Incident Strategic Alignment Process (ISAP)
Creating shared understanding between incident responders at all levels.
ANNOUNCEMENTS:
- The 2024 ISAP AGOL Web Experience is still accessible: https://experience.arcgis.com/experience/f9d7f7f920494c3db43a23a8dffe4664/page/ISAP/ With ongoing fire activity, we have not yet archived this service. The 2025 NIFS is linked to the 2024 ISAP AGOL Experience.
- There will be a new feature service built for the peak 2025 season. It is estimated that it will be available for use by April/May 2025. We will post updates on this story map as things progress.
- We are planning on developing a training platform in addition to the production platform of this service for 2025. More to come...
- Scroll to the right through all the tabs to find a link to reference materials, guides, worksheets, etc., along with how to contact SME with questions or support requests.
Overview & Four Pillars
The Incident Strategic Alignment Process (ISAP) was created due to national recognition that Incident Management Teams (IMT) historically had very different methodology and products to capture and share risk-related information. ( NMAC Correspondence 2017-07 )
As best practices were developed to provide an effective consistent and repeatable process for assessing and communicating risk, the terms used morphed during testing and development. This work formally began in 2021 as the Strategic Risk Assessment (SRA). Adjustments began during the first pilot season when it was recognized that the process needed to be more encompassing. We couldn't assess risk without determining what strategies needed to be considered, thus Strategic Operations (StratOps) grew and was formalized in 2022. After a second pilot season, the relationship between the subcomponents of SRA and StratOps became bonded and retitled into the partnership name of the "Incident Strategic Alignment Process."
The ISAP is a culmination of both SRA & Strat Ops and is founded on Four Pillars. When applied to an incident the concepts of the ISAP assist in creating a shared understanding between incident responders at all levels. This process can facilitate meaningful risk dialogue and foster alignment, focus efforts and help to prioritize work.
On October 30, 2023 the NWCG Executive Board issued a tasking ( NWCG Tasking TM-23-003 Standards for ISAP ) for an interagency task group to develop standards for the Incident Strategic Alignment Process "to ensure strategic thought process and alignment of management actions is occurring between Agency Administrators, fire management organizations, and Incident Management Teams throughout the duration of an incident."
Why ISAP?
- True risk-informed decisions.
- Defining acceptable risk on incidents with conflicting vales.
- Risk ownership at appropriate levels.
- Sensemaking - understanding the criteria with which we measure our decision(s).
- Alignment & Communication using common methodologies, language, definitions, and products.
- Strategy that transcends transitions (IMT & AA).
Four Pillars
1.Critical Values at Risk - WHY are we here?
2.Strategy & Strategic Actions – WHAT are we doing & HOW are we going to do it?
3.Responder Risk – SHOULD we do it?
4.Probability of Success – CAN we be successful?
Scalability
ISAP by title implies a "process" which leads you to believe that you must follow a linear methodology or set up steps from beginning to achieve your end state. This NOT the case, rather the ISAP is an approach. A series of progressive and interdependent actions to achieve the end state however the path may look and feel different to serve the needs of a particular incident and those managing it.
- Each strategy meeting may look different and could range from 10 - 90 minutes depending upon what needs to be discussed.
- There is no set agenda - IMT to identify what NEEDS to be discussed to ensure alignment
- Should look slightly different for every incident. Incident rhythm and complexity should dictate what needs to be discussed at strategy meetings, along with the frequency and duration of the discussions.
- May use forms or maps to capture conversation - think about durability and transferability
- There are two main gatherings within the ISAP. The Critical Values at Risk conversation covers Pillar 1, and Strategy Meetings which encompass parts of Pillar 1, but fold in Pillars 2, 3 & 4. The Strategy Meeting(s) bring everything together in one discussion.
1) Critical Values at Risk
"Critical Values" are those that an Agency Administrator or Deciding Official would ask responders to accept an elevated level of meaningful risk to protect (values that guide your actions and/or shape major decision) or those values that will drive strategy while lesser values or assets may influence tactics.
The Critical Values at Risk (CVAR) conversation is the first step because incident responders cannot fully understand their tasking(s) if they do not have the WHY. This will launch the IMT in the right direction early by defining the priorities.
