A Guide To Developing Hazardous Material Exercises. An Instructional Manual DES CALIFORNIA. Governors Of1jceof Emergency Services.

Transcription

1 '--/ A Guide To Developing Hazardous Material Exercises An Instructional Manual DES CALIFORNIA * Governors Of1jceof Emergency Services Prepared by California Office of Emergency Services Hazardous Material Division Dr. Sangat Kals Principal Author Gerald R. Schimke, Chief Hazardous Material Division Prepared pursuant to a grant funded by the U.S. Environmental Protection Agency Chemical Emergency Preparedness and Prevention Office Office of Solid Waste and Emergency Response Pete Wilson Governor Richard Andrews, Ph.D. Director

2 ,'--" Publishing Information February 1993 Guide to Developing Hazardous Material Exercises - An Instructional Manual Produced by: California Governor's Office of Emergency Services, Hazardous Material Division Funded by: U.S. EPA, Chemical Emergency Preparedness & Prevention Office '--" Sangat S. Kals, Ph.D.(London), Ph.D.(India), Principal Author Paul Penn, Editor Carolyn Hay & Associates, Technical Advisor The author wishes to thank the following people for assistance, input, and review in the preparation of this document: Gene Bailard, Technical Assistance Team, U.S. EPA, Region IX Bruce Baird, California Specialized Training Institute Eileen Baumgardner, California Office of Emergency Services Forest Craig, San Rafael Fire Department Ethel De Marr, Arizona Division of Emergency Services Doug Erway, California Specialized Training Institute Tom Fante, California Office of Emergency Services Nancy Hardaker, California Office of Emergency Services Jim Hunt, California Office of Emergency Services Jeffinglis, U.S. Environmental Protection Agency, Region IX William Keffer, U.S. Environmental Protection Agency, Region VII Roy Manning, California Office of Emergency Services Bill Patterson, Federal Emergency Management Agency, Region IX Jeff Paullus, California Specialized Training Institute Bryan Pearson, Los Angeles Fire Department Jerry Schimke, California Office of Emergency Services Tom Smith, Federal Emergency Management Agency Pat Steinmetz, California Office of Emergency Services Becky Wagoner, California Office of Emergency Services Cover design prepared by Norman Wobschall and Sangat Kals For a copy/disk of the manual, contact California DES, HAZMA T Division at (916) '--" II

3 STATE OF CALIFORNIA PETE WILSON, Governor OFFICE OF EMERGENCY 2800 MEADOWVIEW ROAD SACRAMENTO, CALIFORNIA (916) FAX: SERVICES DES CALIFORNIA * California OI1Jreof Em<rgmcy - Dear Hazardous Material Exercise Designers: This instructional manual, and the accompanying video, were developed to facilitate the design and delivery of hazardous material exercises. Short of real events, exercises are the best way to train responders and identify capability shortfalls in an emergency management organization. This project was made possible by an innovative grant awarded by the U.S. Environment Protection Agency (EP A) Chemical Emergency Preparedness and Prevention Office. Our thanks go to John Gustafson at U.S. EP A headquarters and Jefflnglis of the U.S. EPA Region IX Office of Health and Emergency Planning for the grant and their continued support for this important endeavor. In order to ensure that this project reflects practical needs, and to provide material for the video, the Local Emergency Planning Committees in the California Office of Emergency Services Regions I and IV were requested to designate an urban and rural community, respectively, to sponsor hazardous material exercises. Orange and Placer counties graciously hosted the exercises and provided valuable support. In an unusual coincidence, the primary contacts in these jurisdictions were Captain Mike Boyle, Orange County Fire Department and Mike Boyle, Assistant Director of the Placer County Office of Emergency Services. We extend our appreciation to them and all of the multiple disciplines and jurisdictions who participated with such commitment and enthusiasm in the exercises and exercise design process. This project supported delivery of an Exercise Design Course from the California Exercise Assistance Program. The course provided instruction and an actual jurisdictional HAZMAT scenario exercise, enhancing production of this manual and video. Carolyn Hay of Carolyn Hay and Associates was contracted by Doug Erway of the California Specialized Training Institute, to act as course manager for the course. Ms Hay also served as technical consultant and was instrumental in clarifying Issues. This project was nurtured by Dr. Sangat Kals, Senior Hazardous Material Specialist in the Hazardous Material Division of the Governor's Office of Emergency Services. He carried the manual and video from its inception to the final product. Without him, this project would not have become a reality. If users of this manual and video are better able to protect the public health and safety and the environment through successful hazardous material exercises, they have Dr. Kals to thank. III

