Interagency Tactical Response Model: Integrating Fire and EMS with Law Enforcement to Mitigate Mumbai-Style Terrorist Attacks June 29, 2012 Version 1.0 FDNY Center for Terrorism and Disaster Preparedness with International Partners Limited Distribution For Official Use Only (FOUO)
Acknowledgments The Fire Department of the City of New York s (FDNY) Center for Terrorism and Disaster Preparedness (CTDP) would like to thank its international partners in the creation of this document, meant to be the starting point of more detailed interagency, as well as interdisciplinary, collaborations in the face of Mumbai-style terrorism. Without our partner s contributions during discussions, conferences and exercises, this paper could not have been possible. The FDNY would like to give special recognition to the following agencies: Federal Bureau of Investigation (U.S.A.) London Fire Brigade (United Kingdom) Arlington Fire Department (Virginia, U.S.A.) Members of the U.S. military The FDNY looks forward to advancing this important endeavor; stay safe. Limited Distribution For Official Use Only (FOUO) 3
Table of Contents Introduction 1 A. Background.1 B. Purpose 1 C. Mumbai Attack Defined 1 Overview of Interagency Operations...1 A. Scope 1 B. Threat Designation Areas (Hot, Warm, Cold) 2 Command...2 A. Various Posts..2 B. Command Designations 3 C. Incident Designations and Use of Plain Speak 3 D. Coordination..4 Law Enforcement Operations...5 A. General Challenges and Considerations for LE..5 B. SWAT Escort Duties.5 C. Tactical Support Element (TSE) 5 Other Interagency Issues...6 A. Tactical Combat Casualty Care (TCCC)...6 B. Designations and Posts at Operations Level 6 C. Select Equipment (SCBA, PASS, and Thermal Cameras)..6 Fire Suppression and Restoration of Fire Protection Systems...7 Communications.7 Ongoing Discussion Points.8 Conclusion..8 Limited Distribution For Official Use Only (FOUO) 4
INTRODUCTION A. BACKGROUND - With a shift in terrorist tactics to swarm-like attacks using firearms, explosives and other weapons, including intentionally-set fires, emergency responders must now consider how they will mitigate multiple simultaneous attacks by a number of active-shooters involving possible explosive devices, mass casualties and fire suppression (mechanical, manual, etc.). Integrated Tactical Response Teams (ITRTs) that combine the expertise of law enforcement, firefighters, EMS personnel, may effectively enhance capability, capacity and delivery of first responder resources. In an attempt assist emergency response decision-makers, this White Paper will present likely command and operational issues (tactics, communications, gear, etc.) that interagency tactical teams would encounter at Mumbai-style terrorist attacks. B. PURPOSE - Development of interagency/interdisciplinary (Law Enforcement, Fire, EMS) Standard Operating Procedures (SOPs) for responses to complex Active-Shooter/Mumbai-Style Attacks, providing strategic and tactical practices for support of primarily law enforcement operations. More specifically, the fire service can deliver subject matter expertise on building systems, floor plans, elevators, etc., as well as enhanced response capability, such as fire suppression and patient care, as they assist law enforcement at these complex events, which may involve areas of operation that include fire, intense smoke and low to zero visibility, as well the threat of firearms and explosives. C. MUMBAI ATTACK DEFINED - According to a FDNY informational PowerPoint presentation released in April 2011 through its Fireguard series, titled Defining Mumbai-style Terror Attacks, this emerging attack method has the following characteristics: Multiple attackers and targets Combined weapons (firearms, explosives, fire) Prolonged operation to maximize media coverage OVERVIEW OF INTERAGENCY OPERATIONS A. Scope In support of law enforcement mitigation actions in a complex active-shooter event, interagency operations are designed to address rescue, search, fire extinguishment, patient care and control of building systems. Interagency support for law-enforcement operations including, by not limited to, delivery of building information, as well guidance on building systems, HVAC, standpipes/sprinklers, and fire-service function of elevators. Fire/EMS units to operate, under law enforcement escort, for patient triage, removal and treatment. Fire department units to operate, under law enforcement escort, to restore damaged or disabled fire protection systems or to create a water supply to bypass a damaged system. Fire department units to operate, under law enforcement escort, for search, evacuation, and fire control to achieve rescue operations. Use of positive ventilation/hvac systems to give law enforcement a tactical advantage. Limited Distribution For Official Use Only (FOUO) 1
