Scottish Government

3. Scottish emergency management framework

3.1 Emergencies of all kinds involve a large number of agencies that need to co-operate and support each other. Procedures and capabilities need to be integrated for response and recovery work to be effective.

3.2 There is a generic national framework for managing emergency response and recovery that is applicable irrespective of the size, nature or cause of an emergency. It is also sufficiently flexible enough to be adapted to particular circumstances (further details can be found in Preparing Scotland Section 1 - Chapter 4).

3.3 Within the framework, the management of the emergency response and recovery effort is undertaken at one, or more, of three ascending management levels. These are defined by their functions rather than by specific rank, grade or status. "Operational", "Tactical" and "Strategic" are the levels of management used by each of the emergency services and other responders in Scotland. These levels of management are similar to those described as "Bronze", "Silver" and "Gold" in other guidance and documentation about emergency procedures. The role and responsibilities of each level are described below. Responders should be aware that the UK military uses the ascending management levels "Tactical", "Operational" and "Strategic".

3.4 In rapid onset emergencies the emergency management framework is usually constructed from the bottom up and the operational level will be activated first. Escalation of the event (in scale or geographical extent) or better information about the situation may require the implementation of a tactical or strategic level. There may also be situations in which all three levels are activated simultaneously and others when the response may be initiated from the top down by Scottish or UK Governments. Decisions on the activation of these levels should be guided by flexibility, adaptability and functional requirements.

Local management - operational, tactical and strategic (Bronze, Silver and Gold)

Operational level

3.5 The operational level of management reflects the normal day-to-day arrangements for responding to smaller scale emergencies. It is where the "at scene", hands-on work takes place at the site(s) of an emergency.

3.6 First responders will take immediate measures, assess and communicate the extent of an emergency. Incident officers will concentrate their resources on specific tasks within their areas of responsibility and competence. They will act on delegated authority from their own organisations until other levels of management are established.

3.7 Individual responders will retain full control of the resources they apply to the response. Each responder must ensure effective liaison with others to ensure an efficient and co-ordinated effort.

3.8 In the case of a sudden onset emergency the police will lead in co-ordinating the operational response at the scene. Where there are specific plans in place other responders may take the lead.

3.9 Operational level arrangements will be adequate for the effective co-ordination and resolution of minor emergencies. However, for serious emergencies that require significant resources it may be necessary to implement additional levels of management. A key task for operational managers will be to consider if circumstances warrant a tactical level of management. Whilst, in most cases, this will be a common sense decision, the process leading to it should be embedded in managers' training and is specific to each responder.

Tactical level

3.10 A tactical level of management is introduced to ensure that the actions taken at the operational level are supported and co-ordinated to achieve maximum effectiveness and efficiency. Tactical managers should:

• determine priorities for allocating resources;
• obtain further resources if required;
• plan and co-ordinate tasks to be undertaken;
• assess prevailing risks;
• reduce risks;
• strike a balance between tasks and risks;
• consider the welfare, health and safety of personnel and the public;
• consider the information needs of personnel and the public;
• consider the future needs of the operational response;
• inform and advise strategic managers, if and when this level is activated; and
• implement decisions taken by strategic managers.

3.11 Although the tactical managers will have specific service or agency responsibility, together they must manage the overall multi-agency response and ensure that operational managers have the means, direction and co-ordination required in their work.

3.12 In a rapid onset emergency when there is an identifiable scene and the emergency services are in the lead, tactical managers will usually work from an Emergency Control Centre ( ECC) or Incident Control Post ( ICP) at a place near to the site of an emergency. An alternative location should always be identified as a back-up. Planning must be flexible and take into account that there may be a number of individual scenes and operational areas, or that there may be no actual scene to attend (for example, widespread severe weather disruption, health and overseas emergencies). Whilst ECCs and ICPs are relevant, it should be noted that some SCGs have developed dedicated Tactical Multi Agency Response Rooms.

3.13 The effectiveness of the tactical level rests on a systematic approach to multi-agency co-ordination. The leadership at the tactical level will be determined by the nature of the emergency and the stage of the response. For example, the police may lead in a sudden onset emergency, the health service may lead in a public health emergency and the local authority may lead the longer term recovery. Irrespective of the pressure of operations, the lead officer must create time for regular structured briefings, consultation and tasking meetings with their counterparts and key liaison officers. If no co-ordination centre is established, tactical managers must ensure that they co-ordinate their activity and aim for multi-agency rather than bi-lateral co-ordination. Keeping all agencies informed is important, perhaps through the use of telephone or video conferences.

3.14 Tactical managers must concentrate on overall general management. Whilst they need to be aware of what is happening at operational level, they should recognise that responsibility lies with operational managers and take action to support them.

3.15 When it becomes clear that resources, expertise or co-ordination are required beyond the capacity of tactical managers, or that there is a need for direction by strategic managers, it may be necessary to convene a meeting of the multi-agency Strategic Co-ordinating Group ( SCG).

Strategic level

3.16 Emergencies can place considerable demands on responding organisations requiring the attention of senior managers.

3.17 The requirement for strategic management may be confined to a single agency. However, the scale and nature of an emergency may require a multi-agency response at the strategic level. In such emergencies the SCG established in each police force area should be activated. Should the need for an SCG be unclear, an initial telephone conference between its members may help clarify the situation. Because of its importance, the SCG should only attract the most senior level of representation, those upon whom the ultimate responsibility for meeting their organisation's obligations fall.

3.18 The need for multi-agency strategic management may arise if:

• tactical managers require support;
• significant managerial, social, economic, environmental or political impacts are anticipated;
• an emergency engages a number of responders;
• there is a need to co-ordinate the response to more than one emergency scene or a wide area emergency;
• the communications aspects of an emergency require the attention of strategic managers.

3.19 The role of the multi-agency SCG managers is to:

• establish a policy for the overall co-ordination of the response;
• determine the strategic aim and objectives for response and review them regularly;
• ensure that the aim, objectives and policies are integrated with those of their own organisation;
• ensure long-term resourcing and access to expertise at all levels;
• prioritise the demands of tactical managers;
• allocate resources and expertise to meet tactical requirements;
• liaise with strategic managers in other agencies;
• plan and co-ordinate recovery and a return to a state of normality;
• ensure effective communication with the public;
• ensure effective communication with MPs, MSPs, councillors, Police, Fire and NHS boards;
• provide a focus for communication with other SCGs, Scottish or UK Government; and
• ensure effective media liaison.

3.20 It will normally be a police responsibility to activate and chair meetings of the Strategic Co-ordinating Group ( SCG) in the initial stages of response to an emergency. However, the nature of some emergencies may require other agencies to initiate activation and/or chair the Group. Any Category 1 responder may request a meeting of the SCG. The chair may also change as the initial response turns to restoration and recovery. The nature and scale of the emergency will determine the frequency of meetings of the SCG.

3.21 The SCG will take account of the particular features of an emergency and may assign the control of specific functions to one or more responding agencies acting alone or as part of functional sub-groups.

3.22 A key feature of the SCG's activity is to provide clear information for the public and for the media.

3.23 The SCG should be based at an appropriate pre-planned location, away from the urgent and intensive activity at a scene of an emergency.

3.24 Where the nature of an emergency is such that some degree of central government co-ordination or support becomes necessary, the Scottish Government corporate response arrangements will be activated.