4 The peer comments were critical to ensuring that the final product is succinct, accurate, appropriate, and user-friendly. The know ledge and insight of many people who assisted in this project cannot be overestimated. I urge you to make good use of this manual and video in preparing exercises for your community or organization. Lessons learned and addressed as part of an exercise process are harsh realities that can be avoided during and after an actual release of hazardous materials. Sincerely, 4L- RICHARD ANDREWS, Ph.D. Director Governor's Office of Emergency Services Chair Chemical Emergency Commission Planning and Response IV

5 ' / Table of Contents I INTRODUCTION 1 Purpose and scope General 1 1 II TYPES OF EXERCISES 3 Tabletop exercise Functional exercise Full-Scale exercise III GETTING STARTED 7 Select and appoint an exercise design team Conduct exercise needs assessment Review emergency plans Address fiscal considerations Determine ability to design and conduct exercise Develop a statement of exercise purpose Select the type and scale of exercise Develop goals and objectives for the exercise Solicit and secure executive support IV DESIGNING THE EXERCISE 21 Establish elements of the incident to be simulated Develop exercise simulation materials: ScenariolNarrative Master sequence of events list Messages Identify positions and designate personnel for conducting the exercise Identify exercise players Establish ground rules for conduct of the exercise Plan exercise logistics Select site for the exercise Plan for site control and safety v

6 v SETTINGTHE STAGE 39 Site preparation Pre-exercise training VI CONDUCTING THE EXERCISE 43 Exercising Exercise termination VII EVALUATION AND POST-EXERCISE ACTIVITIES 45 Formal evaluation Post-exercise critique After action report Exercise follow-up APPENDIX A EXERCISE CONTROL TEAM 57 APPENDIX B EXERCISE DESIGN TEAM PLANNING CHECKLISTS: 61 TABLETOP EXERCISE 61 FUNCTIONAL EXERCISE 62 FIELD/FULL-SCALE EXERCISE 65 APPENDIX C HAZARDOUS MATERIALS IN CALIFORNIA 71 APPENDIX D SUMMARY OF ORANGE AND PLACER COUNTY EXERCISES 77 APPENDIX E INCIDENT COMMAND SYSTEM 89 APPENDIX F COMPUTER-AIDED MANAGEMENT OF EMERGENCY OPERATIONS 95 APPENDIX G REFERENCES 99 VI

7 Tables 1 Sample Exercise Plan Format 9 2 Planning Milestones 10 3 Exercise Design Time and Cost Sheet 14 4 Sample Memo to Secure Executive Support 17 5 Sample Memo of Executive Support 18 6 Sample Executive Directive 19 7 Sample Narrative 23 8 Sample Sequence of Events 24 9 Sample Ground Rules for a Tabletop Exercise Sample Safety Guidelines Community Alert Notice Format Press Release Format Evaluator Observation Sheet Evaluator's Checklist Exercise Critique Sheet Outline for Memo on Exercise Follow-up Action 55 Vll

8 Figures 1 California's Local Emergency Planning Districts 73 2 Exercise Location Map, Orange County 78 3 Aerial Pictures of Irvine Ranch Water District, Orange County 80 4 Chlorine-Diesel Release Incident, Orange County 82 5 Exercise Design Team, Orange County 83 6 Anhydrous Ammonia-Diesel Release Incident, Placer County 85 7 Incident Command System Organizational Flow Diagram 94 Vlll

