts gathered within the common operating picture to 

predict what might happen next. Situation awareness is essential for effective incident 

management and planning.

Situation awareness Situation awareness . . .

• Has two components:

• First, the incident managers must have a clear picture of the situation and common 

understanding of what it means (common operating picture).

• Next, based on this knowledge, incident managers must be able to predict how the 

situation will unfold in the near future. This is accomplished by monitoring events 

regularly. 

• Answers the questions:

• What is happening?

• Why is it happening?

• What does it mean?

• What will happen next?

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Review each of the common information problems. List the strategies you can take to avoid 

encountering these types of problems.

Type of Problem Type of Problem Strategies for Avoiding Strategies for Avoiding

Different Snapshots

Diff t eren M i ean ng –

Who’s On First?

Speaking Without

Thinking

Painting With Too

Broad a Brush

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Review the question on the visuals. 

Are there additional questions you would ask for . . .

• Assessing the information source? Assessing the information source?

• Corroborating critical information? Corroborating critical information?

• Judging the plausibility of the information? Judging the plausibility of the information?

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Our work is information, and not all of it is classified. What we don't always realize is how 

much we are giving away by our predictable behavior, casual conversations, routine 

acquisitions, and other Internet information. 

We must be careful of what we are revealing We must be careful of what we are revealing—failure to do so could provide our failure to do so could provide our

adversaries with the information they need to execute additional terrorist acts. 

In addition to the OPSEC steps listed on the visuals, ask yourself, "What could an adversary 

glean from the knowledge of my response activities? Are my activities revealing information 

about what we do and how we do it?" 

What are some common examples of actions that people take at a Joint Field Office What are some common examples of actions that people take at a Joint Field Office

(JFO), a Regional Response Coordination Center (RRCC), or the NRCC that could 

compromise OPSEC?

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Early in an incident, reliable information may only be available through organizations such as 

the NRCC, RRCC, GACC, and EMAC. 

What limitations are there on the information available at the onset of an incident?

As soon as the standardized reporting protocols and systems are in place, it is important to 

use those sources. When you receive information requests that cannot be answered through 

standardized reports, you need to think out of the box to find reliable sources.

What are some examples of reliable information sources other than standardized 

reports that can be used by ESF #4 personnel?

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Depending on your location, you may have access to online support tools such as HSIN and 

State information portals. 

As noted in Unit 1, the ESF #4 portal on HSIN contains reference materials, SOPs, and Task 

Books.

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Review the types of information products developed by the National Response Coordination 

Center (NRCC). Note that SITREPs and SPOTREPs are also developed at the field levels.

Developing these products requires that large amounts of information must be analyzed so 

that concise reports of essential/critical information can be produced that concise reports of essential/critical information can be produced.

What skills are required in order to develop concise reports?

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Review the sample NRCC Situation Briefing (also called the snapshot). This briefing 

demonstrates how critical information is presented in a concise manner.

This page includes the following major categories of information:

• Fatalities/injuries

• Property damaged/destroyed

• Property threatened

• Search and rescue status

• Food a d ate equ e e ts and water requirements

• Displaced persons and shelter requirements

• Critical infrastructure status

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Continue reviewing the sample NRCC Situation Briefing. 

This page includes the following major categories of information:

• Incident status

• Commodities/supplies requested

• Commodities/supplies en route

• Commodities/supplies shipped

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Continue reviewing the sample NRCC Situation Briefing. 

This page includes the following major categories of information:

• National response

• Federal teams requested

• Federal teams deployed

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ESF #4 it ti t d t ESF #4 situation reports are used to:

• Present concise information about the incident status to ESF #4 primary and support 

agencies.

• Identify critical topics or issues.

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Review the sample input form on the visual. Although not all JFOs use this exact input form, 

you will be asked to provide information to the Planning Section for the JFO SITREP. These 

elements may include: elements may include:

• ESF #4 staffing levels at the JFO

• Status of mission assignments

• Status of other critical resources and resource needs

• Other major activities being performed, including coordination with other ESFs

• Summary of critical issues

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The Unit Log (ICS 214) can be a useful tool for ESF #4 staff to document activities and to 

communicate key information to the incoming shift. 

What additional uses are there for the Unit Log (ICS 214)? 

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Review the list of items that need to be organized or developed when closing out an incident 

and provided to the ESF #4 Coordinator.

When conducting an after-action review, answer the following questions:

• What did we set out to do?

• What actually happened?

• Why did it happen?

• What are we going to do different next time?

• Are there lessons learned that should be shared? 

• What followup is needed?

Samples of many of the closeout documents can be found on the ESF #4 Resource Center.

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Unit 11 – Course Summary

Lesson Terminal Objective: At the completion of this lesson, you will be able to summarize 

the ESF #4 course lessons learned.

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Are you now able to:

• Identify the scope of ESF #4 and its relationship to other ESFs?

• Identify the roles and responsibilities of ESF #4 positions?

• Identify the mandates that govern ESF #4? Identify the mandates that govern ESF #4?

• Describe the mission and concept of operations for ESF #4?

• List the responsibilities of the ESF #4 positions?

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Are you now able to:

• Define the types of mutual aid and assistance?

• Describe the resource management process for Federal assets?

• Describe financial and business management guidelines for ESF #4? Describe financial and business management guidelines for ESF #4?

• Define the information management and reporting methods and processes used to 

support ESF #4?

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How well did this course meet your expectations?

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Complete the course evaluation form. Your comments will help improve future course 

offerings.

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Intentionally Left Blank

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