2. Here is the scenario – You are planning a tabletop exercise designed to solve a recurring problem in your pre-hospital system. This is an urban system with a total of 10 paid paramedics and 20 paid EMTs. There are also 15 volunteer EMTs. The problem is that communication among the various EMTs and paramedics and among responding units has been less than optimal. Problems include lack of interoperability and failure to use standard terminology. Here are the three tasks.
a. Determine who the players should be. Write an email notice inviting them to a with an explanation of what you hope to accomplish. B. Write a communication scenario that will allow the players to address the problem at hand. . Make a list of facilities and materials you will use in the exercise.
3. Refine your capstone proposal based on discussions during week one.
About my Capstone it’s disaster management with persons with disabilities. You should know, though, that a graduate many years ago did such a project. It is now a DMM elective course. How would you make yours unique?
Reading Assignments
Attached Files:
1. IS 139a Lesson 2 – Exercise Planning Team
2. IS 139a Lesson3 – Capability-based Exercise Objective Development
3. The Inventory Resource – IS 139 Central City Planning Materials and Resources
4. Homeland Security Exercise and Evaluation Program. This document is found at the link titled Homeland Security Exercise and Evaluation Program (Volume 1). You will find the portions you’ll need for this week on pages 2.3-2.6 (Exercise types) and 3.1 (the 8 step process).
FOCUS POINTS
Having reviewed the basics of exercise design last week, this week we dig deeper. Look at each of the design steps so you can begin the thought process that will go into developing your exercise. The chapter on the TTX will take you beyond the discussion-based exercises.
One of the most valuable collection of resources you will use this summer and for the rest of your career is the HSEEP. We will use several of the files in HSEEP this semester, so look them over, ask questions, think about the ones your group will need during the semester.
As you develop your portion of your exercise, you will need to think about available resources. That’s where the Liberty County files come into play. Look them over with an eye towards your group’s scenario. If a resource you think you need is in there, you may use. If a resource isn’t there, it is not available to you.
Here’s the URL for the full 139a course:https://emilms.fema.gov/IS0139a/curriculum/1.html
TTX Videos
Here are a few good youtube videos you may want to review. I only chose ones that were under an hour long. Feel free to look at youtube yourself for others. Team Rubicon has several, but they are all full length, often more than 4 hours.
Healthcare TTX
Active shooter
How to conduct a TTX
Another active shooter
General information
Homeland Security
Exercise and Evaluation
Program (HSEEP)
April 2013
PRE-DECISIONAL DRAFT
Intro-1
Contents
INTRODUCTION AND OVERVIEW …………………………………………………………………………… INTRO-1
Purpose ………………………………………………………………………………………………………………………… Intro-1
Role of Exercises …………………………………………………………………………………………………………… Intro-1
Applicability and Scope …………………………………………………………………………………………………. Intro-2
Supersession …………………………………………………………………………………………………………………. Intro-2
How to Use This Document ……………………………………………………………………………………………. Intro-2
Revision Process……………………………………………………………………………………………………………. Intro-3
1. HSEEP FUNDAMENTALS ………………………………………………………………………………………………. 1-1
Overview …………………………………………………………………………………………………………………………… 1-1
Fundamental Principles ……………………………………………………………………………………………………….. 1-1
Exercise Program Management …………………………………………………………………………………………….. 1-1
Exercise Methodology …………………………………………………………………………………………………………. 1-2
Exercise Design and Development ………………………………………………………………………………….. 1-3
Exercise Conduct ………………………………………………………………………………………………………….. 1-3
Exercise Evaluation ………………………………………………………………………………………………………. 1-3
Improvement Planning …………………………………………………………………………………………………… 1-3
2. EXERCISE PROGRAM MANAGEMENT ……………………………………………………………………….. 2-1
Overview …………………………………………………………………………………………………………………………… 2-1
Engage Elected and Appointed Officials………………………………………………………………………………… 2-1
Multi-year Exercise Program Priorities ………………………………………………………………………………….. 2-1
Training and Exercise Planning Workshop ………………………………………………………………………. 2-2
Multi-year Training and Exercise Plan…………………………………………………………………………………… 2-3
Progressive Approach ……………………………………………………………………………………………………. 2-3
Discussion-Based Exercises……………………………………………………………………………………………. 2-4
Operations-Based Exercises……………………………………………………………………………………………. 2-5
Rolling Summary of Outcomes …………………………………………………………………………………………….. 2-6
Manage Exercise Program Resources ……………………………………………………………………………………. 2-7
Exercise Budget Management ………………………………………………………………………………………… 2-7
Program Staffing …………………………………………………………………………………………………………… 2-7
Other Resources ……………………………………………………………………………………………………………. 2-7
3. EXERCISE DESIGN AND DEVELOPMENT …………………………………………………………………… 3-1
Overview …………………………………………………………………………………………………………………………… 3-1
Exercise Foundation ……………………………………………………………………………………………………………. 3-1
Exercise Planning Team and Events ……………………………………………………………………………………… 3-2
Exercise Planning Team Considerations…………………………………………………………………………… 3-2
Exercise Planning Team Positions …………………………………………………………………………………… 3-3
Planning Activities ………………………………………………………………………………………………………… 3-4
Exercise Design ………………………………………………………………………………………………………………….. 3-9
Scope…………………………………………………………………………………………………………………………. 3-10
Exercise Objectives……………………………………………………………………………………………………… 3-11
Evaluation Requirements ……………………………………………………………………………………………… 3-12
Scenario …………………………………………………………………………………………………………………….. 3-12
Exercise Documentation ………………………………………………………………………………………………. 3-13
Media or Public Affairs Guidance …………………………………………………………………………………. 3-19
Exercise Development ……………………………………………………………………………………………………….. 3-20
Planning for Exercise Logistics …………………………………………………………………………………….. 3-20
Planning for Exercise Control ……………………………………………………………………………………….. 3-22
Homeland Security Exercise and Evaluation Program
i
Planning for Exercise Evaluation…………………………………………………………………………………… 3-25
4. EXERCISE CONDUCT ……………………………………………………………………………………………………. 4-1
Overview …………………………………………………………………………………………………………………………… 4-1
Exercise Play Preparation …………………………………………………………………………………………………….. 4-1
Setup for Discussion-Based Exercises ……………………………………………………………………………… 4-1
Setup for Operations-Based Exercises ……………………………………………………………………………… 4-1
Briefings………………………………………………………………………………………………………………………. 4-2
Exercise Play ……………………………………………………………………………………………………………………… 4-2
Participant Roles and Responsibilities ……………………………………………………………………………… 4-3
Conduct for Discussion-Based Exercises …………………………………………………………………………. 4-4
Conduct for Operations-Based Exercises …………………………………………………………………………. 4-5
Contingency Process ……………………………………………………………………………………………………… 4-7
Wrap-Up Activities …………………………………………………………………………………………………………….. 4-7
Debriefings…………………………………………………………………………………………………………………… 4-7
Player Hot Wash …………………………………………………………………………………………………………… 4-7
Controller/Evaluator Debriefing ……………………………………………………………………………………… 4-8
5. EVALUATION …………………………………………………………………………………………………………………. 5-1
Overview …………………………………………………………………………………………………………………………… 5-1
Evaluation Planning ……………………………………………………………………………………………………………. 5-1
Evaluation Team …………………………………………………………………………………………………………… 5-1
Exercise Evaluation Guide Development …………………………………………………………………………. 5-2
Recruit, Assign, and Train Evaluators ……………………………………………………………………………… 5-3
Evaluation Documentation……………………………………………………………………………………………… 5-3
Pre-Exercise Evaluator Briefing ……………………………………………………………………………………… 5-4
Exercise Observation and Data Collection ……………………………………………………………………………… 5-4
Observation ………………………………………………………………………………………………………………….. 5-4
Data Collection …………………………………………………………………………………………………………….. 5-4
Data Analysis …………………………………………………………………………………………………………………….. 5-5
After-Action Report Draft ……………………………………………………………………………………………………. 5-5
6. IMPROVEMENT PLANNING …………………………………………………………………………………………. 6-1
Overview …………………………………………………………………………………………………………………………… 6-1
Corrective Actions ………………………………………………………………………………………………………………. 6-1
After-Action Meeting ………………………………………………………………………………………………………….. 6-1
After-Action Report/Improvement Plan Finalization ……………………………………………………………….. 6-2
Corrective Action Tracking and Implementation …………………………………………………………………….. 6-2
Using Improvement Planning to Support Continuous Improvement ………………………………………….. 6-2
GLOSSARY OF TERMS ………………………………………………………………………………………. GLOSSARY-1
ACRONYMS AND ABBREVIATIONS …………………………………………………………………..ACRONYM-1
Homeland Security Exercise and Evaluation Program
ii
Introduction and Overview
Purpose
The Homeland Security Exercise and Evaluation Program (HSEEP) provides a set of guiding
principles for exercise programs, as well as a common approach to exercise program
management, design and development, conduct, evaluation, and improvement planning.
Exercises are a key component of national preparedness—they provide elected and appointed
officials and stakeholders from across the whole community with the opportunity to shape
planning, assess and validate capabilities, and address areas for improvement.