9 ' / \" Abbreviationsf Acronyms ' / AA ALOHA ARCHIE CAER CAMEO CCR CEPRC CERCLA CFR CHEMTREC CHMIRS CHP CMA CSTI CWA DOT EDT EMI EOC EPCRA EX-PLAN FEMA HAZCAT HAZMAT HEAR NET HMICP HMTA HMTUSA ICS IDLH LEPC MHFP MSDS MSEL NRT OSHA PIO RCRA SCBA SERC Administering Agency Areal Locations of Hazardous Atmospheres Automated Resource for Chemical Hazard Incident Evaluation Community Awareness and Emergency Response Computer-Aided Management of Emergency Operations California Code of Regulations Chemical Emergency Planning and Response Commission Comprehensive Environmental Response Compensation and Liability Act Code of Federal Regulations Chemical Transportation Emergency Center California Hazardous Material Incident Reporting System California Highway Patrol Chemical Manufacturers Association California Specialized Training Institute Clean Water Act Department of Transportation Exercise Design Team Emergency Management Institute Emergency Operations Center Emergency Planning and Community Right-to-Know Act Exercise Plan Federal Emergency Management Agency Hazard Characterization Hazardous Materials Hospital Emergency Alert Radio Network Hazardous Material Incident Contingency Plan Hazardous Material Transportation Act Hazardous Material Transportation Uniform Safety Act Incident Command System Immediately Dangerous to Life and Health Local Emergency Planning Committee Multi-Hazard Functional Plan Material Safety Data Sheet Master Sequence of Events List National Response Team Occupational Safety and Health Administration Public Information Officer Resource Conservation and Recovery Act Self-Contained Breathing Apparatus State Emergency Response Commission IX

10 SP TSCA TRANSCAER US EPA Southern Pacific Toxic Substances Control Act Transportation Community Awareness and Emergency Response United States Environmental Protection Agency / x

11 I. Introduction Purpose and scope This manual will assist both government and non-government personnel to design, develop, conduct, and evaluate hazardous material exercises. It addresses specific planning considerations, challenges, and opportunities involved in conducting hazardous material exercises in urban and rural environments, including:. The use of a common organizational structure (e.g., Incident Command System [ICS]) and terminology during hazardous material exercises and incidents.. The use of an electronic data management system (e.g., Computer-Aided Management of Emergency Operations [CAMEO]) during hazardous material exercises and incidents.. The importance of lessons learned to improve hazardous material emergency response capabilities. The manual applies basic standards, approaches, and concepts of the Federal Emergency Management Agency, U.S. Environmental Protection Agency and other members of the National Response Team for the exercise process. Additionally, it applies practical lessons learned from two exercises conducted in California in Orange and Placer Counties (See Appendix D). The manual provides an easy-to-use format and is intended for anyone with the responsibility to design, conduct, and evaluate hazardous material exercises. This manual has been prepared in conjunction with an instructional video on planning, designing, conducting, and evaluating hazardous material exercises. The manual and video are designed to be used together but may also be used as stand-alone products. Both manual and video have been produced by the Hazardous Material Division staff of the California Office of Emergency Services, with the cooperation and assistance of the California Specialized Training Institute (CSTI), pursuant to a technical assistance grant awarded by the U.S. Environmental Protection Agency (EPA), Chemical Emergency Preparedness and Prevention Office. General Emergency preparedness includes the related activities of planning, training, and exercising. Once an emergency plan has been developed and personnel familiarized with its provisions, it is exercised to identify its strengths and weaknesses and to provide practical and realistic training for emergency responders. Hazardous material exercises are usually more complex than those for natural disasters. The variety of chemicals involved and their potential impacts on human health and the I