B. Threat Designation Areas at these complex attacks are based on the hazardous materials concept of Hot, Warm and Cold zones. HOT: An area where terrorists, or other actors, are present, either roaming free or engaged by law enforcement. IEDs may be present. No Fire Suppression or Emergency Medical Service personnel are to operate is designated Hot Zones. WARM: Determined by Law Enforcement that area has been cleared and that there are no identifiable suspects or IED threats. The exhaustive process of declaring an area Cold would be prohibitive as these exigencies, so firefighters and EMS personnel will be expeditiously placed for life safety operations, under close Law Enforcement escort, facilitating rescue initiatives and treatment of the injured in established Warm Zones. Fire Suppression and Emergency Medical personnel may wear ballistic protection in Warm Zones. Possible operations may include repair of damaged or disabled standpipes/sprinkler pipes, routing of bypass systems to provide additional water supply, or triage, treat and transport of victims out of warm zones. Warm zone may be declared in a smoke-filled environment, and may be designated on various floors below a Hot Zone, which may extend to the exterior of the building for a certain distance (Warm Zones may exist as pockets inside Hot Zones). COLD: Law Enforcement has judged that no suspects or IEDs are present. Ballistic protective gear is not required for Fire Suppression or Emergency Medical Personnel. Cold Zones may serve as patient transfer and transportation points, casualty collection points, location of Command Post (CP), Staging Areas, and Tactical Operations Center (TOC), a de facto Operations Post for Law Enforcement. For clarity and understanding, during operations, these zones will be designated as CODE HOT; CODE WARM; AND CODE COLD. COMMAND This Tactical Plan is based on special city- or regional-wide training for EMS/Fire Units, consistent with the National Incident Management System (NIMS) that can rapidly muster and then form Inter-Agency Tactical Teams with Law Enforcement Units. A. Various Posts 1. Command Post 2. Tactical Operations Center (TOC) 3. Forward Staging (Blending of LE, Fire and EMS Assets) 4. Rear Staging for LE, Fire and EMS Assets Limited Distribution For Official Use Only (FOUO) 2
A designated TOC Fire Chief, as well as a TOC Medical Branch Officer, will respond to the Law Enforcement Tactical Operations Center to establish a unified operations post and coordinate with Law Enforcement. In addition, a Fire Chief trained in Interagency Response Operations will be dispatched to the forward staging area. B. Command Designations The TOC directs all Special Weapons and Tactics (SWAT) operations and supports/coordinates with Unified Command on ITRT Operations. The TOC can provide a fusion point for inter-agency communications and will be staffed with three additional law enforcement officers that include an On-scene Commander (OSC- LE), Battle Captain and an Executive Officer with the following defined roles: 1. On-Scene Commander (OSC-LE): the overall crisis site Law Enforcement Commander responsible for SWAT, TOC, Crisis Negotiations, and Operational Medical assets. The OSC is normally located in the TOC and is the approving authority for all assault plans and negotiation strategies. Collaborates with the TOC Fire Chief. 2. Battle Captain (LE): Former SWAT Operator with extensive SWAT experience and knowledge, who provides tactical recommendations to the On-Scene Commander, while assisting TOC personnel with tactical deployment. 3. Executive Officer (LE): An active, senior SWAT Operator located with deployed tactical elements within the crisis site. Acts as the Second-in-Charge (2IC), and primarily monitors the Logistics Net, which is a SWAT tactical communications radio frequency. 