Suggestions
Timing: prior to strategy conversations; as soon as possible after in brief and/or TOC. Recommended Day 1, but may even be before TOC and at Day 0.
Participation: AA from current and anticipated jurisdictions, local FMO, other local org. reps, IC, OSC, SOF, notetaker (i.e. PSC, PIO). Container conversation to gain trust & allow open discussion on value ratings/priorities.
Facilitator: The IC may facilitate this conversation, or have another member of the Command & General Staff there to facilitate in order for the IC to be able to focus on listening to the discussion. Each IMT will need to find what works best for them.
Resources/References: RMA Analytics: (PODs w/Summary – cNVC Assets & drinking water, HUD & WUI); specialists, LTAN/FBAN products to determine scope of values conversation, (FSPro, NTFB, STFB), READs, other local experts.
Handouts/ISAP Tools needed: SRA Values Tab to capture details, the Definitions/Terminology handout (Excel Tab) for each participant (see Reference Material), and a map (digital or hard copy)
Set-Up: Operations Map (paper or electronic); markers/highlighters; SRA Product Form (Values Tab); project or post map/values list on wall for group to gather around (circle chairs or stand around)
Info to Capture: For each value deemed Critical by AA: What is it? Where is it? What makes it special? Severity Rating from the Blue section of the definition handout (see Reference Materials). The AA are responsible for the values and should provide the information. The IMT members should listen to understand the unique nature of the shared items and clarifying questions as needed to ensure alignment around each one.
END STATE: Engage in a conversation that compiles a list of agency’s(ies) CVARs (capturing locations on map) with descriptions of what makes that value “critically” important. Collect a severity rating from the AA as to the level of impact the fire would have on each value (refer to Terminology & Definitions: Reference Materials). This is the IMT first step to developing a common operating picture and setting priorities early for resource allocation.
This initial exercise will capture most of the critical values, but will likely need to be repeated if the planning area expands, or other conditions change. For additional information and prompts they may assist with this conversation see the ISAP User Guide (see Reference Material).
"It's values-driven strategies that we need to use – if we don’t know what those are we might as well pack up and go home.” -Incident Commander
2) Strategy & Strategic Actions
Strategic Operations (StratOps) is a deliberate process for IMTs to formulate sound strategies that consider the best available science, observation & collective experiences, and collaborative planning techniques (PODs, pre-attack plans).
Strategies are developed and can be divided into 2-5 Strategic Actions that address the unique incident needs.
Strategic Actions are portions of the overall strategy which have similar proposed or planned actions to protect an identified critical value or group of values within a certain geographic area.
Strategic Actions clearly articulate the end state, purpose, and task of a portion of the incident that needs discussion around the balance between responder risk and critical values. The How, Where, Who and Why of the plan. These Action statements should tie to incident objectives, ICS 204 work assignments and Ops briefings. These strategic actions should align with or inform updates to the WFDSS course of action. They will frame each strategy conversation to help focus the discussion.
NOTE - Not all fires may need to be analyzed at this level, nor does the entire fire perimeter of an incident necessarily need to be scrutinized. Focus on the areas where there is decision space.
Suggestions
Timing: the Strategic Actions are drafted prior to the strategy meeting(s). This work and/or conversations prior to the IMTs strategy meeting is critical and often referred to as "Hallway Homework." At the strategy meeting(s) operations will describe the strategic actions so others in attendance have an understanding of the operational plan.
Participation: Ops, Air Ops, Safety, FBAN/LTAN, IMET. Operations, Air Ops and Safety should be tied together as strategies are being developed, so that safety is not left to mitigate away the effects of a poor strategy. FBAN/LTAN/IMET help to inform the probability of impact ratings as part of the strategic risk assessment.
Facilitator: Operations should lead these discussions both prior to and at the strategy meetings.