12 environment require additional technical assistance and a multidisciplinary and multifunctional response. Several laws (federal, state, local) mandate hazardous materials emergency planning. In 1985, California enacted Chapter 6.95 of the California Health and Safety Code, establishing one of the first emergency planning and community right-to-know programs for industry. In 1986, the federal Comprehensive Environmental Response, Compensation, and Liability Act (CERCLA) of 1980 was amended by the Superfund Amendments and Reauthorization Act (SARA), Title III, to require similar planning and right-to-know provisions for government and industry. See Appendix C for details of these provisions and requirements for emergency response exercises. ---/ 2

13 II. Types of Exercises An emergency response exercise is a training activity involving representatives from appropriate departments, agencies, and organizations in a simulated emergency situation. These exercises range from a simple orientation seminar, familiarizing participants with their roles and responsibilities, to a complex and rigorous field/fullscale exercise evaluating the emergency response plan and capabilities of the jurisdiction. The scope of an exercise relates to components such as: Number of emergency management functions to be exercised Agencies involved Kinds of equipment and personnel involved Degree of realism. Hazard, and. Geographic area. ' / Emergency managers use a hierarchy of exercise types to assess their capabilities and adequacy of response plans. The choice of exercise type depends on the current skill level of staff, their familiarity with the emergency plan, and the organization's training goals. This manual addresses the tabletop, functional, and field/full-scale exercises, commonly associated with emergency preparedness programs. Tabletop exercise A tabletop exercise is an activity in which elected or appointed officials and key staff with emergency management responsibilities are gathered together informally to discuss various simulated emergency situations. A tabletop exercise is designed to elicit constructive discussion by the participants without time constraints as they examine and then attempt to resolve problems based on existing Emergency Operations Plans. The intent of the "Tabletop" is to allow participants to evaluate plans and procedures and to resolve questions of coordination, assignment of responsibilities, interaction between agencies, etc., in a nonthreatening environment and under minimal stress. Tabletop exercises may be used in preparation for a functional or field exercise. Typically, a tabletop exercise has the following characteristics: It is discussion based. It is not constrained to real time situations.. It may use written or verbal messages and other methods to portray simulated events. It does not involve the actual movement of material and personnel.. It uses a facilitator or moderator. 3

14 . It is often conducted in a conference room or Emergency Operation Center (EOC) setting. Functional exercise A functional exercise is designed to focus on testing, under simulated conditions, the policies, procedures, roles and responsibilities of individual or multiple emergency functions either before, during or after any emergency period. A functional exercise is more extensive than a tabletop exercise in that activities are conducted beyond a conference room atmosphere. It usually takes place in some type of EOc. ' / The functional exercise is to evaluate response capabilities of personnel and systems relative to the selected function(s). The exercise might be centered in one or more EOCs or command posts and could involve (or simulate) the use of limited outside activity and resources. The level of resources mobilized should be adequate to demonstrate the direction and control operations in response to the simulated emergency. A functional exercise has the following characteristics:. It uses written and verbal messages, telephones, radios, and other means to portray simulated events. It is conducted on a real-time basis. It is driven by participant reaction and decisions. It uses controllers and simulators to regulate and define exercise play. It does not involve the actual movement of material and personnel.. It is often conducted in an EOC setting. Full-Scale exercise A full-scale exercise is used to evaluate the operational capability of emergency management systems in an interactive manner over a substantial period of time. The full-scale exercise tests most of the functions in an emergency plan. A full-scale exercise incorporates a high degree of realism, extensive involvement of resources and personnel, and higher level of stress than do the tabletop and functional exercises. This type of exercise includes mobilization of personnel and resources to many sites (e.g. state and local EOCs, incident command posts, mass care centers, medical facilities, equipment staging areas) and the actual movement of emergency personnel, equipment, and resources. A full-scale exercise has the following characteristics: 4 It is based on real events and real time simulated emergency situations. It involves actual movement of material and personnel.. It uses messages, props, and special effects to simulate emergency conditions.. It is event and response activity driven.