2IC coordinates with the Forward Logistics Officer for resupply, casualty evacuation from WARM Zone Casualty Collection Points (CCP), as well as relief or reinforcement of personnel. 4. TOC Fire Chief: Coordinates Fire Operations, and assumes role of Fire Service Subject Matter Expert (SME), for coordination with and support of Law Enforcement counterparts in Tactical Operations Center (TOC). 5. Medical Branch Officer: Coordinates EMS operations, and assumes role of Emergency Medical SME, for coordination with and support of Law Enforcement counterparts in Tactical Operations Center (TOC). C. Incident Designation and Use of Plain Speak Upon determination of a complex active-shooter/mumbai-type incident, initial responders will transmit conditions found on arrival, protective measures being implemented and additional resources needed at the scene. This information should be communicated via plain speak to ensure clarity and brevity, followed either by a pre-determined radio code that clearly delineates a Mumbai-style attack response, triggering a response package of Fire Suppression, Emergency Medical Units that will be deployed to a rear staging area. Limited Distribution For Official Use Only (FOUO) 3
D. Coordination Establishment of these inter-agency positions allow for the seamless coordination of Fire and EMS assets with SWAT Operators. The close command structure allows for expedited recommendations on fire suppression tactics, acquisition and interpretation of building floor plans, expertise in the use of the fire command station, and assistance in the use of the elevator systems. In addition, it provides a coordinated structure to support initial, as well as ongoing, interagency risk assessments, including threats associated with the Warm Zone. As a component of the risk assessment, pre-planned unit evacuations out of Warm Zone should be decided before deployment. The Joint Operations Centers should be updated on evacuation parameters so that any additional information received can be assessed and communicated to onscene commanders. In order to support these interagency collaborative efforts, a list of respective terms from LE, Fire and EMS should be posted in the TOC and CP, as well as any remotely established Joint/Emergency Operations Center or facility. For example, LE and Fire may be use different systems to describe building levels (decks versus floors) or sides (colors versus numbers or letters, etc.) or similar phrasing may be used to describe different things: hot doors, pushing up, or clear. Intra-agency units shall use their agency s established terms for tactical operations per respective communication SOPs and guidelines, though personnel should become familiar with associated terms used by partner agencies, and plain speak should be used whenever possible. Upon consultation between the Fire, EMS and Law Enforcement Operations Post Commanders/Fire Chiefs in the Tactical Operations Center (TOC) and Unified Command, fire suppression and emergency medical personnel will be dispatched from designated staging areas and blended with SWAT personnel at a joint staging area. At this Joint Staging Area, personnel should be briefed on potential or known hazards, based on current information, intelligence or assessments, with input from the Fire Service, EMS and Law Enforcement. Law Enforcement will fill a position known as the Staging Area Manager, who will oversee deployment of interagency entry teams and coordinate movement from the Cold Zone to the breach point (point of entry) via a protected route, using shielding from structures, tunnels or armored vehicles. This unified deployment of resources from Fire, EMS and Law Enforcement will expeditiously and effectively maximize operational effectiveness in the Warm Zone. Law Enforcement Team Leaders will coordinate communications and manage resources needed in the incident Warm Zone. For instance, the Staging Area Manager would supervise the loading of team members and equipment into the armored vehicle and, then, dispatching the vehicle to the breach point. Likewise, upon the team s return to staging, the Staging Area Manager supervises the off-loading of personnel and victims. The Staging Area Manager will work in conjunction with the EMS and Law Enforcement Cold Zone Triage Managers for tracking of casualties and prioritizing patients for transport to hospital. At Staging, secondary assessments of victims will be made as advanced care by paramedics is implemented. Limited Distribution For Official Use Only (FOUO) 4