Resources: RMA Analytics (SDI, PCL, Snag Hazard, Ground Evac); ground truthing & local experts; fire history
Set-Up: Display map showing strategic lines
END STATE: It is useful at each strategy meeting to have Operations remind attendees of the full perimeter's strategy and how it is broken into subcomponents or SAs. Operations then can highlight which action(s) will be focused on during that particular discussion. This would include identifying the actions are being proposed, where they are being proposed, what type/kind/number of resources are needed to accomplish the actions, and the duration it will take to complete the work. The strategy is developed and then communicated to rest of the IMT & AA ensuring a common understanding of the actions and what it will take to accomplish them.
Combining data mined from dialogue in the SRA process, Risk Management Assistance (RMA) analytics, collective experiences and local factors, quickly provides IMTs and Agency Administrators a clear, understandable strategy displayed on a map consistent with Leaders Intent, and WFDSS.
NOTE - It is important that overall during an incident response and use of ISAP, P1-2-3-4 is the way to work through the overall process, but many strategy meetings often begin with discussing Pillar 2, the identified SA to focus on that session, then the P1 values that fall within the geographic area of that highlighted SA, followed by P3 & 4.
NWCG Strategic Operations Map Standards - https://www.nwcg.gov/publications/pms936/map-product-standards/strategic-operations-map
3) Risks to Responders
Foundational Risk Principles
- Risk can be succinctly defined as a “measure of the probability and consequence of uncertain future events” Risk = Probability and Consequences (USDA Forest Service RMRS-GTR-349. 2016)
- Risk assessment is a “product or process that collects information and assigns values (relative, qualitative, or quantitative) to risks for the purpose of informing priorities, developing or comparing courses of action, and informing decision making.” As a product: A focused collection of data, information, results, and reports that characterize wildland fire risk relevant to the appropriate scale. As a process: A set of activities that identify, analyze, and evaluate wildland fire risk across spatial, temporal, and management scales (USDA Forest Service RMRS-GTR-349. 2016). Within the ISAP, use of "SRA" is referring to the physical assessment product (SRA Excel Form) developed to collect this information.
- A primary goal of any risk management process is to close the gap of uncertainty.
- Four responses to identified risks: Accept, Avoid, Transfer or Reduce
The ISAP considers 6 major risk influencers which are common mechanisms of injury on wildland fire that have been identified themes that group individual hazards into categories and help focus discussions and ratings at a more strategic level: wider geography, multiple tasks, diversity of resources over longer durations than historically used operational period risk assessments. However all 4 levels of risk management feed into the ISAP. Once the strategic actions are identified information is gathered and discussed to inform the responder risk ratings.
6 Major Risk Influencers
- Ground Transportation
- Fire Behavior Hazards
- Hit-by & Gravity Hazards
- Aviation Operations
- Human Factors
- Medical Response & Capability
Suggestions
Timing: Some discussion may need to take place as Hallway Homework prior to a strategy meeting. At the Strategy Meeting the Safety or meeting facilitator will request information be shared regarding the risk influencers and initial responder risk ratings for each strategic action being discussed. This should trigger conversation around the risks, allow the reasoning behind ratings to be understood and provide an opportunity to discuss risk mitigations.
Participation: IMT C&G, Medical Unit, Air Ops, FBAN, IMET, AA, Local FMO, key cooperators, others at IC discretion
Facilitator: Hallway Homework portions of this pillar are often led by the Safety, but the strategy meeting facilitator should be predetermined by the IMT (PSC, LOFR, SOF, PIO, etc.) The IMT may want to identify 1-3 different facilitators for strategy meetings in case primary is unavailable.
Resources: RMA Analytics (Snag Hazard, Ground Evac), ground truthing; local experts, IMT SME: LSC, PSC, PIO, FSC, field assets (Pilots, IHC, etc.)
Set-Up: Handouts; chairs arranged in circular or u-shape fashion; map projected; SRA product projected (see Reference Material)
END STATE: Using a strategic lens, create a shared understanding of the responder risk associated with protecting the CVARs. Identify if the balance between values and responder risk is acceptable.
This conversation ties in directly to the 215R (or A) done daily for the next operational period. That is the opportunity to unpack each Risk Influencer theme into the subparts that present specific hazards to responders and should be messaged as relevant to operational work each shift.