Through the use of HSEEP, exercise program managers can develop, execute, and evaluate
exercises that address the priorities established by an organization’s leaders. These priorities are
based on the National Preparedness Goal, strategy documents, threat and hazard
identification/risk assessment processes, capability assessments, and the results from previous
exercises and real-world events. These priorities guide the overall direction of a progressive
exercise program, where individual exercises are anchored to a common set of priorities or
objectives and build toward an increasing level of complexity over time. Accordingly, these
priorities guide the design and development of individual exercises, as planners identify exercise
objectives and align them to core capabilities 1 for evaluation during the exercise. Exercise
evaluation assesses the ability to meet exercise objectives and capabilities by documenting
strengths, areas for improvement, core capability performance, and corrective actions in an
After-Action Report/Improvement Plan (AAR/IP). Through improvement planning,
organizations take the corrective actions needed to improve plans, build and sustain capabilities,
and maintain readiness.
In this way, the use of HSEEP—in line with the National Preparedness Goal and the National
Preparedness System—supports efforts across the whole community that improve our national
capacity to build, sustain, and deliver core capabilities.
Role of Exercises
Exercises play a vital role in national preparedness by enabling whole community stakeholders
to test and validate plans and capabilities, and identify both capability gaps and areas for
improvement. A well-designed exercise provides a low-risk environment to test capabilities,
familiarize personnel with roles and responsibilities, and foster meaningful interaction and
communication across organizations. Exercises bring together and strengthen the whole
community in its efforts to prevent, protect against, mitigate, respond to, and recover from all
hazards. Overall, exercises are cost-effective and useful tools that help the nation practice and
refine our collective capacity to achieve the core capabilities in the National Preparedness Goal.
1
Core Capabilities are distinct critical elements necessary to achieve the specific mission areas of prevention, protection, mitigation, response,
and recovery. Capabilities provide a common vocabulary describing the significant functions required to deal with threats and hazards that must
be developed and executed across the whole community to ensure national preparedness.
Homeland Security Exercise and Evaluation Program
Intro-1
Applicability and Scope
HSEEP exercise and evaluation doctrine is flexible, scalable, adaptable, and is for use by
stakeholders across the whole community. 2 HSEEP doctrine is applicable for exercises across
all mission areas—prevention, protection, mitigation, response, and recovery. Using HSEEP
supports the National Preparedness System 3 by providing a consistent approach to exercises and
measuring progress toward building, sustaining, and delivering core capabilities.
HSEEP doctrine is based on national best practices and is supported by training, technology
systems, tools, and technical assistance. The National Exercise Program (NEP) is consistent
with the HSEEP methodology. Exercise practitioners are encouraged to apply and adapt HSEEP
doctrine to meet their specific needs.
Supersession
This 2013 iteration of HSEEP supersedes the 2007 HSEEP Volumes. The current version
reflects the feedback, lessons learned, and best practices of the exercise community, as well as
current policies and plans.
How to Use This Document
This document serves as a description of HSEEP doctrine. It includes an overview of HSEEP
fundamentals that describes core HSEEP principles and overall methodology. This overview is
followed by several chapters that provide exercise practitioners with more detailed guidance on
putting the program’s principles and methodology into practice.
The doctrine is organized as follows:
•
Chapter 1: HSEEP Fundamentals describes the basic principles and methodology of
HSEEP.
•
Chapter 2: Exercise Program Management provides guidance for conducting a Training
and Exercise Planning Workshop (TEPW) and developing a Multi-year Training and
Exercise Plan (TEP).
•
Chapter 3: Exercise Design and Development describes the methodology for
developing exercise objectives, conducting planning meetings, developing exercise
documentation, and planning for exercise logistics, control, and evaluation.
•
Chapter 4: Exercise Conduct provides guidance on setup, exercise play, and wrap-up
activities.
•
Chapter 5: Evaluation provides the approach to exercise evaluation planning and
conduct through data collection, analysis, and development of an AAR.
•
Chapter 6: Improvement Planning addresses corrective actions identified in the exercise
IP and the process of tracking corrective actions to resolution.
2
The whole community includes individuals, families, communities, the private and nonprofit sectors, faith-based organizations, and Federal,
State, local, tribal, and territorial governments.
3
The National Preparedness System includes identifying and assessing risks; estimating the level of capabilities needed to address those risks;
building or sustaining the required levels of capability; developing and implementing plans to deliver those capabilities; validating and
monitoring progress; and reviewing and updating efforts to promote continuous improvement.
Homeland Security Exercise and Evaluation Program
Intro-2
Revision Process
The Department of Homeland Security (DHS) Federal Emergency Management Agency
(FEMA) will review HSEEP doctrine and methodology on a biennial basis, or as otherwise
needed, to make necessary modifications and incorporate lessons learned.
Homeland Security Exercise and Evaluation Program
Intro-3
1. HSEEP Fundamentals
Overview
HSEEP doctrine consists of fundamental principles that frame a common approach to exercises.
This doctrine is supported by training, technology systems, tools, and technical assistance, and is
based on national best practices. It is intended to enhance consistency in exercise conduct and
evaluation while ensuring exercises remain a flexible, accessible way to improve our
preparedness across the nation.
Fundamental Principles
Applying the following principles to both the management of an exercise program and the
execution of individual exercises is critical to the effective examination of capabilities:
•
Guided by Elected and Appointed Officials. The early and frequent engagement of
elected and appointed officials is the key to the success of any exercise program. They
provide the overarching guidance and direction for the exercise and evaluation program
as well as specific intent for individual exercises.
•
Capability-based, Objective Driven. The National Preparedness Goal identifies a series
of core capabilities and associated capability targets across the prevention, protection,
mitigation, response, and recovery mission areas. Through HSEEP, organizations can
use exercises to examine current and required core capability levels and identify gaps.
Exercises focus on assessing performance against capability-based objectives.
•
Progressive Planning Approach. A progressive approach includes the use of various
exercises aligned to a common set of exercise program priorities and objectives with an
increasing level of complexity over time. Progressive exercise planning does not imply a
linear progression of exercise types.
•
Whole Community Integration. The use of HSEEP encourages exercise planners,
where appropriate, to engage the whole community throughout exercise program
management, design and development, conduct, evaluation, and improvement planning.
•
Informed by Risk. Identifying and assessing risks and associated impacts helps
organizations identify priorities, objectives, and core capabilities to be evaluated through
exercises.
•
Common Methodology. HSEEP includes a common methodology for exercises that is
applicable to all mission areas—prevention, protection, mitigation, response, and
recovery. This methodology enables organizations of divergent sizes, geographies, and
capabilities to have a shared understanding of exercise program management, design and
development, conduct, evaluation, and improvement planning; and fosters exerciserelated interoperability and collaboration.
Exercise Program Management
Exercise program management involves a collaborative approach that integrates resources,
organizations, and individuals in order to identify and achieve program priorities. Through the
Homeland Security Exercise and Evaluation Program
1-1
management of an exercise program, stakeholders provide oversight to specific training and
exercise activities sustained over time. An effective exercise program maximizes efficiency,
resources, time, and funding by ensuring that exercises are part of a coordinated and integrated
approach to building, sustaining, and delivering core capabilities.
Key elements of HSEEP’s approach to exercise program management include:
•
•
•
•
•
•
Engaging Elected and Appointed Officials to Provide Intent and Direction. Elected
and appointed officials must be engaged early and often in an exercise program. They
provide both the strategic direction for the program as well as specific guidance for
individual exercises. Routine engagement with elected and appointed officials ensures
that exercises have the support necessary for success.
Establishing Multi-year Exercise Program Priorities. These overarching priorities
inform the development of exercise objectives, ensuring that individual exercises
evaluate and assess core capabilities in a coordinated and integrated fashion.
Using a Progressive Approach. A progressive exercise program management approach
includes exercises anchored to a common set of objectives, built toward an increasing
level of complexity over time, and involves the participation of multiple entities.
Developing a Multi-year Training and Exercise Plan. A TEP, developed through a
TEPW, aligns exercise activities and supporting training to exercise program priorities.
Maintaining a Rolling Summary of Exercise Outcomes. A rolling summary report
provides elected and appointed officials and other stakeholders with an analysis of issues,
trends, and key outcomes from all exercises conducted as part of the exercise program.
Managing Exercise Program Resources. An effective exercise program utilizes the full
range of available resources for exercise budgets, program staffing, and other resources.
Exercise Methodology
HSEEP uses a common methodology for planning and conducting individual exercises. This
methodology applies to exercises in support of all national preparedness mission areas. A
common methodology ensures a consistent and interoperable approach to exercise design and
development, conduct, evaluation, and improvement planning, as depicted in Figure 1.1. The
following chapters contain more detailed descriptions of each phase.
Figure 1.1: HSEEP Exercise Cycle
Homeland Security Exercise and Evaluation Program
1-2
Exercise Design and Development
In designing and developing individual exercises, exercise planning team members are identified
to schedule planning meetings, identify and develop exercise objectives, design the scenario,
create documentation, plan exercise conduct and evaluation, and coordinate logistics. At key
points in this process, the exercise planning team engages elected and appointed officials to
ensure their intent is captured and that the officials are prepared to support the exercise as
necessary.
Exercise Conduct
After design and development activities are complete, the exercise is ready to occur. Activities
essential to conducting individual exercises include preparing for exercise play, managing
exercise play, and conducting immediate exercise wrap-up activities.
Exercise Evaluation
Evaluation is the cornerstone of an exercise and must be considered throughout all phases of the
exercise planning cycle, beginning when the exercise planning team meets to establish objectives
and initiate exercise design. Effective evaluation assesses performance against exercise
objectives, and identifies and documents strengths and areas for improvement relative to core
capabilities.