LAW ENFORCEMENT OPERATIONS In addition to well-established active-shooter protocols and procedures, SWAT personnel should consider issues unique to these dynamic attacks, as discussed below: A. General Challenges and Considerations for LE B. SWAT Escort Duties Adjust tactics to fire as an offensive tool by hostile operatives Operating in a notional fire environment (low visibility, acrid smoke, carbon monoxide) Smoke will make it more difficult to identify and count hostiles and civilian casualties. Integrate Fire/EMS resources early in the incident (command, units, etc.) Acquire building plans and consult with Fire SMEs. Ensure Fire representative in all echelons of command. Even a single Mumbai-style attack in one location would require a tremendous number of SWAT and LE personnel (multiple entry teams to each floor, escort duties, relief during extended operations, logistical movements, etc.). Multiple incidents would quickly test agencies breaking points. Tracking and accountability of interagency personnel, equipment, victims and perpetrators will require detail-oriented rear and forward staging managers. Fire and/or Emergency Medical Personnel are integrated into the SWAT personnel protective cover configuration ( the stack ). ITRTs may be inserted via protective armored vehicle or use of adjacent exposure building, and under SWAT sniper protection, when applicable. 1. Escort for Fire Personnel - Fire personnel are escorted to their respective points of operation to accomplish any of the following evolutions: Ventilation (possible use of positive pressure fans or building systems) Water supply pipe repair to support extinguishment and life saving operations Use of High-rise Nozzle to affect exterior attack on upper floors Fire knock down or extinguishment to facilitate SWAT operations Evacuation or search of victims from smoke environment NOTE: Re-establishment of water supply may include methods to physically repair a compromised sprinkler/standpipe system or by routing a separate water supply via hoseline evolutions (See Addendum 2, 3 and 4 for repair procedures and water supply evolutions). 2. Escort for EMS/Fire Personnel - Fire and/or EMS personnel are escorted to their respective points of operation to accomplish the following patient care procedures: Establish central and secondary CCP Perform emergency medical Triage, Treatment and Removal C. Tactical Support Element (TSE) Operations will require additional law enforcement personnel to augment SWAT operators. TSE consists of tactically-trained, non-swat personnel. After SWAT operators clear a crisis area, TSE officers will back-fill, holding and securing intersections, stairwells and elevator Limited Distribution For Official Use Only (FOUO) 5
banks. Also, TSE can provide escort of Firefighters and EMS personnel in the WARM Zone and provide security of injured and uninjured persons to the Cold Zone. It is anticipated that numerous civilians, both injured and uninjured, will be encountered within the crisis site during SWAT clearing operations. It will be necessary for both SWAT Operators and TSE personnel to collect, control, and search all civilians encountered and maintain positive control of them until identified, interviewed and cleared for release. OTHER INTERAGENCY ISSUES A. Tactical Combat Casualty Care (TCCC): Based on the military concept of addressing the most common and life threatening type of wound (extremity bleeding and airway obstruction), EMS Paramedics and Emergency Medical Technicians will address life threatening injuries to stabilize and ready patient for transport. This may involve new technologies, including hemorrhage care, use of tourniquets, quick clot, airway reestablishment, and tactical intubation kits using disposable blades (See JEMS Article Appendix 1). Within the Warm Zone perimeter, Medics or EMTs trained in the use of SCBA can make entry and operate in a smoke-filled environment, or in an area where pepper spray or riot control agents were released. Also, Medics can be used, when appropriate, in the treatment of injured SWAT Operators, ensuring stabilization and treatment. B. Designations and Posts at Operations Level (as per NIMS) 1. Law Enforcement Forward Logistics Officer (FLO) establishes a Forward Logistic Point (FLP) in the Warm