Editor’s note: As agencies look ahead to 2026 and prepare for a full calendar of large-scale public events, this article serves as a timely reminder that effective response is rarely improvised. Unified command, coordination and trust are built through planning and collaboration long before the first unit arrives.
By Division Fire Chief Eric Latimer
On November 3, 2020, a call came to 911 reporting that multiple people had been shot at a high school during the lunch hour. Police officers, firefighters and emergency medical services personnel converged quickly. Multiple police officers immediately entered the school. Eighteen firefighters staged nearby while donning ballistic gear, and five ambulances lined the street, ready to receive patients at the established ambulance exchange point. Several command officers from the police department, fire department and EMS agencies were also on scene. Both Level I trauma centers were notified, and a mass casualty incident activation was initiated.
All of this occurred in less than 10 minutes.
The call ultimately proved to be a hoax, part of a series of swatting incidents occurring across the country that day. Even so, the response provides an instructive example of how agencies operate under the assumption that the threat is real until proven otherwise.
Task-related actions — such as establishing a rescue task force, providing force protection and securing the perimeter — were executed quickly and effectively. These functions are routinely trained by fire, police and EMS agencies and are often the primary focus of multi-agency exercises.
Unified command, however, is exercised far less frequently at the leadership level. Training commonly emphasizes task-level execution rather than command-level coordination.
In this case, unified command was effective not because it had been heavily exercised in recent training, but because other forms of collaboration were already in place. Pre-event planning and prior joint work among agency leaders had laid the groundwork before the incident occurred.
The response ultimately reflected the value of all-hazards planning. Responding agencies deployed resources based on pre-event plans and a shared understanding of the Incident Command System. Agency leaders collaborated at the command post and immediately established a unified command structure.
Commanders from each agency already knew one another through special event planning and collaboration in other operational settings. That familiarity supported faster coordination and more confident decision-making under pressure.
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The complexity of multi-agency incidents
Multi-agency incidents can create significant stress and confusion once units arrive on scene. That stress often stems from multiple agencies operating simultaneously, each with its own authority, jurisdiction, resource deployment, vehicle staging requirements and communication methods. Without prior coordination, these differences can slow decision-making and complicate command.
In recent years, first responders have paid increased attention to potential soft-target incidents because they amplify these challenges. Threats and attacks at large public gatherings — including parades, marathons, festivals and concerts — have shown how quickly minimally secured environments can escalate into complex emergency responses.
Many of these events have the potential to become mass casualty incidents. A mass casualty incident is defined as an event that overwhelms available response capabilities, which vary by jurisdiction depending on staffing, resources and infrastructure.
Swarm leadership and unified command
The National Preparedness Leadership Initiative at Harvard University promotes effective leadership during crises through the concept of swarm leadership. The model outlines five key facets that influence how agencies lead through a crisis or conduct special event planning.
- Unity of mission ensures all participants understand the overall mission for the event or crisis. Agencies must align around a shared objective.
- Generosity of action and spirit creates an environment where participants feel safe offering input. Each agency discusses its role and how it connects to the broader mission.
- Stay in your lane and help others succeed emphasizes understanding both individual responsibilities and how they support other agencies. Clear communication and active listening are essential.
- No ego and no blame reinforces humility, empathy and patience among agencies, regardless of whether outcomes are positive or negative.
- Building trusting relationships is foundational. Agencies must be transparent about objectives and willing to voice concerns. Trust enables collaboration when conditions are dynamic and decisions carry significant consequences.
Lessons from Boston Marathon planning
Former Boston EMS Chief Richard Serino has extensive experience with soft-target event planning. He served on the Boston Marathon planning committee for several years before retiring in 2009 to become deputy administrator of FEMA.
In preparation for the marathon, public safety agencies collaborated through planning meetings and tabletop exercises. Commanders from each agency often knew one another from years of working together.
During planning meetings, agencies reviewed the list of public and private organizations, nonprofits and medical partners involved and discussed who else should be included. Ensuring the right participants were present strengthened overall response capabilities.
Chief Serino summarized the importance of those relationships succinctly: “An incident is not the time to exchange business cards.”
“An incident is not the time to exchange business cards.” — Boston EMS Chief Richard Serino
Why the Planning P matters
Soft targets pose a significant risk to both the public and first responders. Maximizing safety depends on pre-event planning that brings all stakeholders together to address operational details before an incident occurs.