Improvement Planning
During improvement planning, the corrective actions identified during individual exercises are
tracked to completion, ensuring that exercises yield tangible preparedness improvements. An
effective corrective action program develops IPs that are dynamic documents, which are
continually monitored and implemented as part of the larger system of improving preparedness.
Homeland Security Exercise and Evaluation Program
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2. Exercise Program Management
Overview
Exercise program management is the process of overseeing and integrating a variety of exercises
over time. An effective exercise program helps organizations maximize efficiency, resources,
time, and funding by ensuring that exercises are part of a coordinated, integrated approach to
building, sustaining, and delivering core capabilities. This approach—called multi-year
planning—begins when elected and appointed officials, working with whole community
stakeholders, identify and develop a set of multi-year exercise priorities informed by existing
assessments, strategies, and plans. These long-term priorities help exercise planners design and
develop a progressive program of individual exercises to build, sustain, and deliver core
capabilities.
Effective exercise program management promotes a multi-year approach to:
•
Engaging elected and appointed officials
•
Establishing multi-year exercise program priorities
•
Developing a multi-year TEP
•
Maintaining a rolling summary of exercise outcomes
•
Managing exercise program resources
Through effective exercise program management, each exercise becomes a supporting
component of a larger exercise program with overarching priorities. Exercise practitioners are
encouraged to apply and adapt HSEEP doctrine on exercise program management to meet their
specific needs.
Engage Elected and Appointed Officials
Engaging elected and appointed officials in the exercise process is critical because they provide
both the strategic direction for the exercise program, as well as specific guidance for individual
exercises. As representatives of the public, elected and appointed officials ensure that exercise
program priorities are supported at the highest level and align to whole community needs and
priorities. Elected and appointed officials should be engaged early and often in an exercise
program, starting with the development of exercise program priorities at the TEPW. In
developing individual exercises, the exercise planning team should continue to engage their
appropriate elected and appointed officials throughout the exercise planning cycle in order to
ensure the leaders’ vision for the exercise is achieved.
Multi-year Exercise Program Priorities
An exercise program should be based on a set of strategic, high-level priorities selected by an
organization’s elected and appointed officials. These priorities guide the development of
exercise objectives, ensuring that individual exercises build and sustain preparedness in a
progressive and coordinated fashion. Exercise program priorities are developed at the TEPW, as
described in the following sections.
Homeland Security Exercise and Evaluation Program
2-1
Training and Exercise Planning Workshop
Purpose
The TEPW establishes the strategy and structure for an exercise program. In addition, it sets the
foundation for the planning, conduct, and evaluation of individual exercises. The purpose of the
TEPW is to use the guidance provided by elected and appointed officials to identify and set
exercise program priorities and develop a multi-year schedule of exercise events and supporting
training activities to meet those priorities. This process ensures whole community exercise
initiatives are coordinated, prevents duplication of effort, promotes the efficient use of resources,
avoids overextending key agencies and personnel, and maximizes the efficacy of training and
exercise appropriations. TEPWs are held on a periodic basis (e.g., annual or biennial) depending
on the needs of the program and any grant or cooperative agreement requirements.
Participation
When identifying stakeholders, exercise program managers should consider individuals from
organizations throughout the whole community, including but not limited to:
•
Elected and appointed officials responsible for providing direction and guidance for
exercise program priorities and those responsible for providing resources to support
exercises;
•
Representatives from relevant disciplines that would be part of the exercises or any realworld events, including appropriate regional or local Federal department/agency
representatives;
•
Individuals with administrative responsibility relevant to exercise conduct; and
•
Representatives from volunteer, nongovernmental, nonprofit, or social support
organizations, including advocates for children, seniors, individuals with disabilities,
those with access and functional needs, racially and ethnically diverse communities,
people with limited English proficiency, and animals.
Once a comprehensive set of stakeholders has been identified, exercise program managers can
include them in the exercise program by having them regularly participate in TEPWs.
Conduct of the TEPW
When developing exercise program priorities and the multi-year schedule at the TEPW,
stakeholders should engage organizational elected and appointed officials early in the process to
obtain their intent and guidance. TEPW participants also review and consider various factors
such as:
•
Jurisdiction-specific threats and hazards (e.g., Threat and Hazard Identification and Risk
Assessment [THIRA], local risk assessments);
•
Areas for improvement identified from real-world events and exercises;
•
External requirements such as State or national preparedness reports, homeland security
policy (e.g., the National Preparedness Goal), and industry reports; and
•
Accreditation standards (e.g., hospital accreditation requirements), regulations, or
legislative requirements.
Homeland Security Exercise and Evaluation Program
2-2
Figure 2.1 illustrates some of the specific factors for consideration in developing exercise
program priorities.
Figure 2.1: Factors for Consideration in Developing Exercise Program Priorities
Drawing on the above factors and core capabilities, the workshop facilitator leads a group
stakeholder discussion to review exercise program priorities and outline training and exercise
priorities shared across multiple organizations. The group should also develop a multi-year
schedule of training and exercise activities designed to meet those priorities.
At the conclusion of the TEPW, program managers will have a clear understanding of specific
multi-year training and exercise program priorities, and any available information on previously
planned training and exercises that align to those priorities. This combined set of information is
used to develop a multi-year TEP.
Multi-year Training and Exercise Plan
Once the training and exercise program priorities have been outlined, stakeholders develop the
multi-year TEP. The TEP identifies a combination of exercises—along with associated training
requirements—that address the priorities identified in the TEPW.
Progressive Approach
A progressive, multi-year exercise program enables organizations to participate in a series of
increasingly complex exercises, with each successive exercise building upon the previous one
until mastery is achieved. Regardless of exercise type, each exercise within the progressive
series is linked to a set of common program priorities and designed to test associated capabilities.
Homeland Security Exercise and Evaluation Program
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Further, by defining training requirements in the planning process, organizations can address
known shortfalls prior to exercising capabilities.
This progressive approach, with exercises that build upon
each other and are supported at each step with training
resources, will ensure that organizations do not rush into a
full-scale exercise too quickly. Effective planning of
exercises and integration of the necessary training will
reduce the waste of limited exercise resources and serve to
address known shortfalls prior to the conduct of the
exercise. The different types of exercises that may be
included in the multi-year plan are described in the
following sections.
A progressive exercise
program is a series of
exercises tied to a set of
common program priorities.
Each exercise builds on
previous exercises using more
sophisticated simulation
techniques or requiring more
preparation time, personnel,
and planning.
Discussion-Based Exercises
Discussion-based exercises include seminars, workshops, tabletop exercises (TTXs), and games.
These types of exercises can be used to familiarize players with, or develop new, plans, policies,
agreements, and procedures. Discussion-based exercises focus on strategic, policy-oriented
issues. Facilitators and/or presenters usually lead the discussion, keeping participants on track
towards meeting exercise objectives.
Seminars
Seminars generally orient participants to, or provide an overview of, authorities, strategies, plans,
policies, procedures, protocols, resources, concepts, and ideas. As a discussion-based exercise,
seminars can be valuable for entities that are developing or making major changes to existing
plans or procedures. Seminars can be similarly helpful when attempting to assess or gain
awareness of the capabilities of interagency or inter-jurisdictional operations.
Workshops
Although similar to seminars, workshops differ in two important aspects: participant interaction
is increased, and the focus is placed on achieving or building a product. Effective workshops
entail the broadest attendance by relevant stakeholders.
Products produced from a workshop can include new standard operating procedures (SOPs),
emergency operations plans, continuity of operations plans, or mutual aid agreements. To be
effective, workshops should have clearly defined objectives, products, or goals, and should focus
on a specific issue.
Tabletop Exercises
A TTX is intended to generate discussion of various issues regarding a hypothetical, simulated
emergency. TTXs can be used to enhance general awareness, validate plans and procedures,
rehearse concepts, and/or assess the types of systems needed to guide the prevention of,
protection from, mitigation of, response to, and recovery from a defined incident. Generally,
TTXs are aimed at facilitating conceptual understanding, identifying strengths and areas for
improvement, and/or achieving changes in perceptions.
During a TTX, players are encouraged to discuss issues in depth, collaboratively examining
areas of concern and solving problems. The effectiveness of a TTX is derived from the energetic
Homeland Security Exercise and Evaluation Program
2-4
involvement of participants and their assessment of recommended revisions to current policies,
procedures, and plans.
TTXs can range from basic to complex. In a basic TTX (such as a Facilitated Discussion), the
scenario is presented and remains constant—it describes an emergency and brings discussion
participants up to the simulated present time. Players apply their knowledge and skills to a list of
problems presented by the facilitator; problems are discussed as a group; and resolution is
reached and documented for later analysis.
In a more advanced TTX, play advances as players receive pre-scripted messages that alter the
original scenario. A facilitator usually introduces problems one at a time in the form of a written
message, simulated telephone call, videotape, or other means. Players discuss the issues raised
by each problem, referencing established authorities, plans, and procedures for guidance. Player
decisions are incorporated as the scenario continues to unfold.
During a TTX, all participants should be encouraged to contribute to the discussion and be
reminded that they are making decisions in a no-fault environment. Effective TTX facilitation is
critical to keeping participants focused on exercise objectives and associated capability targets.