Zone in the vicinity of the breach point, large enough to support operations and the influx of personnel and equipment. The FLO interfaces with the Law Enforcement Battle Captain at the TOC. FLO duties include: Receive and assign TSE personnel to support operations Receive and deploy supplies and equipment Coordinates movement of casualties from Warm Zone CCP s through Central CCP to Cold Zone Triage/Treatment Area. 2. Central Casualty Collection Point (CCP) in FLP an area identified by Law Enforcement FLO and staffed by an EMS Officer, tasked as the Triage Unit Leader or Treatment Unit Leader, who will work in conjunction with the FLO to coordinate patient movement. Removal of patients from the Central CCP will be via a protective evacuation corridor or armored vehicle. Security of these areas will be maintained by the TSE personnel. 3. Cold Zone Triage/Treatment Area Staffed by medical personnel (Fire and EMS) to maintain continuity of care and assist in the loading of the injured onto ambulances for transport to hospital. An EMS Cold Zone Triage Officer will coordinate with TSE to perform sorting of victims according to triage status, and security concerns prior to further treatment and transport. Patient transport will be coordinated through Cold Zone Triage Manager, tracked by the Staging Area Manager. C. Select Equipment (SCBA, PASS, and Thermal Cameras) When necessary, caches will be placed that include Self-Contained Breathing Apparatus (SCBA), and other equipment and gear, for Law Enforcement, Fire and EMS trained personnel operating in Immediately Dangerous to Life and Health (IDLH) atmospheres that are contaminated by smoke, carbon monoxide or other toxic substances (tear gas, etc.). Limited Distribution For Official Use Only (FOUO) 6
For tactical reasons, it must be understood that if activated, the audible Personal Alert Safety System (PASS) alarm may compromise the position of law enforcement operators and fire personnel. Alternative technologies or systems may provide other means to locate injured, missing or trapped operators/firefighters/medical personnel. Provisions should be made to deliver firefighting Thermal Imaging Cameras to SWAT Operators, providing law enforcement with a tactical advantage in a smoke-obscured environment. FIRE SUPPRESSION AND RESTORATION OF FIRE PROTECTION SYSTEMS Fire Suppression Team will be inserted into Warm Zone as part of SWAT stack to knockdown/extinguish fire, search, ventilate, establish a water supply, set up and use large volume master streams and re-establish fire protective system, if necessary (See Appendix 2-5). Fire Suppression Forces may be divided into assessment and breach control teams to address intentionallydamaged fire protection systems. The Assessment Team will determine the tools and equipment needed, while Breach Control Team will be inserted into next SWAT stack to supply needed equipment and materials to repair breach. Fire Suppression Forces can be inserted to deploy fire control devices such as the High-Rise nozzle, which is a specially-designed water application device that can be used from an area below the fire (See Appendix 5), as well as other extinguishment methods. Fire Suppression Forces and SWAT will partner with building engineers to gain detailed information on sprinkler and standpipe systems, location of control or shutoff valves, sections valves and use of Heating and Ventilation System (HVAC). Fire Commanders can use this knowledge, and in concert with Positive Pressure Ventilation capabilities (to counter terrorist attempts to use smoke as a tactical weapon), work to direct smoke away from victims while assisting rescue and evacuation efforts. Also, through positive pressure applications, smoke may be re-routed as a tactical weapon to contaminate areas where perpetrators are present. Fire Suppression Forces and SWAT will partner with fire safety/emergency evacuation directors to implement strategies for evacuation, sheltering in place, or in-building relocation. This includes to the use of low-, midand high-rise elevator systems. COMMUNICATIONS The communications plan will be based on the following: Law Enforcement (SWAT) Fire Radio Channels Command Observer/Sniper Logistics Command Tactical EMS Building Communication Systems (Warden, Standpipe, etc.) Interoperability (I/O), as needed NOTE: (A) All communications are fused at the TOC. (B) Redundant Communications should be in place, when possible. Limited Distribution For Official Use Only (FOUO) 7