15 . It uses controllers and simulators to regulate exercise play.. It is conducted in a field and/or EOC setting. Note: For the purpose of this manual, an exercise that involves the movement of material and personnel is considered a field exercise. EOC activation with field activities is called a full-scale exercise. 5

16 ' / III. Getting Started Planning for a hazardous material exercise begins with preparing a checklist (see Appendix B) containing steps required to design, conduct, and evaluate the exercise. The checklist is intended to provide organization for the design team in developing the exercise planning milestones and guidelines. An "Exercise Plan" (Explan) should be developed to ensure complete planning for the exercise. An "exercise plan format" and an "exercise planning milestone format" commonly used by FEMA and CSTI are provided in Tables I and 2, respectively. The following guidelines provide general exercise development steps. The order in which these steps are presented is for example purposes and may be modified, tailored, or expanded by an exercise design team based on its needs and priorities. [] Select and appoint an exercise design team ' / The exercise design team (EDT) assists in planning the exercise, and developing the exercise content and procedures (e.g., exercise objectives, scenario, master sequence of events list, exercise messages). The team may consist of members from local, state, and federal agencies, private organizations, and the Local Emergency Planning Committee. The team may also require technical experts to advise the team on technical issues, such as chemical profiles of hazardous materials, cumulative and adverse health effects of hazardous materials, etc. Typically an EDT should consist of a team leader or coordinator, team members, and a secretary. The team leader/coordinator should have a knowledge of exercises, a multidisciplinary perspective, and an ability to delegate responsibility. At a minimum, team participants should: Be familiar with their agency's responsibilities and capabilities. Work well in a team environment. Be willing and able to commit adequate time and resources.. Participate in the exercise as simulators and controllers, not players. ' / The efficiency of a team can be enhanced through the use of an effective organizational structure. One such organizational structure commonly used in emergency response incidents and exercises is called the Incident Command System (ICS). Refer to Appendix E of this manual for details about the ICS and Appendix D for the exercise planning organization structure for Orange County. 7

17 [] Conduct exercise needs assessment Assessing what is needed to conduct an effective exercise includes identifying the components of the emergency management system that would benefit from the exercise, including the following:. Available resources: Identify resources (local, state, federal, and private) available to respond to expected emergencies. Also note if mutual aid agreements exist.. Policies, procedures,and guidance: Identify existing standard operatingprocedures,reportingrequirements,notificationprocedures,and warningsystemprotocols.. Logistics: Determine required communications equipment (telephones, radios, cellular phones), maps, and displays, etc.. Required knowledge/training: Determine the level of knowledge/ training of the EDT. Members of the EDT may need preparatory information on elements of the exercise process including, scenario preparation, ICS, and simulation techniques.. Types of hazards existing in the community: For a realistic hazardous material exercise, it is important to identify chemical hazards actually present in the community (i.e., a hazardous material/waste facility or a transportation route). Determine the types and quantities of chemicals manufactured, stored, treated, or transported, and their possible health effects. Locations at or near an earthquake fault, or flood plain, or vulnerable to tornadoes or other natural or technological disasters which could trigger the release of hazardous materials should be considered. Identifying chemical hazards may be complex and time consuming. It is recommended that the EDT review existing material such as "Hazard Analysis," "The Capability and Hazard Identification Plans" to avoid expending substantial resources. Please refer to the following checklist for identifying hazards related to chemicals. Hazard identification checklist [] Identify most frequently produced, used, stored, and transported hazardous materials within the jurisdiction. [] Determine the quantity of each hazardous material. [] Identify storage locations and commonly used transportation routes by facilities dealing with chemicals. [] Identify nature of the hazard (e.g., airborne, fire, explosion, etc.) 8