Games
A game is a simulation of operations that often involves two or more teams, usually in a
competitive environment, using rules, data, and procedures designed to depict an actual or
hypothetical situation. Games explore the consequences of player decisions and actions. They
are useful tools for validating plans and procedures or evaluating resource requirements.
During game play, decision-making may be either slow and deliberate or rapid and more
stressful, depending on the exercise design and objectives. The open, decision-based format of a
game can incorporate “what if” questions that expand exercise benefits. Depending on the
game’s design, the consequences of player actions can be either pre-scripted or decided
dynamically. Identifying critical decision-making points is a major factor in the success of
evaluating a game.
Operations-Based Exercises
Operations-based exercises include drills, functional exercises (FEs), and full-scale exercises
(FSEs). These exercises can be used to validate plans, policies, agreements, and procedures;
clarify roles and responsibilities; and identify resource gaps. Operations-based exercises are
characterized by actual reaction to an exercise scenario, such as initiating communications or
mobilizing personnel and resources.
Drills
A drill is a coordinated, supervised activity usually employed to validate a specific function or
capability in a single agency or organization. Drills are commonly used to provide training on
new equipment, validate procedures, or practice and maintain current skills. For example, drills
may be appropriate for establishing a community-designated disaster receiving center or shelter.
Drills can also be used to determine if plans can be executed as designed, to assess whether more
training is required, or to reinforce best practices. A drill is useful as a stand-alone tool, but a
series of drills can be used to prepare several organizations to collaborate in an FSE.
For every drill, clearly defined plans, procedures, and protocols need to be in place. Personnel
need to be familiar with those plans and trained in the processes and procedures to be drilled.
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Functional Exercises
FEs are designed to validate and evaluate capabilities, multiple functions and/or sub-functions, or
interdependent groups of functions. FEs are typically focused on exercising plans, policies,
procedures, and staff members involved in management, direction, command, and control
functions. In FEs, events are projected through an exercise scenario with event updates that
drive activity typically at the management level. An FE is conducted in a realistic, real-time
environment; however, movement of personnel and equipment is usually simulated.
FE controllers typically use a Master Scenario Events List (MSEL) to ensure participant activity
remains within predefined boundaries and ensure exercise objectives are accomplished.
Simulators in a Simulation Cell (SimCell) can inject scenario elements to simulate real events.
Full-Scale Exercises
FSEs are typically the most complex and resource-intensive type of exercise. They involve
multiple agencies, organizations, and jurisdictions and validate many facets of preparedness.
FSEs often include many players operating under cooperative systems such as the Incident
Command System (ICS) or Unified Command.
In an FSE, events are projected through an exercise scenario with event updates that drive
activity at the operational level. FSEs are usually conducted in a real-time, stressful environment
that is intended to mirror a real incident. Personnel and resources may be mobilized and
deployed to the scene, where actions are performed as if a real incident had occurred. The FSE
simulates reality by presenting complex and realistic problems that require critical thinking,
rapid problem solving, and effective responses by trained personnel.
The level of support needed to conduct an FSE is greater than that needed for other types of
exercises. The exercise site for an FSE is usually large, and site logistics require close
monitoring. Safety issues, particularly regarding the use of props and special effects, must be
monitored. Throughout the duration of the exercise, many activities occur simultaneously.
Rolling Summary of Outcomes
To help ensure that exercise program priorities are adequately
addressed, exercise program managers should periodically develop
and distribute a rolling summary of exercise outcomes, or rolling
summary report. A rolling summary report provides stakeholders
with an analysis of issues, trends, and key outcomes from all
exercises conducted as part of the exercise program. This report is
designed to:
The rolling summary
report is an analysis of
exercise trends, which
guides the development
of future exercises.
•
Inform elected and appointed officials on the progress of the exercise program;
•
Provide data to support preparedness assessments and reporting requirements; and
•
Enable exercise planners to modify objectives and the exercise schedule to reflect
knowledge gathered from the exercises.
The rolling summary report is not a collection of AARs, but rather an analysis of trends across
exercises. It is developed periodically throughout the series of exercises covered in a multi-year
TEP (e.g., quarterly or biennially, depending how many exercises are conducted). This report is
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intended to serve as an exercise program management and communications tool, which informs
stakeholders and guides the development of future exercises.
Manage Exercise Program Resources
An effective exercise program should utilize the full range of available resources. Program
managers should ensure that they have planned for an exercise budget, program staffing, and
other resources.
Exercise Budget Management
Effective budget management is essential to the success of an exercise program, and it is
important for exercise managers to maintain awareness of their available resources and expected
expenditures. In developing and maintaining an exercise program budget, program managers
should work with the full range of stakeholders to identify financial resources and define
monitoring and reporting requirements as required by individual exercises.
Program Staffing
Program managers should identify the administrative and operational staff needed to oversee the
exercise program. The TEP can be one basis for determining exercise program staffing needs in
addition to grant funds or other programmatic considerations. Program managers should also
identify gaps between staffing availability and staffing needs. Exercise program managers can
consider alternative means of procuring staff members, such as adding volunteers, students from
universities (e.g., student nurses or emergency management students), or interns.
Other Resources
Exercise program managers should also consider other resources that can support exercises.
Such resources can include:
•
Information technology (e.g., modeling and simulation capabilities)
•
Exercise tools and resources (e.g., document templates)
•
Materials from previous exercises
•
Training courses
•
Mutual aid agreements, memoranda of understanding, and memoranda of agreement
•
Technical assistance
•
Equipment or props (e.g., smoke machines)
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3. Exercise Design and Development
Overview
In the design and development phase, exercise practitioners use the intent and guidance of their
elected and appointed officials and the exercise program priorities developed in Program
Management to plan individual exercises. Exercise planning teams apply this guidance to shape
the key concepts and planning considerations for an individual exercise or series of exercises.
The eight key steps of exercise design and development include:
•
Setting the exercise foundation by reviewing elected and appointed officials’ guidance,
the TEP, and other factors;
•
Selecting participants for an exercise planning team and developing an exercise planning
timeline with milestones;
•
Developing exercise-specific objectives and identifying core capabilities based on the
guidance of elected and appointed officials;
•
Identifying evaluation requirements;
•
Developing the exercise scenario;
•
Creating documentation;
•
Coordinating logistics; and
•
Planning for exercise control and evaluation.
Exercise practitioners are encouraged to apply and adapt HSEEP doctrine on exercise design and
development to meet their specific needs.
Exercise Foundation
The exercise foundation is a set of key factors that drive the exercise design and development
process. Prior to the beginning of its design, exercise program managers should review and
consider the following items:
•
Elected and appointed officials’ intent and guidance
•
Multi-year TEP
•
Relevant AAR/IPs from real-world events and exercises
•
THIRA or other risk, threat, and hazard assessments
•
Organizational plans and procedures
•
Grant or cooperative agreement requirements.
By reviewing these elements, exercise program managers adhere to the progressive approach to
exercises, and ensure the exercise builds and sustains a jurisdiction’s capabilities while taking
prior lessons learned into account during the exercise design process.
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Exercise Planning Team and Events
Exercise Planning Team Considerations
The exercise planning team manages, and is
Whole community stakeholders include:
ultimately responsible for, exercise design,
All levels of government
development, conduct, and evaluation. Using the
Volunteer organizations
exercise program priorities and guidance from
Community groups
elected and appointed officials, the team determines
Private entities
exercise objectives and core capabilities to be
Nonprofit organizations
assessed; creates a realistic scenario to assess them;
Faith-based groups
and develops supporting documentation, processes,
Groups working with individuals
and systems that are used in evaluation, control, and
with disabilities or access and
simulation. Planning team members also help with
functional needs
developing and distributing pre-exercise materials,
and conducting exercise planning meetings, briefings, and training sessions. An Exercise
Director with authority to make decisions for the sponsoring organization provides direction to,
and oversight of, the exercise planning team.
The exercise planning team should be of manageable size yet represent the full range of
participating organizations as well as other relevant stakeholders. For multi-jurisdictional
exercises, planning team members should include representatives from each jurisdiction and
participating functional areas or relevant disciplines. The membership of an exercise planning
team should be modified to fit the type or scope of an exercise, which varies depending on
exercise type and complexity. Usually the exercise planning team is managed by a designated
team leader. To design and develop exercises most effectively, exercise planning teams should:
•
Adhere to a clear organizational structure, with a distinct chain of command, roles and
responsibilities, and accountability to the exercise planning team leader;
•
Use proven management practices, processes, and tools, such as project plans and
timelines, status reports, and other communications;
•
Identify and understand the desired objectives and associated core capabilities for the
exercise, and design and develop the exercise accordingly;
•
Incorporate evaluation planning from the start of exercise design and development; and
•
Use subject-matter experts (SMEs) to develop a realistic and challenging scenario.
Support agencies/organizations including advocates for children, seniors, individuals with
disabilities, those with access and functional needs, diverse communities, and people with
limited English proficiency should also be included throughout the planning process. In doing
so, exercise planners can better understand their perspectives and promote early understanding of
roles, responsibilities, and planning assumptions.
Generally, planning team members are not exercise players. When resources are limited,
exercise planning team members who act as both planners and players should be especially
careful not to divulge sensitive exercise information to other players.