ONGOING DISCUSSION POINTS Ballistic protection for Fire/EMS personnel Fire protection for LE (mobile bunker gear and SCBA) LE use of thermal imaging cameras (effectiveness, limitations, portability, etc.) Armored Tactical Vehicles for team insertions and casualty evacuations Further research on repair of damaged fire suppression systems (methods, equipment) Interagency Training and Familiarity Equipment Caches CONCLUSION The rapid and seamless integration of non-traditional agencies, such as Fire and EMS, as a component of SWAT operations during an evolving active-shooter/mumbai-style terror attack, will require a joint tactical plan and operations to ensure that life safety, fire suppression, incident stabilization and personnel safety objectives are met at these multi-hazard events. This challenge for emergency responders will require an unprecedented level of skill, communications, training and inter-agency coordination. This paper is meant to inform the national emergency response community, and even U.S. military Special Operations Commands, of issues related to this unique terrorist method of attack. Limited Distribution For Official Use Only (FOUO) 8
ADDENDUM 1: GLOSSARY OF ACRONYMS, ABBREVIATIONS AND TERMS BATTLE CAPTAIN - Former SWAT Operator with extensive SWAT experience and knowledge, assigned to the TOC, who anticipates logistical needs and makes tactical recommendations to on-scene commander. CENTRAL CCP (Casualty Collection Point) - an area identified by Law Enforcement FLO, staffed by an EMS Conditions Officer, and tasked as the Triage or Treatment Unit Leader, who will work with FLO to coordinate patient movement from Forward CCP to Central CCP, and then to Cold Zone Triage Area. COLD ZONE - Law Enforcement has judged that no suspects or IEDs are present. COLD ZONE TRIAGE MANAGER Law Enforcement personnel who coordinates, with the EMS Cold Zone Triage Officer, the loading of victims and transport via ambulance to hospital. FLO Forward Logistics Officer FLP Forward Logistics Point HVAC Heating, Vent and Air Conditioning HOT ZONE - An area where terrorists are present, either roaming free or engaged with law enforcement. IEDs may be present. No Fire Suppression or Emergency Medical Service personnel are to operate is designated Hot Zones. ITRT Interagency Tactical Response Teams (Fire, EMS, Law Enforcement) JOC Joint Operations Command KNOCK DOWN visible fire extinguished LE Law Enforcement LOGISTICS NET A SWAT tactical communications frequency MOU Memorandum of Understanding NIMS - National Incident Management System OSC-LE - On-Scene Commander/Law Enforcement PASS Personal Alert Safety System (Firefighter motion detector) 2IC Second in Command SOP Standard Operating Procedures STACK, THE - SWAT personnel protective-cover configuration STAGING AREA MANAGER supervises loading (team members, equipment) and off-loading (members, victims, casualties, and equipment) to and from staging area. When appropriate, the manager will direct the use of armored vehicles to and from breach points. SWAT Special weapons and tactics (Law Enforcement) TCCC Tactical Combat Casualty Care TRIAGE/TREAMENT UNIT LEADER EMS Conditions Officers who coordinates patient movement with TLO. TSE Tactical Support Element (non-swat law enforcement personnel tactically trained to provide Warm Zone security to Fire/EMS personnel, as well as overall scene security and control of evacuees). UC - Unified Command (as per NIMS) WARM ZONE - Determined by Law Enforcement that area has been cleared and that there are no identifiable suspects or IED threats. Limited Distribution For Official Use Only (FOUO) 2
Refererences 1. Journal of Emergency Medical Article, November 30, 2009, Arlington County Va., Task Force Rethinks Active Shooter Incident Response. 2. Fire Suppression Strategies and Tactical at Active Shooter Incidents (FDNY Rescue Co. 1) 3. Broken Riser Repair Procedure (FDNY Rescue Co. 1) 4. High Rise Operations and Water Supply Evolutions (FDNY Bureau of Training and Center for Terrorism and Disaster Preparedness) 5. FDNY High Rise Nozzle 6: FDNY Smoke Control Using Positive Pressure Fans 7. Schematic of Strategic Operations at Interagency Response Incidents Limited Distribution For Official Use Only (FOUO) 3