“You can’t mitigate away all risk...If it's risky, say so.” - Incident Commander
“It’s clear we can’t remove all of the risk. The question now comes back to the Agency Administrator to know if it is acceptable given the work we are looking at and the values we’re trying to protect.” -Incident Commander
4) Probability of Success
This pillar is vital to understanding if there is alignment and agreement to move forward with implementation. Discussion should include factors that will work in favor of success, as well as those that could hamper the ability to implement the work successfully.
Suggestions
Timing: This discussion should take place towards the end the strategy meeting.
Participation: IMT, AA, ALL
Resources: RMA Analytics (PCL, SDI, Snag Hazard, Season Ending Predictions), Seasonal assessment, weather forecasts, available resources, FSPro & other fire behavior modeling, resource availability
Set-Up: Ensure participants focus on identifying potential failure points. Articulate what needs to go right, and what might go affect plans success.
END STATE: There is alignment around what it will take to be successful, and what might result in failure.
Defining success along with understanding the challenges, risks and opportunities are a key component of developing a sound strategy.
What's in it for me?
This section serves as a function-by-function breakdown of things to consider, prepare for, questions to ask and/or general things you may contribute or glean from the ISAP and conversations.
Agency Administrators
- Define success or end-state early & set IMT up for success
- Leverage pre-season work (PODs) & local knowledge
- Ensure shared risk tolerances and acceptance of risks (to values and responders)
- Understanding of factors contributing the P(success)
- Improved partner relations
- Less deferred risk decisions
"Models like the SRA give us information, but we still make the decisions. This fosters the conversation needed to make the best decisions." -- Agency Administrator Representative
"Many people think you address risks as an aftermath of strategy selection. The alignment and involvement need to start as strategies are being considered – much earlier on. The SRA engagement & transparency eliminate the myth that risks to responders aren’t considered until strategies are selected.” -Agency Administrator
“From an Agency Administrator perspective the SRA really highlights what the level of responder risk is when we say protect this lookout or watershed. It allows me to be better informed and SRA provides a platform that I can better identify my risk tolerance for the Strategy”. -Agency Administrator
Unit Fire Managers
- Define success or end-state early & set IMT up for success
- Leverage pre-season work (PODs) & local knowledge
- Ensure shared risk tolerances and acceptance of risks (to values and responders)
- Understanding of factors contributing the P(success)
- Improved partner relations
- Less deferred risk decisions
IMT Members
Incident Commander & Liaison Officer
- Clear understanding of the values
- Able to effectively articulate strategy to partners, cooperators and public
- Better alignment throughout IMT
- Earlier evacuation planning
- Able to clearly communicate intent
“I sleep better at night knowing the whole team is communicating and on the same page.” -IC
Operations:
- Values based strategy
- Better line placement
- Less unnecessary line construction & responder exposure
- Durable strategy
- Identifies blind spots early
- Better briefings and communication between resources
“This process is more collective and transparent and gets the whole team – and local components – pointing in the same direction right out of the gate.” -Operations
Safety:
- Informing development of strategy, not just mitigating risk for selected actions
- Understanding the Risk/Reward Balance
- Better understanding of staffing needs
- Field safeties under the "WHY"
Planning:
- Values based objectives
- Alignment between WFDSS & 204s
- Improved products (IAP/Maps)
- Reduction in map products
- Improved 209 inputs
- Ahead of demobilization needs
- Ahead on staffing needs
Information:
- Improved messaging of the "WHY"
- Earlier notifications
- Proactive development of key messages for potential issues
- Ahead on section staffing needs based on strategy
Logistics:
- Able to set up long-term communication network
- Long-term facility needs known
- Ahead on unit staffing needs based on strategy i.e. Ground Support, Medical
- Operational resource needs will help to inform meal numbers, supply needs, etc.
Finance:
- Improved cost projections
- Proactive LUA execution
- Able to project cost-share needs
- Improved claims projections
- Ahead of any financial threshold triggers (WFDSS ceiling)
- Ahead of demobilization needs
“All IMT members need to be intentional about how they take this information and inform their processes.” -IC
Incident Responders
- Understand the "WHY" (values)
- Improved real-time risk decisions
- Better understanding of how much risk to take for the value
FAQs
ISAP is NOT:
- It is NOT intended to be a one-stop shop to address all risk assessment needs across time and space.