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Exercise Planning Team Positions
Regardless of the scale and complexity of an exercise, the exercise planning team can be most
effective if it adheres to a coherent organizational structure that clearly delineates roles and
responsibilities. In developing a structure for the planning team, exercise planners may use ICS
principles, as established in the National Incident Management System (NIMS). This structure
can expand or contract to reflect the scope of the exercise and the available resources and
personnel of the participating organizations; depending on available resources, the same
personnel can be used to execute multiple functions. This structure may include the following,
which is illustrated in Figure 3.1:
Figure 3.1: Sample Exercise Planning Team
•
Command Section. The Command Section coordinates all exercise planning activities.
The Command Section includes the exercise planning team leader, who assigns exercise
activities and responsibilities, provides guidance, establishes timelines, and monitors the
development process.
•
Operations Section. The Operations Section provides most of the technical or
functional expertise for scenario development and evaluation. This includes development
of the Master Scenario Events List (MSEL).
•
Planning Section. The Planning Section is responsible for compiling and developing all
exercise documentation. The Planning Section collects and reviews policies, plans, and
procedures that will be assessed in the exercise. This group is also responsible for
planning exercise evaluation. During the exercise, the Planning Section may be
responsible for developing simulated actions by agencies not participating in the exercise
and for setting up a SimCell as required.
•
Logistics Section. The Logistics Section provides the supplies, materials, facilities, and
services that enable the exercise to function smoothly without outside interference or
disruption. This section consists of two subsections: service and support. The service
subsection provides transportation, barricading, signage, food and drinks, real-life
medical capability, and exercise security. The support subsection provides
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communications, purchasing, general supplies, management of very important persons
(VIPs) and observer processing, and recruitment and management of actors.
•
Administration/Finance Section. The Administration/Finance Section provides
financial management and administrative support throughout exercise development,
including exercise registration support and scheduling.
Planning Activities
This section describes the types of planning activities—often in the form of planning
meetings 4—most useful in exercise design and development. The exercise planning team
members decide the type and number of planning activities needed to successfully plan a given
exercise, based on its scope and complexity. When arranging meeting and exercise site
locations, the planning team should take into consideration those individuals who require
assistance or accommodations during attendance.
Concept and Objectives Meeting
Primary Focus
A Concept and Objectives (C&O) Meeting is the formal beginning of the planning process. It is
held to identify the scope and objectives of the exercise. For less complex exercises and for
organizations with limited resources, the C&O Meeting can be conducted in conjunction with the
Initial Planning Meeting (IPM).
Elected and appointed officials, representatives from the sponsoring organization, participating
organizations, and the exercise planning team leader typically attend the C&O Meeting. The
C&O Meeting helps planners determine the exercise program priorities to be addressed based on
elected and appointed officials’ guidance, design objectives based on those priorities, align
exercise objectives to core capabilities, and identify exercise planning team members.
Discussion Points
Topics or issues generally covered during a C&O Meeting include the following:
•
Exercise scope
•
Proposed exercise objectives and their aligned core capabilities
•
Proposed exercise location, date, and duration
•
Participants and anticipated extent of play for exercise participants
•
Exercise planning team
•
Exercise assumptions and artificialities
•
Exercise control and evaluation concepts
•
Exercise security organization and structure
•
Available exercise resources
•
Exercise logistics
4
HSEEP uses the term “meetings” to indicate smaller events focused on a specific topic (exercise planning), rather than “conferences,” which are
generally larger gatherings with broader agendas.
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•
Exercise planning timeline and milestones
•
Local issues, concerns, and sensitivities
Tools
The primary tools for the C&O Meeting are an agenda and the background and rationale for
conducting the exercise. A briefing is useful for presenting the exercise background and
rationale, as well as exercise methodology for persons unfamiliar with HSEEP.
Outcomes
The following outcomes are expected from the C&O Meeting:
•
Agreement regarding exercise concept (scope, type, mission area[s], exercise program
priorities to be addressed), exercise objectives, and aligned core capabilities;
•
Consensus on the target exercise timeframe;
•
Anticipated extent of participation;
•
Identification of exercise planning team members; and
•
Exercise planning timeline with milestones, including the date of the next planning
meeting.
Initial Planning Meeting
Primary Focus
The IPM marks the beginning of the exercise development phase. Regardless of whether a C&O
Meeting is held, an IPM should be conducted for all exercises. Its purpose is to determine
exercise scope by getting intent and direction from elected and appointed officials, and gathering
input from the exercise planning team; and to identify exercise design requirements and
conditions (e.g., assumptions and artificialities), exercise objectives, participant extent of play,
and scenario variables (e.g., time, location, hazard selection). The IPM is also used to develop
exercise documentation by obtaining the planning team’s input on exercise location, schedule,
duration, and other relevant details.
During the IPM, exercise planning team members are assigned responsibility for activities
associated with designing and developing exercise documents, such as the Exercise Plan
(ExPlan) and the Situation Manual (SitMan), and coordinating exercise logistics.
Discussion Points
Topics or issues generally covered during an IPM include the following:
•
Clearly defined exercise objectives and aligned core capabilities;
•
Evaluation requirements, including EEG capability targets and critical tasks;
•
Relevant plans, policies, and procedures to be tested in the exercise;
•
Exercise scenario;
•
Modeling and simulation planning;
•
Extent of play for each participating organization;
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•
Optimum duration of the exercise;
•
Exercise planners’ roles and responsibilities;
•
Decision to record exercise proceedings (audio or video);
•
Local issues, concerns, or sensitivities;
•
Any discussion points typically covered during a C&O Meeting if a C&O Meeting was
not conducted; and
•
Consensus regarding the date, time, and location for the next meeting.
Tools
The primary tools for the IPM are the read-ahead packet, agenda, core capabilities, threat and
hazard information (if applicable), a proposed room layout (if applicable), and the exercise
planning timeline with milestones. A briefing is useful for presenting an overview of the
exercise and meeting discussion points.
Outcomes
The IPM results in desired outcomes, such as:
•
Any outcomes listed in the C&O Meeting section above if a C&O Meeting was not
conducted;
•
Clearly defined exercise objectives and aligned core capabilities;
•
Initial capability targets and critical tasks, which will be reviewed and confirmed prior to
the next planning meeting;
•
Identified exercise scenario variables (e.g., threat scenario, scope of hazard, venue,
conditions);
•
A list of participating exercise organizations and anticipated organizational extent of
play;
•
Draft SitMan or ExPlan;
•
Identification and availability of all source documents (e.g., policies, plans, procedures)
needed to draft exercise documents and presentations;
•
A refined exercise planning timeline with milestones;
•
Identification and availability of SMEs, as necessary, for scenario vetting and/or expert
evaluation;
•
Determination of preferred communication methods among the exercise planning team;
•
Clearly identified and assigned responsibility for exercise logistical issues;
•
A list of tasks to be accomplished by the next planning meeting with established dates for
completion and responsible planning team members identified; and
•
An agreed-upon date, time, and location for the next planning meeting and the actual
exercise.
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Midterm Planning Meeting
Midterm Planning Meetings (MPMs) provide additional opportunities to engage elected and
appointed officials and to settle logistical and organizational issues that may arise during
exercise planning.
Primary Focus
The MPM is a meeting to discuss exercise organization and staffing concepts, scenario and
timeline development, scheduling, logistics, and administrative requirements. It is also held to
review draft documentation. If only three planning meetings are scheduled (i.e., IPM, MPM, and
Final Planning Meeting [FPM]), a portion of the MPM should be devoted to developing the
MSEL, as needed. See the next section, MSEL Meeting, for more information.
Prior to the MPM, the exercise team leader should engage elected and appointed officials to
provide awareness of the planning process, address any questions, and ensure alignment with
guidance and intent.
Discussion Points
Possible topics or issues for an MPM include the following:
•
Comments on draft exercise documentation
•
Construction of the scenario timeline—usually the MSEL—if an additional MSEL
Planning Meeting will not be held
•
Identification of exercise venue artificialities and/or limitations
•
Agreement on final logistical items
•
Assignment of additional responsibilities
Tools
MPM tools include, but are not limited to, an agenda, IPM minutes, draft scenario timeline, draft
documentation (e.g., ExPlan, Controller/Evaluator [C/E] Handbook), and other selected
documentation needed to illustrate exercise concepts and provide planning guidance.
Outcomes
The following outcomes are expected from the MPM:
•
Fully reviewed SitMan or ExPlan;
•
Draft Facilitator Guide or C/E Handbook, including EEGs;
•
A fully reviewed exercise scenario timeline, which is typically the MSEL (if an
additional MSEL Meeting will not be held);
•
Well-developed scenario injects (imperative if an additional MSEL Planning Meeting is
not scheduled);
•
Agreement on the exercise site; and
•
Finalization of date, time, and location of the MSEL Planning Meeting and/or FPM.
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Master Scenario Events List Meeting
For more complex exercises, one or more additional planning meetings—or MSEL Meetings—
may be held to review the scenario timeline. If not held separately, topics typically covered in a
separate MSEL Meeting can be incorporated into the MPM and FPM.
Primary Focus
The MSEL Meeting focuses on developing the MSEL, which is a chronological list that
supplements the exercise scenario with event synopses, expected participant responses,
objectives and core capability targets to be addressed, and responsible personnel. It includes
specific scenario events (or injects) that prompt players to implement the plans, policies,
procedures, and protocols that require testing during the exercise, as identified in the capabilitiesbased planning process. It also records the methods that will be used to provide injects (e.g.,
phone call, radio call, e-mail).