These stakeholders often include police, fire, EMS, utilities, public works, public health, hospitals, nonprofit organizations and event organizers. Coordinating this many participants requires a structured planning process and a neutral facilitator.
The Office of Emergency Management plays a critical role in that process. OEM personnel are experienced in bringing diverse agencies together and guiding large-scale event planning efforts.
One of the primary tools OEM uses is the Planning P for all-hazards special event planning. This structured planning process allows participating agencies to identify their roles, responsibilities and resource needs in advance.
The outcome of this process is an Event Action Plan that provides a common operating picture for all involved. The EAP sets expectations, supports coordination and serves as a reference for leaders responsible for making decisions during a crisis.
Planning validated under real-world conditions
Special event planning has a direct impact on emergency response outcomes. Chief Serino has noted that pre-event planning, tabletop exercises and collaboration were key factors in the coordinated response to the Boston Marathon bombing and helped minimize loss of life.
Ambulances transported most of the 281 patients to five area Level I trauma hospitals, with nearly all patients moved within 22 minutes. Hospitals were prepared because of their participation in planning and prior mass casualty training.
Law enforcement immediately began searching the area and identified two suspects within days. A unified command post was established at the Westin Hotel with local EMS, police and fire, state police, Massachusetts Bay Transportation Authority police, state emergency management, the Massachusetts National Guard and federal law enforcement partners.
Most leaders at the command post already had established working relationships. Decisions affecting both the immediate and long-term response were made collectively, with each agency understanding its role.
In a proactive move to enhance public safety, the Springfield Police Department, Fire Department and Public Works joined forces to purchase mobile vehicle barriers for use at community events. The new barriers were deployed during a recent downtown Halloween celebration to protect patrons from potential vehicle-based threats.
Photo/Eric Latimer
Applying the model at the local level
Communities such as Springfield, Missouri host several annual events that require similar planning. One example is the Birthplace of Route 66 Festival, held each August and drawing more than 70,000 people downtown. Emergency and essential services are significantly impacted, making pre-event planning critical.
OEM facilitates planning meetings and develops a detailed Event Action Plan involving all stakeholders. Representatives from multiple agencies and organizations participate, allowing participants to become familiar with one another. Several initial meetings are conducted virtually.
During the event, a unified command post is established that includes police, fire, EMS, OEM and event organizers with decision-making authority. Representatives collaborate on mission objectives, logistics, staffing, weather considerations and emerging incidents.
If an unexpected situation occurs, key personnel are already on site to initiate a response. These command posts also provide mentoring opportunities for personnel learning the unified command system.
Building familiarity through smaller events and training
This framework is also used for smaller events. Partner agencies continue working together and become familiar with one another’s missions, roles, responsibilities and leadership. Even a single planning session allows agencies to align objectives and expectations.
Leadership training further supports collaboration. Leadership in Police Organizations has been an annual program taught by the Springfield Police Department for several years. In 2018, participants from other public safety agencies were invited to attend, expanding opportunities for relationship-building across disciplines.
Participants worked together on shared leadership challenges and developed solutions applicable across agencies. Relationships built through the program carried over into daily operations and incident response.
Sustaining collaboration before the next incident
Ongoing collaboration continues through quarterly meetings of Springfield public safety supervisors representing fire, EMS and law enforcement. These meetings provide an open forum to discuss procedures, clarify expectations and address concerns. This regular communication supports a shared understanding of incident response responsibilities.
Public safety agencies can sometimes operate in silos until an incident forces collaboration. Each agency has priorities and obligations to the community. However, collaboration before an emergency pays dividends when agencies must operate together under pressure.
Leaders should identify resources within their community, including OEM, to support planning and coordination. During planning meetings, leaders should ask a simple but critical question: Who is not here that should be?
Unified command does not begin when the first unit arrives. It succeeds or fails long before that moment.
About the author
Eric Latimer is the Division Chief of Fire Operations for the Springfield (Missouri) Fire Department and has served the citizens of Springfield for more than 27 years. He is actively involved with the local Office of Emergency Management in event planning and incident response and has commanded numerous multi-agency incidents. He is also a member of the regional incident support team.
Chief Latimer holds a master’s degree in communication from Missouri State University, completed the Executive Fire Officer program at the National Fire Academy and holds the Chief Fire Officer designation through the Center for Public Safety Excellence. He has also attended the Executive Leaders Program through the Center for Homeland Security and Defense, Leadership in Police Organizations through the International Association of Chiefs of Police and the National Preparedness Leadership Initiative at Harvard University.
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