18 Table 1 Sample Exercise Plan Format Table of Contents Page I. BACKGROUND/GENERAL/GOALS..... II. CONCEPT AND OBJECTIVES III. EXERCISE ASSUMPTIONS AND ARTIFICIALITIES... IV. TASKS... V. REFERENCES... VI. EXERCISECONTROL... VII. EVALUATION... VIII. COMMUNICATIONS... Ix. SECURITY... X. REPORTS... XI. INFORMATION... XII. INSTRUCTIONS TO PARTICIPANTS......,--. ANNEX A: PLANNING MILESTONES ANNEX B: EXERCISE SCENARIO APPENDIX 1- NARRATIVE APPENDIX 2 -MSEL APPENDIX 3 -MESSAGES ANNEX C: PARTICIPANTS (ROSTER) ANNEX D: MEDIA PLAN ANNEX E: ADMINISTRATIVE ARRANGEMENTS ANNEX F: DISTRIBUTION ANNEX G: REPORTS ANNEX H: EVALUATION/CONTROL PLAN 9

19 Table 2 Planning Milestones... 0 Exercise Plan - Annex A EXERCISE Activity Jan Feb Mar Apr May Jun Jul Aug Sep Oct Nov Dec Initial planning meeting Select Exercise Design Team Conduct need assessment Review plans Develop exercise purpose statement Develop goals and objectives Secure executive support Send letter of announcement to all agencies EX-PLAN MEETING Refine objectives, develop scenario (narrative, major events, detailed events), prepare draft EX-PLAN EX-PLAN refinement meeting ( ( (

20 - - ( ( ( Table 2 Planning Milestones Exercise Plan - Annex A EXERCISE Activity Jan Feb Mar Apr May Jun Ju! Aug Sep Oct Nov Dee Develop logistical material - maps, handouts, phones, etc. Determine news media release and public education efforts Assign evaluation personnel Train control and evaluation personnel Develop control and evaluation plan Publish complete EX-PLAN with control and evaluation plan Players conduct briefing of EX-PLAN CONDUCT EXERCISE Publish After Action Report Send letter of commendation and appreciation

21 [] Based on the above information determine likely emergency sequences and assess their probability of occurrence.,[] Estimate the consequences (e.g., death/injury, environmental impact, property damage) of the most probable emergency sequence or outcome. [] Evaluate the overall risk of the hazard. [] Review previous actual incidents. '--.J [ ] Review emergency plans This process ensures that the EDT is familiar with the roles, responsibilities and procedures of different agencies and organizations within the area where the exercise is to be held. It also may identify omissions or inconsistencies of the emergency maq.agement organization and help identify objectives for the exercise beneficial to improving the state of emergency preparedness. Examples of emergency plans in California are; Hazardous Material Incident Contingency Plan (state), Multihazard Functional Plans (county, city, or private sector), Area Plans (Administering Agency), Regional Plans (LEPC), Business Plans (industry), and Standard Operating Procedures. [ ] Address fiscal considerations The fiscal aspects of an exercise include personnel salaries, equipment and material, contract and support services. These costs may be incurred in each stage of exercise design, development and execution. Costs vary with the type and scale of the exercise and scenario events. Therefore, fiscal consideration may become a major factor in selecting the type and scale of the exercise. Costs may also be an important factor in gaining executive commitment for the exercise. The exercise design team leader may designate a Finance Section to evaluate fiscal needs, develop a working budget, and keep track of expenses incurred (see Attachment 3). This information may be used to estimate costs for conducting similar exercises in the future. Costs can be contained by making use oflocal public agencies, private organizations and neighboring jurisdictions' resources. These resources may be in the form of donated time and the loan of equipment and material. Evaluation of the loaned sources in an exercise is worthwhile since they may also be used during real emergencies. [ ] Determine ability to design and conduct exercise '--.J 12 Before the EDT makes a recommendation to design and conduct an exercise, an honest assessment of the capability of the host agency(ies)

22 - - ( ( ( Table 2 Planning Milestones Exercise Plan - Annex A EXERCISE Activity Jan Feb Mar Apr May Jun Jul Aug Sep Oet Nov Dee Develop logistical material- maps, handouts, phones, etc. Determine news media release and public education efforts Assign evaluation personnel Train control and evaluation personnel Develop control and evaluation plan Publish complete EX-PLAN with control and evaluation plan Players conduct briefing of EX-PLAN CONDUCT EXERCISE Publish After Action Report Send letter of commendation and appreciation