Discussion Points
In developing a MSEL, the exercise planning team should first
consider the critical tasks, conditions, and standards set forth by
each exercise objective. A condition is the environment in which
a task is performed; it can be provided by the scenario or through
the MSEL.
If scenario conditions do not trigger performance of the
appropriate critical task, the exercise planning team should
develop a MSEL entry to simulate the desired situation. A wellwritten entry considers the following questions:
MSEL entries are tied to
the Exercise Evaluation
Guide critical tasks to
ensure the critical tasks
and core capabilities can
be demonstrated during
the exercise.
•
Is the event key (i.e., is it directly related to meeting an exercise objective)?
•
What is the desired critical task? Who will demonstrate the critical task?
•
What will stimulate the behavior (e.g., course of play, phone call, actor, video)?
•
Who originates the stimulant? Who receives it and how?
•
What action is the player expected to complete?
•
Should a contingency entry be developed for injection into the exercise in case the
players fail to demonstrate the critical task?
Tools
MSEL Meeting tools include, but are not limited to, previous planning meeting minutes, draft
exercise documentation, and an agreed-upon MSEL template.
Outcomes
Following a MSEL Meeting, the level of MSEL completion may vary. At a minimum, key
events and the time of their delivery are identified, and responsibility for constructing the
remaining events is assigned.
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Final Planning Meeting
The FPM is the final forum for reviewing exercise processes and procedures. Both before and
after the FPM, the exercise team leader should engage elected and appointed officials to ensure
that the exercise is aligning with their intent, address any questions, and receive any last-minute
guidance.
Primary Focus
An FPM should be conducted for all exercises to ensure that all elements of the exercise are
ready for conduct. Prior to the FPM, the exercise planning team receives final drafts of all
exercise materials. No major changes to the exercise’s design, scope, or supporting
documentation should take place at or following the FPM. The FPM ensures that all logistical
requirements have been met, outstanding issues have been identified and resolved, and exercise
products are ready for printing.
Discussion Points
The following items are addressed during the FPM:
•
Conduct a comprehensive, final review and approve all remaining draft exercise
documents (e.g., SitMan, MSEL, C/E Handbook, EEGs) and presentation materials;
•
Resolve any open exercise planning issues and identify last-minute concerns; and
•
Review all exercise logistical activities (e.g., schedule, registration, attire, special needs).
Tools
The primary tools for the FPM include IPM and/or MPM minutes, an agenda, and previously
finalized and/or drafted exercise documents.
Outcomes
The FPM should not generate any significant changes. The following outcomes are expected:
•
Exercise documents and materials for production are approved;
•
Attendees understand and approve exercise processes and procedures;
•
Last-minute issues are identified and resolved; and
•
Logistical elements, including equipment, facilities, and schedule, are confirmed.
Follow-Up
The exercise planning team finalizes all publications, prepares all supporting materials, rehearses
presentations and briefings, and prepares to conduct the exercise. Prior to the exercise,
documentation and any additional instructions should be disseminated to the appropriate
personnel (e.g., presenters, facilitators, controllers, evaluators, simulators).
Exercise Design
The exercise planning meetings serve as the principal mechanism for executing the major steps
of exercise design. The core components of design include establishing the scope of the
exercise, setting exercise objectives, creating an exercise scenario, developing exercise
documentation, and determining media and public relations guidance.
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Scope
Determining exercise scope enables planners to “right-size” an exercise to meet the objectives
while staying within the resource and personnel constraints of the exercising organizations. Key
elements in defining exercise scope include exercise type, participation level, exercise duration,
exercise location, and exercise parameters. Some of these elements are determined, or initially
discussed, through program management activities or grant requirements. However, the exercise
planning team finalizes the scope based on the exercise objectives. Alterations to the scope are
reviewed with the exercise objectives in mind; planners must consider whether a change in the
scope will improve or impede the ability of players to meet the objectives.
Exercise Type
A first step in defining exercise scope is determining what exercise type to conduct. The
exercise type is selected based on the purpose of the exercise. If the intent is to review and
discuss a new policy, plan, or set of procedures, a discussion-based exercise may be appropriate.
If the intent is to assess the responders’ knowledge of a plan, policy, or set of procedures, an
operations-based exercise may be appropriate.
Participation Level
Active participation by appropriate entities and key leaders is paramount to meeting the exercise
objectives successfully. Participation level refers to the organizations and level of personnel
(e.g., tactical operators, line supervisors, agency directors) participating in the exercise, as well
as the general number of personnel who will participate in the exercise.
At times, scheduling conflicts, real-world events, or other competing requirements will limit an
organization’s or key players’ ability to participate in an exercise. In this case, exercise
designers will need to simulate the decisions and actions of those participants through an
exercise SimCell. An Extent of Play Agreement (XPA) defines the level of participation.
Exercise Duration
When selecting the exercise duration, the planning team should determine how long it will take
to address the exercise objectives effectively. Discussion-based exercises and some drills are
generally shorter, ranging from a couple of hours to a full day. FEs and FSEs may take longer.
Prevention-focused FEs that exercise the intelligence and information sharing core capability
may last up to 30 days with limited duration of play each day. Resource constraints, including
the opportunity cost of having employees away from their primary roles, should be factored into
determining duration.
Exercise Parameters
Exercise parameters clearly outline what should be included in an exercise scenario based on the
objectives and scope, and what should not be exercised. Often there is a desire to add exercise
activities that fall outside of the scope of the exercise in order to meet diverse planning and
training requirements. While these activities may be useful to an organization, they may impact
the ability of players to meet exercise objectives or may reduce the benefit of the exercise by
diluting its focus. Clearly defining the exercise scope early in the design process will help
exercise planners keep the exercise to a manageable and realistic level.
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Exercise Objectives
Based on direction from elected and appointed officials, the exercise planning team selects one
or more exercise program priorities on which to focus an individual exercise. These priorities
drive the development of exercise objectives, which are distinct outcomes that an organization
wishes to achieve during an exercise. Exercise objectives should incorporate elected and
appointed officials’ intent and guidance, and exercise participants’ plans and procedures,
operating environment, and desired outcomes. Generally, planners should select a reasonable
number of specific, measurable, achievable, relevant, and time-bound (SMART) exercise
objectives to facilitate effective scenario design, exercise conduct, and evaluation. Table 3.1
depicts guidelines for developing SMART objectives.
SMART Guidelines for Exercise Objectives
Specific
Objectives should address the five Ws- who, what, when, where, and why. The
objective specifies what needs to be done with a timeline for completion.
Measurable
Objectives should include numeric or descriptive measures that define quantity,
quality, cost, etc. Their focus should be on observable actions and outcomes.
Achievable
Objectives should be within the control, influence, and resources of exercise play
and participant actions.
Relevant
Objectives should be instrumental to the mission of the organization and link to its
goals or strategic intent.
Time-bound
A specified and reasonable timeframe should be incorporated into all objectives.
Table 3.1: SMART Guidelines for Exercise Objectives
The exercise planning team aligns each exercise objective to one or more core capabilities.
Figure 3.2 shows the relationship between exercise program priorities, exercise objectives, and
core capabilities.
Figure 3.2: Priorities, Objectives, and Core Capabilities
Aligning objectives to a common set of capabilities enables:
•
Systematic tracking of progress over the course of exercise programs and/or cycles;
•
Standardized exercise data collection to inform preparedness assessments; and
•
Fulfillment of grant or funding-specific reporting requirements.
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Evaluation Requirements
It is important to develop exercise evaluation requirements early in the design process, as they
will guide development of the exercise scenario, discussion questions, and/or MSEL. Evaluation
requirements clearly articulate what will be evaluated during the exercise and how exercise play
will be assessed. This information is documented in the EEGs.
Once the exercise planning team aligns objectives to core capabilities, it identifies which
capability targets and critical tasks for each core capability are being addressed by the exercise.
Capability targets are the performance thresholds for each core capability; they state the exact
amount of capability that players aim to achieve. Generally, these targets are based on targets
identified as part of an organization’s or jurisdiction’s THIRA or other threat and hazard
identification or risk assessment process. Critical tasks are the distinct elements required to
perform a core capability. Critical tasks may be derived from Mission Area Frameworks,
organizational operations plans or SOPs, or discipline-specific standards.
Scenario
A scenario is an outline or model of the simulated sequence of events for the exercise. It can be
written as a narrative or depicted by an event timeline. For discussion-based exercises, a
scenario provides the backdrop that drives participant discussion, and is contained in a SitMan.
For operations-based exercises, a scenario provides background information about the incident
catalyst(s) of the exercise. The overall scenario is provided in the C/E Handbook, and specific
scenario events are contained in the MSEL.
Exercise planners should select and develop scenarios that enable an exercise to assess objectives
and core capabilities. All scenarios should be realistic, plausible, and challenging; however,
designers must ensure the scenario is not so complicated that it overwhelms players.
A scenario consists of three basic elements: (1) the general context or comprehensive story; (2)
the required conditions that will allow players to demonstrate proficiency and competency in
conducting critical tasks, demonstrating core capabilities, and meeting objectives; and (3) the
technical details necessary to accurately depict scenario conditions and events. The exercise
planning team ensures that the design effort is not characterized by a fixation on scenario
development; rather, the scenario facilitates assessment of exercise objectives and core
capabilities. Because of this, exercise planners should refrain from developing the scenario until
after the scope and objectives of the exercise have been clearly defined. Furthermore, scenarios
should avoid any sensitivity that may arise, such as the use of real names of terrorist groups or
sensitive venues.