- It is NOT intended to address pre-season risks.
- It is NOT a Safety-only tool.
- It is NOT a replacement for the 215-R.
- It does NOT replace other tools like Quantitative Wildfire Risk Assessment (QWRA), Potential Operational Delineations (PODS) databases, or Wildfire Decision Support System (WFDSS). Rather, the SRA uses these tools to add information into the conversation and focuses attention more narrowly on a specific set of strategic actions and the critical nature of what is being protected.
Reference Material
The shortlink to share this website is https://tinyurl.com/ISAPinfo
ISAP Reference Materials are located and kept updated on the National IMRR FireNet Site at ISAP Reference Materials - National IMRR FireNet Site
The following resources are available via the button above:
- ISAP User Guide
- Strategic Risk Assessment (SRA) Worksheet - Excel
- ISAP Terminology and Definitions
- ISAP Cost Estimator
The Strategic Operations Map effectively displays an Incident Management Team’s (IMT) long-term strategy in managing an incident, and the data that informs the strategy. It consists of one or more large-format maps with an accurate, current, and detailed record of incident information across the entire planning area. The NWCG Strategic Operations Map Standards can be found at: https://www.nwcg.gov/publications/pms936/map-product-standards/strategic-operations-map .
**If you have trouble accessing the links, please try a different browser**
The National IMRR MS Teams Firenet Site (IMRR Firenet Team > 3B ISAP_SRA_StratOps Channel) serves as a collaborative workspace for IMTs working with coaches to develop consistent processes. If you don't have a Firenet account, you can request to join National IMRR FireNet Team as a guest .
ISAP AGOL WEB EXPERIENCE Planning Tool
For questions or issues please submit a helpdesk request: ISAP Help Desk Request Form
ISAP geospatial products consist of a series of hosted feature services, a Strategic Operations web map template to deploy for use in Field Maps, and a web application for data editing and visualization.
The purpose of these products is to support ISAP with minimal impact as possible to GISS. As such, the ISAP web application is the primary tool for data creation and editing of Critical Values at Risk, Strategic Lines, and Strategic Action data by Operations.
ISAP GISS Edit Services exist for GISS to support Operations, however these services are secondary to the ISAP web application. In addition to Critical Values at Risk and Strategic Actions, ISAP GISS Edit Services in 2024 included Fire Spread Probability (FSPro) and Near Term Fire Behavior (NTFB) where GISS may be asked to load an analysis shapefile generated by an analyst to a service in ArcGIS Pro in order to display it for Operations in the ISAP web application. Work with your Situation Unit Leader to ensure you are using the appropriate analysis shapefile.
Strategic Lines have been incorporated into the Event Line layer of the National Incident Feature Service (NIFS) through the inclusion of the Strategic Line Type attribute. Once the attribute is populated, a halo will appear under the Event Line to indicate that is considered a Strategic Line in terms of the incident strategy. In the ISAP web application only, Operations may indicate that an Event Line is considered a Primary, Secondary, or Proposed Strategic Line. GISS also have edit access to the Strategic Line Type attribute in the NIFS GISS Edit Service.
The ISAP web application and Strategic Operations web map template are shared with the NIFC Org and can be accessed from the ISAP Resources link on the home page and will be linked to the RMA Dashboard in the future. ISAP GISS Edit Services are shared with the GISS Edit group – those who have access to the NIFS GISS Edit service also have access to the ISAP GISS Edit services.
Please see the ISAP Geospatial Guide for GISS to use the ISAP GISS Edit services most effectively to support Operations through the Incident Strategic Alignment Process. This guide is linked on the Resources tab of the ISAP web application. The Strategic Operations Map standard can be found in GeoOps here: Strategic Operations Map | NWCG.
If you have suggestions for how to improve the ISAP AGOL WEB EXPERIENCE, please submit them through the following form, or use of the QR code below: ISAP Web Experience Suggestion Form
Tools and Tips
Use the right arrow below to scroll through additional tools and tips.
“The SRA is about dialog and shared understanding.” -Agency Administrator
“It provides a vocabulary and process – a common language to talk about difficult things in an easier way.” -IC