23 [] Based on the above information determine likely emergency sequences and assess their probability of occurrence. [] Estimate the consequences (e.g., death/injury, environmental impact, property damage) of the most probable emergency sequence or outcome. [] Evaluate the overall risk of the hazard. [] Review previous actual incidents. [ ] Review emergency plans This process ensures that the EDT is familiar with the roles, responsibilities and procedures of different agencies and organizations within the area where the exercise is to be held. It also may identify omissions or inconsistencies of the emergency maqagement organization and help identify objectives for the exercise beneficial to improving. the state of emergency preparedness. Examples of emergency plans in California are; Hazardous Material Incident Contingency Plan (state), Multihazard Functional Plans (county, city, or private sector), Area Plans (Administering Agency), Regional Plans (LEPC), Business Plans (industry), and Standard Operating Procedures. [ ] Address fiscal considerations The fiscal aspects of an exercise include personnel salaries, equipment and material, contract and support services. These costs may be incurred in each stage of exercise design, development and execution. Costs vary with the type and scale of the exercise and scenario events. Therefore, fiscal consideration may become a major factor in selecting the type and scale of the exercise. / Costs may also be an important factor in gaining executive commitment for the exercise. The exercise design team leader may designate a Finance Section to evaluate fiscal needs, develop a working budget, and keep track of expenses incurred (see Attachment 3). This information may be used to estimate costs for conducting similar exercises in the future. Costs can be contained by making use oflocal public agencies, private organizations and neighboring jurisdictions' resources. These resources may be in the form of donated time and the loan of equipment and material. Evaluation of the loaned sources in an exercise is worthwhile since they may also be used during real emergencies. [ ] Determine ability to design and conduct exercise 12 Before the EDT makes a recommendation to design and conduct an exercise, an honest assessment ofthe capability of the host agency(ies)

24 is essential to determine the type and scale of the exercise. If the agency has recently written its emergency plan, holding a tabletop may be advisable before a functional or field exercise is undertaken. Other considerations include staff availability, budget concerns, executive commitment, etc. [ ] Develop a statement of exercise purpose A statement of purpose clearly and briefly states why the exercise is being conducted and what is expected to be accomplished. It is used by the EDT to determine the type, scale, and scope of the exercise, and for gaining executi ve support. A statement of purpose should describe the following:. Types of operations to be exercised -- warning system, hazardous material team, emergency medical services, etc.. Agencies and personnel involved -- Office of Emergency Services, fire, police, etc. [ ] Select the type and scale of exercise Based upon the needs assessment, fiscal considerations, and capability of the host agency, the EDT makes a preliminary selection of the type of exercise to be conducted. After the exercise type has been selected, it is essential to determine the scale of the exercise. Although they have elements in common, each exercise type may vary in complexity. An exercise may involve a limited response, testing a single component of the community's emergency response system. On the other hand, the exercise may involve a comprehensive response. The latter type of exercise involves a greater number of personnel, a significant amount of equipment, and a lot of time to design and conduct the exercise. First, a clear statement of purpose and objectives should be formulated. Based on this statement, the level of training, and the response capability of the jurisdiction, the scale of the exercise is determined. It should be noted that the objectives of the exercise may not be accomplished if the scale of the exercise exceeds the existing response capability of the jurisdiction. Many emergency response exercises (particularly tabletops) are conducted with a compressed time scale. A full-scale or a field exercise should not be compressed at the expense of realism. For a field exercise, some important activities, such as search and rescue, decontamination procedures, etc. should be performed in "real time". 13