Threat or Hazard
The first step in designing a scenario is determining the type of threat or hazard on which the
exercise will focus. Each type of emergency has its own strengths and weaknesses when it
comes to evaluating different aspects of prevention, protection, mitigation, response, and
recovery. The exercise planning team should choose a threat or hazard that best assesses the
objectives and core capabilities on which the exercise will focus. The identification of this threat
or hazard scenario should also be based on the organization’s threat/hazard identification and
risk assessment. 5 Developing and maintaining these risk analyses is an essential component of
5
For further guidance on identifying and assessing risks and associated impacts, please refer to the DHS Comprehensive Preparedness Guide
201: Threat and Hazard Identification and Risk Assessment Guide, First Edition, April 2012.
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the National Preparedness System, as they enable organizations to identify potential events that
would stress their core preparedness capabilities.
Modeling and Simulation
When incorporated into the development of the scenario
Benefits of using modeling and
and overall exercise design, modeling and simulation can
simulation in exercises include:
bring versatility, cost savings, and fidelity to exercises.
Enhanced realism
A model is a representation of a system at a point in time
Efficiency
or space intended to expand an understanding of the real
Ability to exercise situations
system. Simulation is a method of implementing the
that cannot be safely or
performance of a model, or combination of models, over
realistically replicated
time. Modeling and simulation supports decisionmaking processes by providing human and/or computer
feedback to players during exercise play, thus dynamically representing the impact of their
decisions. For example, human-based simulation during exercises is often manifested through
the SimCell, which represents nonparticipating entities. An example of a computer-based
simulation could include wind damage and storm surge forecasting models developed by the
National Oceanic and Atmospheric Administration, which enable simulation of a hurricane’s
effects on coastal communities.
Modeling and simulation can also be applied in situations where reality cannot be achieved. For
example, for safety reasons a bioterrorism exercise cannot be conducted by releasing a deadly
virus into the environment. However, it is still important to exercise the capabilities necessary to
respond to this type of scenario. The use of modeling and simulation can realistically replicate
variables such as disease propagation, radiation, and chemical attacks.
Exercise Documentation
Comprehensive, organized exercise documentation is critical to ensure an accurate account of the
exercise is preserved. This in turn allows organizations to leverage past documentation to
support future exercises and, more importantly, ensures that all critical issues, lessons learned,
and corrective actions are appropriately captured to support improvement efforts.
While most exercise materials are not sensitive or classified, some materials (e.g., scenario
details) may necessitate restrictions on distribution. It is important for the exercise sponsor(s) to
understand the specific requirements for security marking rules and requirements, access and
dissemination, storage, disposal, and incident reporting of sensitive documents.
Consideration should also be given to the accessibility of presentations and documents, such as
making information available in alternative formats (e.g., large print, compact disc, Braille),
closed captioning or another form of text display, or the provision of sign language interpreters.
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Table 3.2 lists the key exercise design and development documents identified by the exercise
type and relevant audience.
Document Title
Exercise Type
Distribution Audience
Situation Manual (SitMan)
Seminar (Optional), Workshop
(Optional), TTX, Game
All Participants
Facilitator Guide
Seminar (Optional), Workshop
(Optional), TTX, Game
Facilitators
Multimedia Presentation
Seminar (Optional), Workshop
(Optional), TTX, Game
All Participants
Exercise Plan (ExPlan)
Drill, FE, FSE
Players and Observers
Controller and Evaluator (C/E)
Handbook
Drill, FE, FSE
Controllers and Evaluators
Master Scenario Events List (MSEL)
Drill, FE, FSE, Complex TTX
(Optional), Game (Optional)
Controllers, Evaluators,
and Simulators
Extent of Play Agreement (XPA)
FE, FSE
Exercise Planning Team
Exercise Evaluation Guides (EEGs)
TTX, Game, Drill, FE, FSE
Evaluators
Participant Feedback Form
All Exercises
All Participants
Table 3.2: Exercise Design and Development Documents
Situation Manual
SitMans are provided for discussion-based exercises as the core documentation that provides the
textual background for a facilitated exercise. The SitMan supports the scenario narrative and
serves as the primary reference material for all participants during conduct.
The introduction provides an overview of the exercise—including scope, objectives and core
capabilities, structure, rules, and conduct—as well as an exercise agenda. The next section of the
SitMan is the scenario, which may be divided up into distinct, chronologically sequenced
modules. Each module represents a specific time segment of the overall scenario, based on
exercise objectives and scenario requirements.
Each module is followed by discussion questions, usually divided by organization or discipline.
Responses to the modules’ discussion questions are the focus of the exercise, and reviewing
them provides the basis for evaluating exercise results. These discussion questions should be
derived from the exercise objectives and associated core capabilities, capability targets, and
critical tasks documented in each EEG.
The SitMan generally includes the following information:
•
Exercise scope, objectives, and core capabilities
•
Exercise assumptions and artificialities
•
Instructions for exercise participants
•
Exercise structure (i.e., order of the modules)
•
Exercise scenario background (including scenario location information)
•
Discussion questions and key issues
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•
Schedule of events
SitMan reference appendices may include, but are not limited to:
•
Relevant documents regarding plans, SOPs, etc.
•
Jurisdiction- or organization-specific threat information
•
Material Safety Data Sheet 6 or agent fact sheet, when applicable
•
A list of reference terms
Facilitator Guide
A Facilitator Guide is designed to help facilitators manage a discussion-based exercise. It
usually outlines instructions and key issues for discussion during the event and provides
background information to help the facilitator answer questions from participants or players.
This guide may also include an evaluation section that provides evaluation staff members with
guidance and instructions on evaluation or observation methodology to be used as well as
essential materials required to execute their specific functions.
Multimedia Presentation
Multimedia presentations are often used to illustrate the general scenario for participants. They
are given at the Start of Exercise (StartEx) and support the SitMan. The presentation should
concisely summarize information contained in the written documentation. Like the SitMan, the
multimedia presentation is also divided into distinct, chronologically segmented modules that,
when combined, create the entire scenario.
This presentation typically contains, at a minimum, the following information:
•
Introduction
•
Exercise scope, objectives, and core capabilities
•
Exercise play rules and administrative information
•
Modules that describe the scenario
The presentations are intended to help focus and drive the exercise as well as add realism. A/V
enhancements to a presentation include video or sounds that convey information to participants.
Exercise Plan
ExPlans are general information documents that help operations-based exercises run smoothly by
providing participants with a synopsis of the exercise. They are published and distributed to the
participating organizations following development of most of the critical elements of the
exercise. In addition to addressing exercise objectives and scope, ExPlans assign activities and
responsibilities for exercise planning, conduct, and evaluation. The ExPlan is intended to be
seen by the exercise players and observers—therefore, it does not contain detailed scenario
information that may reduce the realism of the exercise. Players and observers should review all
elements of the ExPlan prior to exercise participation.
6
Material Safety Data Sheet (MSDS) or Product Safety Data Sheet (PSDS) is intended to provide emergency personnel with procedures for
handling or working with a substance in a safe manner and includes information such as toxicity, health effects, first aid, storage, disposal,
protective equipment, and handling procedures.
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An ExPlan typically contains the following sections:
•
Exercise scope, objectives, and core capabilities
•
Participant roles and responsibilities
•
Rules of conduct
•
Safety issues, notably real emergency codes and phrases, safety controller
responsibilities, prohibited activities, and weapons policies
•
Logistics
•
Security of and access to the exercise site
•
Communications (e.g., radio frequencies or channels)
•
Duration, date, and time of exercise and schedule of events
•
Maps and directions
Player Handout
The Player Handout provides key information to exercise players. A Player Handout can
supplement the SitMan or ExPlan by providing a quick-reference guide to logistics, agenda or
schedule, and key contact data for players.
Controller and Evaluator Handbook
The C/E Handbook describes the roles and responsibilities of exercise controllers and evaluators
and the procedures they should follow. Because the C/E Handbook contains information about
the scenario and about exercise administration, it is distributed to only those individuals
designated as controllers or evaluators. The C/E Handbook may supplement the ExPlan or be a
standalone document. When used as a supplement, it points readers to the ExPlan for more
general exercise information, such as participant lists, activity schedules, required briefings, and
the roles and responsibilities of specific participants. Used as a standalone document, it should
include the basic information contained in the ExPlan, and detailed scenario information.
The C/E Handbook usually contains the following sections:
•
Assignments, roles, and responsibilities of group or individual controllers and evaluators
•
Detailed scenario information
•
Exercise safety plan
•
Controller communications plan (e.g., a phone list, a call-down tree, instructions for the
use of radio channels)
•
Evaluation instructions
The Controller portion of the C/E Handbook, sometimes known as Control Staff Instructions
(COSIN), provides guidelines for control and simulation support and establishes a management
structure for these activities. This section provides guidance for controllers, simulators, and
evaluators on procedures and responsibilities for exercise control, simulation, and support. The
Evaluation portion of the C/E Handbook, sometimes known as the EvalPlan, provides evaluation
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staff members with guidance and instructions on evaluation or observation methodology to be
used, as well as essential materials required to execute their specific functions.
Controller and Evaluator Packets
While C/E Handbooks contain detailed information that should be read and understood well in
advance of the exercise, Controller Packets and Evaluator Packets are provided immediately
prior to an exercise to controllers and evaluators respectively. The packets contain key
information from the C/E Handbook and additional information specific to the functional area in
which the given controller or evaluator will be working. This information is needed during
exercise play in order to carry out control and evaluation responsibilities.
