Interagency Tactical Response Model

1. 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)

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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:
 New York Office of the 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.

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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

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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.

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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

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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.

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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.

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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
 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.
B. SWAT Escort Duties
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

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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 – Reference 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.).

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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 Reference 2-5).
Fire Suppression Forces may be divided into assessment and breach control teams to address intentionally-
damaged 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 Reference 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-, mid-
and high-rise elevator systems.
COMMUNICATIONS
The communications plan will be based on the following:
Law Enforcement (SWAT)
 Command
 Observer/Sniper
 Logistics
Fire Radio Channels
 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.

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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.

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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.

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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