25 Table 3 Exercise Design Time and Cost Sheet DATE ACTIVITY WHOIWHAT TIME SPENT / $ '-../ 14

26 [ ] Develop goals and objectives for the exercise Although the words "goal" and "objective" are often used interchangeably, for the purpose of this manual, a goal is defined as the desired end result improvement in the operational readiness of the jurisdiction toward which effort is directed. Objectives, on the other hand, are specific accomplishments required in order to achieve the goals. For example, for a hazardous material exercise, a goal may be to evaluate the capability of the local jurisdiction to effectively respond to a simulated emergency situation. One objective to accomplish this goal may be to evaluate hazardous material response equipment to respond to this simulated emergency. (See Appendix D for goals for the Orange County and Placer County exercises.). The objectives should be "SMART". That is, they should be: Specific, Measurable, Achievable, Realistic, and Time-limited. [ ] Solicit and secure executive support Management commitment to actively participate and provide resource support is critical to any successful exercise. To secure executive support, gather all the pertinent information obtained so far and prepare a package for executive management, i.e., Mayor, City Manager, City Council, Board of Supervisors, Chief Administrative Officer, etc. (see Tables 4, 5 and 6 for executive support memos and directive). This effort should result in the following:. A clear understanding between the EDT and the chief executive on what the exercise will entail, including required resources and the potential positive outcomes of a successful community exercise.. A statement of management commitment to the exercise which gives direction to the players and participants as needed. The following are some tips (modified from EM!' s Exercise Design Training Manual) for winning the commitment of your chief executive:. You Must Be Well Versed And Committed To Your Proposal In most cases, your superior will react to your behavior. If you are enthusiastic and confident about your proposal, you are more likely to elicit a similar response from himlher. Conversely, if you are cautious or hesitant, don't expect your superior to exhibit confidence in your proposal. 15

27 0 Take The Time To Develop A Professional Presentation Recognize that your supervisor's time is valuable. Visual aids can assist you in educating your superior more thoroughly, and within the allotted timeframe. /. Project Cost Estimate for Your Proposal Include cost estimates for planning, training, implementation, resource acquisition, and any other related activities.. Know Your Audience Take the time to look at the proposal from the point of view of the decision makers whose support you are seeking. Does it meet their criteria, fall in line with their priorities? Have you shown that it will be cost effective? Is it mandated by federal or state law?. Above All, Be Honest About Your Projections Don't project a different situation or circumstance, other than what you honestly believe will result from the occurrence of the event. An unrealistic sales pitch will usually do more harm than good. Remember, you may need additional support in the future. 16

28 Table 4 Sample Memo to Secure Executive Support MEMORANDUM City of To: From: City Manager Exercise Design Team Leader Date: SUBJECT: HAZARDOUS MATERIAL EXERCISE As per your direction, the Exercise Design Team has developed a preliminary exercise proposal for consideration by the City Council. This proposal includes: ' '. A statement of exercise purpose and objectives; Schedule for developing the exercise; Agencies participating in the exercise; A plan for staffing and training requirements; and. Fiscal aspects of the exercise design and execution. I am available to discuss this proposal or to provide additional information to you or the council. Enclosures ' / 17

29 Table 5 Sample Memo of Executive Support '-.-/ MEM 0 RAND UM City of To: From: Exercise Design Team Leader City Manager Date: SUBJECT: HAZARDOUS MATERIAL EXERCISE I have reviewed your proposal for a hazardous material exercise to evaluate our city's newly developed Area Plan, and to improve coordination among our neighboring jurisdictions. I have also discussed the proposal with the City Council. We agree that we need to evaluate the Area Plan and provide adequate training to our response staff in preparing for hazardous material related emergency situations. This is of particular importance in light of the fact that our city has grown substantially in the industrial segment in the last five years. Therefore, I approve your proposal for a hazardous material exercise as outlined. Keep me informed of the progress of the exercise. cc: Council Members.. ' / 18

30 Table 6 Sample Executive Directive To: From: All Department Heads City Manager Date: SUBJECT: HAZARDOUS MATERIAL EXERCISE The City Council, at its meeting on ( date) approved a proposal (attached) to conduct a hazardous material exercise in the city, tentatively scheduled for ( date) All departments are directed to provide full support to the Exercise Design Team (list attached) during the pre-exercise, exercise, and post-exercise process. If you have any questions, please contact me ( name) Leader. or the Exercise Design Team Enclosures " ' 19