Both Controller Packets and Evaluator Packets should contain the following:
•
Essential C/E Handbook information
•
Ground truth document, detailing key elements of the exercise scenario (primarily used
for prevention-focused exercises)
•
MSEL, including injects and events for each responsible controller and evaluator
•
Appropriate EEGs
•
Maps and directions
Master Scenario Events List
A MSEL is typically used during operations-based or complex discussion-based exercises and
contains a chronological listing of the events that drive exercise play. Each MSEL entry should
contain the following at a minimum:
•
Designated scenario time
•
Event synopsis
•
Controller responsible for delivering the inject, with controller or evaluator special
instructions (if applicable)
•
Intended player (i.e., agency or individual player for whom the MSEL event is intended)
•
Expected participant response (i.e., player response expected upon inject delivery)
•
Objective, core capability, capability target, and/or critical task to be addressed (if
applicable)
•
Notes section (for controllers and evaluators to track actual events against those listed in
the MSEL, with special instructions for individual controllers and evaluators)
Scenario timelines listed in a MSEL should be as realistic as possible and based on input from
SMEs. If the activity occurs sooner than the MSEL writers anticipated, then controllers and
evaluators should note the time it occurred, but play should not be interrupted.
Controllers delivering MSEL injects will either be co-located with players in the venue of play,
or they will reside in a SimCell. A SimCell is a location from which controllers deliver
messages representing actions, activities, and conversations of an individual, agency, or
organization that is not participating in the exercise but would likely be actively involved during
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a real incident. Prior to StartEx, the mechanisms for introducing injects into exercise play should
be tested to ensure that controllers are aware of the procedures for delivering MSEL injects and
that any systems that will be used to deliver them are functioning properly.
The three types of descriptive MSEL events that support exercise play include:
1. Contextual injects introduced to a player by a controller help build the exercise operating
environment and/or keep exercise play moving. For example, if the exercise is designed
to test information-sharing capabilities, a MSEL inject can be developed to direct an actor
to portray a suspect by behaving suspiciously in front of a law enforcement player.
2. Expected action events reserve a place in the MSEL timeline and notify controllers when
a response action would typically take place. For example, during an FSE involving a
chemical agent, establishing decontamination is an expected action that the players will
take without the prompting of an inject.
3. Contingency injects are provided by a controller or simulator to players to ensure play
moves forward to adequately evaluate performance of activities. For example, if a
simulated secondary device is placed at an incident scene during a terrorism response
exercise, but is not discovered, a controller may want to prompt an actor to approach a
player and state that he or she witnessed suspicious activity close to the device location.
This should prompt the responder to discover the device, resulting in subsequent
execution of the desired notification procedures.
MSELs are typically produced in long formats, short formats, or both. Short-form MSELs
usually list injects in a single row in a spreadsheet format. These can be used as a quickreference guide during exercise play or projected onto a large screen in a control cell or SimCell.
Long-form MSELs are used when greater detail is necessary; they include more detailed
descriptions, exact scripting language for actors and simulators, and more detailed descriptions
of expected actions.
Extent of Play Agreements
XPAs can be used to define the organizations participating in the exercise as well as their extent
of play (e.g., one fire station for 8 hours, county Emergency Operations Center [EOC] activated
at level A for 24/7 exercise operations). These agreements are formed between exercise
participants and the exercise sponsor, and can be vital to the planning of an exercise, recruitment
of evaluators, and development of support requirements.
Exercise Evaluation Guides
EEGs are intended to help evaluators collect relevant exercise observations. These documents
are aligned to objectives, and document the related core capability, capability target(s), and
critical tasks. Each EEG provides evaluators with information on what they should expect to see
demonstrated or hear discussed. For more information on EEGs, see Chapter 5: Evaluation.
Participant Feedback Form
At the end of an exercise, participants may receive a Participant Feedback Form that asks for
input regarding observed strengths and areas for improvement that players identified during the
exercise. Providing Participant Feedback Forms to players during the exercise wrap up activities
allows them to provide their insights into decisions made and actions taken. A Participant
Feedback Form also provides players the opportunity to provide constructive criticism about the
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design, control, or logistics of the exercise to help enhance the planning of future exercises. At a
minimum, the questions on the Participant Feedback Form solicit the following:
•
Strengths and areas for improvement pertaining to the implementation of participating
agencies and organizations’ policies, plans, and SOPs; and
•
Impressions about exercise conduct and logistics.
Information collected from feedback forms contributes to the issues, observations,
recommendations, and corrective actions in the AAR/IP. Feedback forms can be supplemented
by the conduct of a Hot Wash immediately following the exercise, during which facilitators,
controllers, and evaluators capture participant perspectives on the key strengths and areas for
improvement identified during the exercise.
Waiver Forms
Each actor should receive a waiver form prior to the exercise. Signing this form waives liability
for all exercise planners and participants. Exercising entities should use discretion when
recruiting actors under the age of 18 because of additional challenges and concerns related to
liability. If the exercise requires volunteers younger than 18-years-old, parents or legal
guardians must sign their waiver forms.
Weapons and Safety Policy
All exercises, where applicable, should employ a written weapon and safety policy that is in
accordance with applicable State or local laws and regulations. Exercise sponsors should
coordinate the application of this policy with the appropriate safety and/or legal departments as
necessary.
Media or Public Affairs Guidance
Members of the media have the unique ability to fulfill an important function before, during, and
after an exercise. Prior to an exercise, they inform the public that an exercise will take place, and
raise public awareness that the community is preparing for disasters. During an exercise, they
can facilitate the validation of public information plans and procedures. Following an exercise,
the media may release details to the host community on the state of its preparedness, if the
exercise planning team leader provides such information. Therefore, exercise sponsors should
work to incorporate media-related issues into exercise planning.
Press Release
Prior to an exercise, the exercise planning team should develop a written press release to
disseminate to media outlets, including web-based and/or social media outlets, as appropriate.
This release informs the media and the public about general exercise information. Additionally,
this information can be distributed to observers, elected and appointed officials, and other VIPs.
This release should not contain detailed scenario information, such as the type of threat or
hazard, nor should it contain information that might hinder meeting exercise objectives if a
participant were to see it.
Typically, the contents of a media or public information release include the following:
•
Introduction, including sponsor and exercise program information
•
Exercise scope and objectives
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•
General scenario information
•
Participating agencies or disciplines
Public Announcement
Public announcements should be made prior to any exercise involving public space or space that
will be viewable by the public. This precaution helps avoid confusion on the part of the public.
It will also help the public avoid congestion near the exercise site by providing suggestions for
alternate routes. Announcements can be made through local media, through mass mailings or
pamphlets, and/or on signs near the exercise site.
Media Policy
The agency or organization sponsoring the exercise should decide whether to invite media
representatives to the exercise. If invited, media representatives should have an opportunity
prior to the exercise to conduct interviews with key planners and participants.
At discussion-based exercises, media representatives should not be present during the discussion
of any potentially sensitive information, and filming exercise conduct should be avoided so as
not to inhibit or hinder discussion or the flow of play.
During operations-based exercises, media representatives may be allowed to film certain
activities but should be cautioned not to interfere with exercise play or film any sensitive
operations. Unless media representatives are invited to participate in the exercise, a guide—
typically a public information officer or designee—should escort media representatives at all
times. If mock media or exercise controllers simulating the real-world media are employed
during an exercise to test public affairs training, they should be kept completely separate from
any real-world media representatives who may be observing the exercise.
Exercise Development
Exercise development involves planning for the critical elements of exercise conduct: logistics,
control, and evaluation.
Planning for Exercise Logistics
Logistical details are important, but often overlooked, aspects of an exercise. They can make the
difference between a smooth, seamless exercise and one that is confusing or even unsafe.
Venue
Facility and Room
Meetings, briefings, and exercises should be conducted in facilities that are appropriate for the
exercise scope and attendance. Planners should also ensure that all environmental and historical
preservation documentation is completed if required. Facilities should be reserved solely for
exercise purposes and should be accessible to all participants and free from distractions.
When selecting a facility and room for exercise planning or conduct, planners should account for
the following considerations:
•
Ensure there are enough tables and chairs for every relevant participant.
•
Arrange tables to best suit the meeting or exercise (e.g., U-shaped layout for exercises
requiring facilitation and participant interaction).
Homeland Security Exercise and Evaluation Program
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•
Select a facility with room acoustics that facilitate ease of discussion.
•
Select a facility with accessibility of parking and restrooms for all participants.
Audio/Visual Requirements
A/V requirements are identified during the design phase including individuals assigned to ensure
equipment is properly functioning.
Supplies, Food, and Refreshments
Exercise planners should not assume participants will bring necessary supplies with them.
Writing utensils, notepads, easels, copies of plans and procedures, name badges, and any other
equipment deemed necessary should be procured prior to exercise conduct and provided to
participants.
The exercise planning team should also consider whether food and refreshments can be provided
for participants and observers, in accordance with applicable funding guidance or venue policies.
For discussion-based exercises, it is often beneficial to have a working lunch provided to
minimize disruption to play. For operations-based exercises, hydration of participants is an
important consideration.
Badging and Identification
For security purposes, all exercise participants should wear some form of identification.
Although some players may wear their uniform…
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